planning report planning repor… · from: desta mcadam, mcip, rpp senior planner – development...

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TO: Planning & Development Advisory Committee

FROM: Desta McAdam, MCIP, RPP Senior Planner – Development

DATE OF MEETING: November 19, 2019

REPORT TITLE/SUBJECT: Application for Zoning By-law Amendment: 1111 Elgin Street West, Cobourg Trinity Development Group Inc./Northumberland Shopping Centre Inc.

DATE OF REPORT: November 14, 2019 Z-07-19

1.0 STRATEGIC PLAN

N/A. 2.0 RECOMMENDATION

THAT Council be advised that the Planning and Development Advisory Committee has duly considered the application by Aly Premji, Trinity development Group Inc. on behalf of Northumberland Shopping Centre Inc. for approval a Zoning By-law amendment to facilitate the development of a 929 m2 multi-unit commercial free standing building located on a 9.92 ha parcel of land known as 1111 Elgin Street West (Northumberland Mall), and further that the Planning and Development Advisory Committee endorses the conclusions of the Planning Report.

3.0 PUBLIC ENGAGEMENT

Section 34 of the Planning Act, RSO 1990, c.P.13, as amended, and Section 9.15 of the Official Plan prescribe statutory public notice requirements for a complete application for approval of a Zoning Amendment, and for the scheduling of a public meeting. Notice of a complete application and notice of a public meeting can be provided together. The Municipality is required to give notice by either:

a) publication in a newspaper that is of sufficient circulation in the area which the application applies; or by, b) personal or ordinary service mail to every land owner within 120 metres of the subject land, and by posting a notice, clearly visible from a public highway or other

THE CORPORATION OF THE TOWN OF COBOURG

PLANNING REPORT

place the public has access on the subject land, or a location chosen by the municipality.

The Municipality published the Notice of Complete Application and Public Meeting in the Northumberland News on October 3, 2019 to satisfy the requirements of the Planning Act and, although not required under the legislation, distributed the Notices to every land owner within 120 m of the Subject Lands and posted the Notice on the Town of Cobourg Website as added measures. The Planning Department also notified those persons who made written requests to be notified of any development applications involving the Subject Property in accordance with the provisions of the Planning Act. Thus, the Municipality has complied with the notice requirements prescribed by the Official Plan and Planning Act.

4.0 ORIGIN

In September of 2019, a complete application for approval of a Zoning By-law Amendment was submitted by Aly Premji, Trinity Development Group Inc. on behalf of Northumberland Shopping Centre Inc. to facilitate the development of a 929 m2, freestanding multi-unit commercial building consisting of six (6) units, including a drive through facility, towards the front of the Subject Lands in the existing parking area of Northumberland Mall, north of Dollarama (see Figure 1 Location Map below). Prior to this submission date, the proponents held pre-consultations with municipal staff.

Figure 1: Location Map

At its meeting held on September 9, 2019, Council moved that the application be received and referred to the Planning Department for a report, and further directed that the Public

Meeting be scheduled. In accordance with the Planning Act, if Council has not made a decision within 90 days of its receipt of a complete application for approval of a Zoning By-law Amendment, the applicant may appeal the applications to the Local Planning Appeal Tribunal (LPAT). The Public Meeting has been scheduled for Monday, November 25, 2019 at 5:00 pm.

5.0 BACKGROUND 5.1 Owner Northumberland Shopping Centre Inc. 5.2 Applicant/Agent Aly Premji, Trinity Development Group Inc. 5.3 Property Address

The lands are known municipally as 1111 Elgin Street West, Cobourg -- refer to Figure 1 Location Map.

5.4 Existing Land Uses

The Subject Lands consist of a 31, 611 m2 Shopping Centre (Northumberland Mall), and three free-standing buildings, including a 1,114.1 m2 retail liquor/alcohol store (LCBO), a 552.8m2 restaurant building (Boston Pizza), and a 163.5 m2 restaurant building with drive-through facility (A&W).

5.5 Surrounding Land Uses

North: Various automotive services including vehicle sales and rental establishments, including Can Auto, Bill Spencer Chevrolet, National Car Rental, Fraser Ford; Clear Choice Pool & Spa; and commercial plazas consisting of various commercial and retail uses, including CJ’s restaurant, 241 Pizza, Bulk Barn, Palm Beach Mega Tan, Medi Gas, Bitters and Grapes, First Choice Hair cutters, Dominos Pizza, Subway, Allen Insurance, Midas and OK Tire.

South: Mostly low density residential uses. East: Various commercial buildings with a range of businesses including Staples,

Hakim Optical, Rental City, Remax Lakeshore Realty, Insurance Protection Group, Pharmasave, Commissionaires Security; and an institutional building (Fleming Building) which consists of Fleming College, offices, and Service Ontario.

West: Various commercial buildings including Canadian Tire, Mark’s Work Warehouse, Tim Horton’s restaurant; and Canadian Tire gas bar and convenience store.

5.6 Proposal

The development proposal is for a new 929 m2 multi-unit commercial free standing building, consisting of a financial institution (intended for the re-location of the existing Scotiabank from within the Mall), restaurant with drive through facility, and four additional retail units existing parking area of Northumberland Mall, north of Dollarama. The initial zoning proposal also included requests to change to the following: lot frontage definition, permitted uses, lot coverage, and parking and loading standards, and to replace the existing Zoning Schedule B-7 for the property to reflect the proposed building location, driveway locations, and encompass existing freestanding buildings and Northumberland Mall. A number of these items have been modified since the initial application.

The Subject Lands are designated “Shopping Node Area” in the Official Plan (2017) and zoned “Shopping Centre Commercial Exception 1 (SC-1) Zone,” “Shopping Centre Commercial Exception 2 (SC-2) Zone,” and “Shopping Centre Commercial Exception 3 (SC-3) Zone” in Comprehensive Zoning By-law No. 85-2003. The new building is proposed to be located within the SC-1 Zone.

The application submission included a Planning Justification Report (hereinafter referred to as the “MHBC Planning Report”) prepared by MHBC Planning Urban Design & Landscape Architecture, dated July, 2019, revised in November of 2019 and an Urban Design Brief (hereinafter referred to as the MHBC Urban Design Brief”), prepared by MHBC Planning Urban Design & Landscape Architecture, dated July, 2019. Copies of the above reports are affixed as Appendix I and Appendix II respectively. Other technical reports submitted with the subject application which are relevant to the proposal but not affixed to this Report due to size include:

1. Retail Market Impact Analysis/Brief, Urban Metrics Inc. 2. Parking Study, LEA Consulting Ltd. 3. Transportation Impact Study, LEA Consulting Ltd. 4. Conceptual Servicing Report/Brief, Counterpoint Engineering 5. Architectural Elevation Drawings 6. Overall Site Plan, Petroff Partnership Architects 7. Site Plan Building “D,” Petroff Partnership Architects 8. Building Elevation Plans

Copies of the aforementioned reports and plans are available in the Planning Department upon request.

6.0 ANALYSIS

In considering the subject application, an understanding of the applicable provincial legislation and local policies is beneficial when reviewing an application for approval of a Zoning By-law Amendment. The background reports submitted with the subject application, particularly the MHBC Planning Report, provide a comprehensive overview of the subject application relative to relevant provincial and local policies, guidelines, regulations and standards, and include a number of conclusions and opinions relating to conformity therewith. It is not the intent of this Planning Report to duplicate the review and analysis provided in these reports, however the following sections provide a general ‘high-level’ summary of relevant background and commentary from a municipal planning staff perspective and are intended to complement and be read in conjunction with the submitted reports.

6.1 Planning Act, RSO 1990, c.P. 13, as amended

In accordance with the approval process of the Planning Act, the requirements for considering an application for Zoning By-law amendments include public notification, convening a Public Meeting, and awaiting an appeal period. As referenced above, the Municipality shall have regard to matters of Provincial interest under Section 2 of the Act, which are encapsulated in the Provincial Policy Statement (PPS), 2014 and Provincial Plans, such as the Growth Plan for the Greater Golden Horseshoe (the “Growth Plan”), 2017. In general, matters of Provincial interest include such applicable matters as: the protection of ecological systems and natural features; protection of employment areas; adequate provision and efficient use of infrastructure; orderly development of safe, healthy and complete communities; adequate provision of a full range of housing, including affordable housing; accessibility for persons with disabilities; the protection of public health and safety; appropriate locations for growth and development; the promotion of sustainable development; the use of pedestrian-friendly designs; and development which is transit supportive. Comment/Opinion The proposed commercial infill development represents an orderly development pattern, and makes efficient use of the municipality’s existing infrastructure. The proposed development will support the community and enhance the economic viability of the existing shopping node by providing a more diversified range of commercial services on the site.

The proposed development is transit supportive. The subject property is one of two municipal transit stop locations that is serviced by both transit routes, and therefore is one of the most transit supportive locations in the municipality. The proposed development will concentrate the availability of commercial uses in an area that is immediately accessible by transit and to other active transportation users.

With regard to traffic, a traffic report prepared by the proponent’s transportation consultant has concluded that the proposed development and site design is appropriate from a traffic perspective. Additionally, the Revised Site Plan, which considers the whole of the SC-1, SC-2 and SC-3 Zones, demonstrates an appropriate supply of on-site parking facilities that can meet the parking demand. See Figure 2 – Revised Site Plan below.

Figure 2: Revised Site Plan, November 2019

In my opinion, the proposed amendment has appropriate regard to matters of Provincial interest under Sections 2 and 34 of the Planning Act and constitute good planning.

As referenced above, the Municipality shall have regard to matters of Provincial interest under Section 2 of the Act, including such applicable matters as: the protection of natural features; adequate provision and efficient use of infrastructure; orderly development of safe and healthy communities; accessibility for persons with disabilities; adequate provision of educational, health, social, cultural and recreational

facilities; adequate provision of a full range of housing; protection of public health and safety; appropriate location for growth and development; and, promotion of sustainable and pedestrian-friendly design, and be transit supportive. Section 6.2 below provides further commentary of the proposal relative to matters of Provincial interest.

6.2 Provincial Policy Statement (PPS), 2014 & A Place To Grow Growth Plan for the Greater Golden Horseshoe, 2019

The Planning Act requires that the Council of a local Municipality shall be consistent with the Provincial Policy Statement (PPS) and shall conform to the A Place To Grow Growth Plan, 2019 (the “Growth Plan”) when carrying out applications such as a plan of subdivision. The PPS was issued by the Ministry of Municipal Affairs and Housing (MMAH) in 2014 under the Planning Act and the Growth Plan was updated and re-issued by the Ministry of Municipal Affairs – Ontario Growth Secretariat and approved by the Ontario Legislature under the Places To Grow Act on May 16, 2019. In general, the primary directives of these documents include such issues as:

fostering the development of complete communities which are strong, sustainable, liveable, healthy and vibrant;

promoting efficient, cost-effective and transit-supportive land use and development

patterns to minimize land consumption and servicing costs and support active transportation;

providing for an appropriate mix and range of employment, institutional, recreation,

parks and open space and other uses to meet long term needs; providing opportunities for a diversified economic base, including maintaining a

range and choice of suitable sites for employment uses which support a wide range of economic activities and ancillary uses;

facilitating intensification, redevelopment and compact built form;

directing growth and development to urban settlement areas with full municipal

services; encouraging the proper use and management of significant natural and cultural

resources; and,

protecting public health and safety. Section 2.1 (pgs. 4 – 6) in the MHBC Planning Report in Appendix I provides an overview of the PPS and Growth Plan, and offers opinions that the proposal is consistent with the provisions of the PPS and conforms to the Growth Plan. An in-depth analysis of the PPS

and Growth Plan policies is also included in Appendix A and Appendix B of the MHBC Planning Report. Comment/Opinion I concur with the conclusions and opinions contained in the MHBC Planning Report regarding conformity to matters of Provincial interest as reflected in the PPS and Growth Plan. The proposed development represents an infill commercial development on an existing, underutilized commercial site. The proposed development will efficiently make use of existing services and infrastructure which are readily available on the Subject Lands; therefore, removing any need for an uneconomical expansion of the municipal services, and conserving greenfield land. Specifically, the proposal will provide for a measured increase of commercial uses on the Subject Lands, adding to the economic viability of the existing shopping node area. It is apparent that the Subject Lands are suitably located to provide access to other community services, including transit, post-secondary education, and Service Ontario. This application will add to the economic development and competitiveness of the area by supporting the ongoing use and development of the existing shopping node, and encouraging the use of other surrounding commercial and serviced-oriented uses. With regard to accessibility, the proposed new development will be built in accordance with Ontario Building Code (OBC) standards for accessibility, and will support the availability of the accessible services and shopping opportunities within the community. Additional approaches for enhancing accessibility for the development will be explored at the site design stage and prior to Site Plan Approval, when the details of development will be more advanced. Based on my review of the application, including the supporting background information, it is my opinion that the application has appropriate regard to and is consistent with the PPS and Growth Plan.

6.3 County of Northumberland Official Plan:

The County of Northumberland Official Plan (the “County OP”) was approved by the Ministry of Municipal Affairs and Housing on July 29, 2015 and further approved by the Ontario Municipal Board on November 23, 2016. In general, the purpose of the County OP is to:

Establish a broad, upper tier policy framework intended to guide local municipalities in the preparation of their Official Plans, Official Plan Amendments and zoning by-laws;

Implement the PPS and Growth Plan at the County level; and,

Establish a framework for coordination and cooperation amongst local

municipalities and the County on planning and development issues that cross municipal boundaries.

The County OP is not intended to duplicate the policies of local Official Plans, and recognizes certain land use planning responsibilities that are vested with local municipalities. Accordingly, the County OP provides over-arching guidance necessary to formulate detailed strategies, policies and land use designations at the local level. Thus, the land use designations and policies in the Cobourg OP essentially remain intact, but would need to be monitored and regularly updated to ensure conformity with the County OP. The County OP encourages each of the six (6) urban areas in the County to become complete communities, including the provision of convenient access to an appropriate mix of jobs, local services, a full range of housing, and community infrastructure including affordable housing, schools, health, transit, recreation and open space for their residents. From this perspective, it is the objective of the County OP to:

Protect, enhance and maintain existing urban areas as diverse, livable, safe, thriving and attractive communities;

Promote the efficient use of land and infrastructure by directing most

development to urban areas where full services are available;

Encourage a range of complementary and compatible land uses in residential areas, including community facilities, schools, small-scale commercial uses and recreational open space areas;

Provide opportunities for a diversified economic base, including an appropriate

mix of employment and institutional uses to meet long term needs; Establish an integrated transportation system that safely and efficiently

accommodates various modes of transportation including public transit, cycling and walking;

Provide for an interconnected system of public spaces that offer convenient and

comfortable access and promote safe and healthy environments; and,

Encourage a high standard of urban design; Section 2.4 (pgs. 7 – 8) of the MHBC Planning Report in Appendix I summarizes the applicable policies of the County Official Plan, particularly the urban area employment growth forecasts, development objectives, servicing, and transportation considerations, as

they relate to the subject application. An in-depth analysis of the County Plan policies is also included in Appendix C of the MHBC Planning Report.

Comment/Opinion The proposed Zoning By-law Amendment promotes the efficient, cost-effective use of existing, serviced land with the Built Boundary of the Urban Area. Overall, the proposal supports the development of a complete community by promoting greater choice in the market place and enhancing opportunities for local employment; therefore contributing to the economic prosperity of the area. The proposed development will promote the use of municipal transit, and active transportation, and will contribute towards the development of high quality built form. In my opinion, the proposal conforms to the Northumberland County Official Plan.

6.4 Town of Cobourg Official Plan, 2017

The Official Plan is a broad policy document that establishes an overall planning framework or vision for the community, including policies for maintaining and enhancing the existing community structure and for managing change, and for guiding the municipality in implementing the planning process through a variety of mechanisms and approaches. Some of the key principles of the Cobourg Official Plan include promoting sustainable, accessible and compact development, particularly transit supportive, mixed use built form along its main streets, and a mix of employment uses. In addition, the Official Plan emphasizes that decisions made with respect to the future of the Town of Cobourg will reflect the need to maintain a healthy and economically viable community. Section 2.4 (pgs. 7-8) of the MHBC Planning Report contained in Appendix I provides a general summary and opinion response to the relevant policies of the Official Plan. An in-depth analysis of the Official Plan policies is also included in Appendix D of the MHBC Planning Report.

Comment/Opinion

The MHBC Planning Report discussion touched on a number of key objectives of the Official Plan, including the creation of compact, transit supportive development; utilization of existing infrastructure and services for new development; encouraging the creation of attractive, pedestrian-oriented and walkable streetscapes through high quality urban design and landscaping; ensuring the principles of sustainability are upheld by new development. It is evident that the positioning of the Subject Lands, being situated on both transit routes, an active transportation corridor, and in close proximity to other existing services and

community facilities is ideal to support a new infill commercial building. The proposal responds the general vision and community development principles of the Official Plan. A discussion of key aspects of the proposal as they relate to applicable Official Plan policies are included below. Market Impact (Anchor Uses and Retail Floor Area) Policy 3.7.5 of the Official Plan restricts certain land uses that serve as major attractions and regional traffic generators to the Main Central Area -- entitled “anchor uses”. Included in these restricted “anchor uses” are banks (i.e. financial institutions). The policy states that the town should only consider locating potential anchor uses outside of the Main Central Area when it is demonstrated that it is not physically feasible to locate the anchor store in the Main Central Area, or in the case of a second anchor store, it is demonstrated that the anchor store in the Main Central Area will be retained following the establishment of a second anchor store. Policy 3.8.3.2 of the Official Plan also requires that a Market Impact Study be conducted for any expansion of a shopping node that would result in an additional 1400 m2 or more of gross floor area. The purpose of this policy is to protect existing commercial shopping areas within the Municipality, specifically those areas within the Main Central Area designation that contribute to the economic viability and vibrancy of the historic downtown commercial core. Although the proposed freestanding building is under 1400 m2, since a Zoning By-law Amendment was triggered to permit the proposal, and because the proposal involves an anchor use, it was recommended by Planning staff that the applicant proactively contract a Market Impact Study to support the proposal in keeping with the intent of the Official Plan. A Market Demand and Impact Analysis Brief by Urban Metrics Inc. (hereinafter referred to as the “UMI Market Study”) was conducted in support of the proposal. The purpose of the study was to determine whether the addition retail space within the proposed multi-unit freestanding building was warranted, and if the proposal complied with the Anchor Use policy of the Official Plan. The UMI Market Study concluded that the market demand for additional non-food retail space is warranted, and that the proposed retail space will have no impact on existing commercial nodes, and will not restrict commercial designated vacant lands from developing. The UMI Market Study also responded to policy 3.7.5 of the Official Plan regarding anchor uses, and confirmed that the proposed financial institution within the multi-unit freestanding building is not a new use of the Subject Lands. The existing Scotiabank financial institution within the Northumberland Mall Building is intended to relocate as a result of the proposal. Scotiabank is already an anchor tenant in the Main Central Area, and the location at 1111 Elgin Street West reflects a second anchor store use. The MHBC Planning Report also provides an evaluation of the policy relating to Anchor Uses (Section 3.7.5) in Appendix D of the report, referencing the UMI Market Study.

Comment/Opinion To ensure the analysis of the Market Study was completed by a qualified professional, specializing in land economics, the Planning Department contracted a peer-review of the Market Study. The peer review was conducted by Ward Land Economics Inc. (hereinafter referred to as the “WLE Peer Review”), a consultant with over 20 years of experience in retail market economics and studies in the Town of Cobourg. The WLE Peer Review generally concurred with the findings and conclusions of the UMI Market Study. Specifically, the WLE Peer Review concluded that the proposed 929 m2 multi-unit commercial building is warranted based on market support and lack of negative impact. To account for the Official Plan policy direction and to protect the planned function of Cobourg’s commercial areas, particularly the Main Central Area and its anchor uses, the WLE Peer Review report recommended that the Zoning By-law specify that the multi-unit commercial building have a maximum gross floor area of 929 m2 and that only one financial institution/bank be permitted on the entire Northumberland Mall lands. The applicant has agreed with these recommendations. Based on my review of the supporting information, and the third party peer-review of the UMI Market Study, it is my opinion that proposal provides greater commercial choice for the growing community, and will not serve to destabilize or negatively impact that the economic potential or viability of the Main Central Area. In accordance with the recommendations of the WLE Peer Review, specific wording will be added to the amending By-law to ensure that only one (1) financial institution will be permitted across the whole of the Northumberland Mall property, which is zoned SC-1, SC-2 and SC-3 Zone, and that the permitted multi-unit building is commercial and is restricted to 930 m2 in size.

Transportation A Transportation Impact Study was prepared by LEA Consulting Engineers to assess the traffic impacts of the proposed commercial building, and the relocation of the Northumberland Mall access on Rogers Road1. The transportation analysis included assessments of roads, intersections, existing and future demands/impacts. The conclusions of the study note that under existing conditions, all studied intersections are operating with residual capacity, and that the proposed commercial building addition to the Subject Lands will result in minimal increases to V/C (volume-demand-to-capacity) ratio and delay for inbound and outbound movements.

1 The proposed relocation of the Northumberland Mall access on Rogers Road is not a direct consideration of the proposed Zoning By-law Amendment, and relates more generally to overall proposed site improvements that will be considered in a future Site Plan Amendment application process for the Subject Lands.

Comment/Opinion Based on the transportation documentation submitted, and feedback provided by the County of Northumberland and Cobourg Public Works Department staff on the proposed re-zoning, it is my opinion that the proposal as it relates to the proposed multi-unit commercial building has adequately satisfied the Official Plan in demonstrating that the development will not impose adverse impacts on the existing transportation system or the surrounding neighbourhood. However, further updates to the Transportation Impact Study will be required to satisfy the technical comments from County and Public Works staff prior to consideration of Site Plan Approval by Council. Municipal Servicing Infrastructure A Conceptual Servicing Report/Brief was submitted by Counterpoint Engineering in support of the Zoning By-law Amendment application. The Brief outlines the likely servicing approach and potential stormwater management impacts for both the proposed freestanding building, and the parking lot reconfiguration on the westerly portion of the property, resulting from the proposed Rogers Road driveway access relocation.

Comment/Opinion

With regard to servicing, the Brief notes that there are existing service connections on the property due to a previous site plan design, which included a freestanding building in generally the same location as the proposed multi-unit freestanding building. The previous approved building location was pre-serviced with a 150 mm diameter storm sewer, a 150 mm sanitary sewer, and a 50 mm copper water connection. The existing services, to be confirmed via survey will be sufficient to service the proposed freestanding multi-unit building. With regard to stormwater management/runoff, while the re-configuration of the parking lot on the westerly side of the Subject Lands may require some modifications to the minor storm system in the area, it is anticipated that the degree of imperviousness will either be maintained or reduced with the proposed development. Pre and post-development drainage plans will be developed and the existing capacity of the storm sewers in the local area will be maintained, or additional controls will be introduced.

In summary, the Brief confirms that the necessary infrastructure is in place to adequately service the Subject Lands, and that minimal stormwater impacts will result from the proposed free-standing building, as the proposed building location is already impervious. Final engineering design will be subject to further detailed review by the Municipality as part of site plan approval. Urban Design

The MHBC Urban Design Brief attached in Appendix II provides an in-depth overview of the urban design approach for the development and how it responds to the Town’s community design objectives of the Official Plan and Urban & Landscape Design Guidelines (UDLG). Particularly, the report focusses on creating. Appendix F of the MHBC Planning Report includes the proposed Site Plans and Building Elevations for the proposed development. Comment/Opinion Following a review of the MHBC Urban Design Brief, it is my opinion that the proposed zoning change generally satisfies the community design policies and guidelines of the Official Plan, including the gateway areas policies, and Urban & Landscape Design Guidelines. The proposed development will contribute towards a more pedestrian oriented, animated streetscape along Elgin Street West, and will facilitate the construction of quality built form along a main arterial road for the community. The proposed development will support the use of transit, and active transportation through the provisioning of clear paving demarcation for pedestrians, and bicycle parking near building entrances for cyclists. Finally, the proposed drive through facility will be located away from the main pedestrian oriented areas to avoid conflict. Final urban design parameters will be subject to further detailed review by the Municipality as part of site plan approval. Sustainability A review of the Town’s sustainability policies was included within the MHBC Planning Report and MHBC Urban Design Brief. Together, these documents cover how development intends to satisfy the Town’s urban design and sustainability policies and guidelines of the Official Plan and Urban & Landscape Design Guidelines (UDLG). The MHBC Planning Report is attached in Appendix I, and the MHBC Urban Design Brief is attached in Appendix II. The Cobourg Official Plan contains a number of references to sustainable community design, including the Vision, Section 2.7 – Community Design Principles, Section 4.0 Greenlands System and Section 5.0 Community Design & Improvement (to name a few), however the key initiative is found under Section 4.8 – Sustainability Strategy. The purpose of the Strategy is to foster a “culture of conservation” which reflects the principle of sustainable development – “development that meets the needs of the present without compromising the ability of future generations to meet their own needs”. The policies contained within the Strategy, and the supporting guidelines in the Town’s Urban & Landscape Design Guidelines, are aimed at encouraging development which is based on this principle and set the framework for the creation of an Integrated Community Sustainability Plan (ICSP). In particular, the Town shall encourage development designed to:

i) reduce the consumption of energy, land and other non-renewable resources including support for energy efficient building and opportunities for co-generation;

ii) minimize the waste of materials, water and other limited resources; iii) create livable, healthy and productive environments; iv) reduce greenhouse gases; and, v) enhance biodiversity, ecological function, and the natural heritage system,

including the provision of wildlife habitat and linkages.

Comment/Opinion The sustainability assessment contained within the MHBC Urban Design Brief (pg. 14) demonstrates that the proposal generally captures and responds to the principles of sustainable development in conformance to the aforementioned policies of the Official Plan and the ULDG. The proposed development is located within an urban, built-up serviced area, where it will efficiently utilize existing municipal services, community facilities and other infrastructure, thus reducing the consumption of rural, undeveloped land and mitigating urban sprawl. The site is in close proximity to other existing and planned employment and commercial uses, transit and active transportation facilities, which will help promote alternative modes of travel and reduce greenhouse gas emissions.

Overall, the proposal will facilitate the construction of an infill commercial building, which represents intensification on an existing, underutilized property, and constitutes a sustainable land use pattern. The proposed development would be an improvement to the existing impervious parking lot currently improving the Subject Lands in this area, and the site plan design of the new freestanding building will have the potential to benefit from improved sustainable components, including permeable paving and rain gardens, where possible; native, non-invasive plantings, including the integration of drought-tolerant species (to reduce water consumption); and durable local and recycled building materials to reduce the carbon footprint of the development.

I am of the opinion that the proposed development generally satisfies the goals and objectives of the Official Plan and Urban & Landscape Design Guidelines relating to sustainability.

6.5 Zoning By-law:

The existing zoning for the Subject Lands is “Shopping Centre Commercial Exception 1 (SC-1) Zone,” “Shopping Centre Commercial Exception 2 (SC-2) Zone,” and “Shopping Centre Commercial Exception 3 (SC-3) Zone.” The area of the Subject Lands where the

new building is proposed is located within the SC-1 Zone. See Figure 3 – Zoning Map below for a visual of the three zones, as they apply to the Subject Lands.

Figure 3: Zoning Map

The SC-1, SC-2 and SC-3 Zones permit a range of uses, including the uses proposed for the new multi-unit freestanding building, being a restaurant, financial institution, and retail units. These zones also permit a limited number of freestanding buildings in the respective zones, however, specific regulations apply to each permitted building. Specifically, the SC-1 Zone currently permits one free-standing retail building having a minimum unit area of 700 m2 and a maximum unit area of 930 m2 OR one free-standing financial institution building with a minimum unit area of 465 m2 and a maximum unit area of 700 m2, and up to two single storey freestanding restaurant buildings each having a minimum unit area of 163 m2. Currently, the only freestanding building constructed in the SC-1 Zone is the A&W restaurant building. Although the SC-1 Zone currently permits the addition of two additional freestanding buildings within the defined Zone boundaries, the current zoning does not consider a multi-unit freestanding building, consisting of a variety of uses. A Zoning By-law Amendment is required to permit the proposed 929 m2 multi-unit freestanding building. Section 2.5 (pgs. 8-9) of the MHBC Planning Report in Appendix I provides an overview of the existing zoning and how the development complies with its requirements. A Draft By-law was also provided in Appendix E of the MHBC Planning Report. It should be noted that the original Planning Report identified additional requests for amendment, which have been subsequently determined to not be required. This includes a request for a parking reduction of 470 parking spaces, a request to increase maximum

permitted lot coverage for the Subject Lands, and a request to update Schedule B-7 with a new zoning schedule. The revised site plan in Figure 2 (inserted earlier in this report) demonstrates that all the required parking will be accommodated within the SC-1, SC-2, and SC-3 Zones. Additionally, the maximum permitted lot coverage of 35% can be met, and can accommodate the potentiality for additional freestanding building on the Subject Lands, and/or expansion to the existing primary building area (previously approved in principle but not yet constructed). Finally, the Planning Department, in conversation with the applicant, has confirmed a desire to not move forward with the inclusion of conceptual site plans as official schedules to the Zoning By-law, which date back to the 1980’s and are no longer used in modern zoning practices. The applicant has concurred with this direction, and has removed the request to replace Schedule B-7 to the current Zoning By-law with a new zoning Schedule. The overall site will be subject to the applicable regulations of the Zoning By-law. Comment/Opinion The key consideration of the proposal is to amend the Zoning By-law to permit a multi-unit commercial building on the Subject Lands, having a maximum floor area of 929 m2, and consisting of a financial institution, restaurant with drive through facility, and retail units.

Given that the Zoning By-law already permits a free-standing building with a maximum floor area of 930 m2, the proposed amendment only requests minor changes to the composition of uses within the permitted building. As discussed in previous sections of this Report, the WLE Peer Review concurred with the findings of the UMI Market Study, and confirmed that the requested retail floor space within the proposed building would not negatively impact existing retail commercial nodes within the broader community, and specifically the Main Central Area, where retail uses are also permitted. Additionally, the proposed financial institution use already exists on the Subject Property. The proposal only considers the potential re-location of the financial institution use from the primary building (Northumberland Mall) to the freestanding building. The WLE Peer Review recommends that only one (1) financial institution should be permitted on the overall Mall property in accordance with the Anchor Use policy of the Official Plan. Based on the supporting information provided in the application, and the findings of the peer review conducted by Ward Land Economics Inc., it is my opinion that the proposed multi-unit freestanding building, consisting of a restaurant, financial institution and retail units maintains the intent of the Zoning By-law and is appropriate and desirable for the ongoing use and development of the Subject Lands. Section 13.2.1.4 iv) Free-Standing Building should be amended to permit one multi-unit commercial building with a maximum floor area of 930 m2, and maintain the provisions for up to two restaurant buildings with a maximum floor area of 163 m2. The SC-1, SC-2 and SC-3 Zones will also include special provisions to specify that a maximum of one (1) financial institution shall be permitted on the overall, gross Mall lands.

In addition to the permitted uses/freestanding building permissions, other adjustments to the existing Zone Regulations have been requested for clarity and consistency purposes. These items are described and considered below: Permitted Buildings and Structures As this is an existing, historically developed site, the implementing zoning by-law amendment will be worded in such a way as to recognize the buildings and structures in the SC-1, SC-2, and SC-3 Zone existing at the date of the passing of the Zoning By-law. It should also maintain existing permissions for future expansion to the primary building area as previously approved, and include reference to the permitted free-standing buildings in the SC-1 Zone, including the multi-unit commercial building proposed as part of this application. Reference to Schedule B-7 Other adjustments to the Zoning By-law are required in support of the re-zoning, including removing the reference to a dated Zoning Schedule, which includes an inaccurate site plan depicting inaccurate driveway and building locations for the Subject Lands. Schedule B-7 as originally approved in the 1980’s is shown in Figure 4 below.

Figure 3: Schedule B-7 of the Zoning By-law (depicting the original development plan for the SC-1 Zone)

Reference to Schedule B-7 should be removed in the amending By-law. The Schedule was developed prior to the construction of the Mall, has been varied numerous times, is inaccurate, and does not in itself preserve any grandfathered permissions for the Subject Lands that could not be otherwise described in the amending By-law. Parking Space Dimensions The SC-1, SC-2 and SC-3 Zones provide site-specific zone requirements for parking. As part this requirement, the zone regulations state that each parking space shall have a minimum area of “15.05 m2 (162 ft2).” This standard is beyond the standard parking space requirement typically required throughout the Municipality. To maintain the intent of the Zoning By-law, the amending By-law should remove the requirement for a minimum standard parking space area of 15.05 m2, and a minimum standard parking space area of 14.85 m2 should be applied as per the parent By-law. Front Lot Line Definition The Subject Lands, being a corner lot, has dual street frontage on Rogers Road and Elgin Street West. Rogers Road is the shorter of the two street frontages for the Subject Lands. In accordance with the definitions provided in the Zoning By-law, the front lot line for a corner lot is the shorter of the two street frontages, therefore, the front lot line would be considered Rogers Road. Consequently, lot frontage would be calculated using the Rogers Road frontage, and the ‘front yard’ for the Subject Lands would be considered the Rogers Road side of the property. Historically, the Subject Lands consisted of three separate land parcels. The historic division of land granted each property, as generally defined by the SC-1, SC-2, and SC-3 Zone boundaries, individual lot frontage on Elgin Street West. Due to the merging of the three parcels over time, the front lot line for the whole Subject Lands has shifted to Rogers Road, as described above. It is clear that the intent of the zone regulations applicable to the Subject Lands is for Elgin Street West to be the “front lot line,” Therefore, in order to ensure that the zone regulations continue to be interpreted as intended, special language should be added to the amending By-law to calculate lot frontage along Elgin Street West, and to describe the north, Elgin Street West street side of the property as the ‘front yard’ of the lot.

6.6 Agency Comments:

The applications were circulated to municipal departments and external agencies, including the Town’s Development Review Team (DRT) and partner review agencies. To date, all of the departments and agencies who have responded have expressed no major concerns with respect to the proposed rezoning with requests for more information during the Site Plan approval process including GRCA, County and Cobourg Public Works/Engineering.

Additional agency comments, if any, will be made available at the Public Meeting.

6.7 Public Comments:

At the time of publication of this report, the Planning Department has not received any comments from the public.

7.0 CONCLUSIONS Based on an evaluation of the proposal relative to the applicable policy and regulatory framework, it is my opinion that the application for an amendment to the Zoning By-law for the Subject Lands is appropriate, desirable and represents good planning for the following reasons: i) The proposal will satisfy the key directives of the Planning Act, Provincial Policy

Statement, A Place To Grow Growth Plan, County of Northumberland Growth Management Strategy, the County Official Plan and the Cobourg Official Plan, most notably by:

Efficiently utilizing available lands within an urban, serviced and built-up area of the municipality, to facilitate an infill commercial development, thus ensuring the continued viability of the Subject Lands, and encouraging local employment;

proposing a compact, street-oriented development form which will integrate well into the existing urban fabric and surrounding development in a compatible fashion;

promoting use of transit and active transportation by situating development along both existing municipal transit routes and the Elgin Street West active transportation corridor;

the addition of a multi-unit freestanding building, including retail uses and one (1) financial institution use for the whole of the Subject Lands site complies with the Town of Cobourg approved Official Plan (OPA 69);

ii) The proposal generally conforms to the policies of the Official Plan and Urban and

Landscape Design Guidelines with respect to land use, urban design, sustainability, transportation, and municipal infrastructure;

iii) The implementation of the proposed zoning amendment would result in a

compatible addition to the existing built urban fabric of the community and facilitate a desirable development pattern;

iv) The proposed development will be subject to a Holding (H) Symbol in the

implementing Zoning By-law Amendment, which ensures that all technical and

detailed design matters (servicing, landscaping, site design, accessibility, connectivity, financials, etc.) are addressed via Site Plan Approval prior to final approval by Council and construction commencing.

Respectfully submitted: Desta McAdam, MICP, RPP Senior Planner – Development

Reviewed:

Attachments: Appendix I - MHBC Planning Report, July 2019, revised November 2019

Appendix II - MHBC Urban Design Brief, July 2019

PLANNING JUSTIFICATION REPORT

1111 Elgin Street West, Cobourg ZONING BY-LAW AMENDMENT

Date:

July 2019

Prepared for:

Trinity Development Group Inc.

Prepared by:

MacNaughton Hermsen Britton Clarkson Planning Limited

7050 Weston Road, Suite 230

Woodbridge ON L4L 8G7

T: 905 761 5588

F: 905 761 5589

Our File: 9922CV

(Revised November 2019)

LIST OF

CONTENTS

1.0

Introduction 1 1.1 Subject Lands and Surrounding Area Description 1

1.1.1 Subject Lands Description 1

1.1.2 Surrounding Area 2

1.2 Policy Context 2

1.3 Proposed Development 3

1.3.1 Rationale for Zoning By-law Amendment 3

2.0

Policy Analysis 4 2.1 Provincial Policy Statement 4

2.2 Growth Plan for the Greater Golden Horseshoe 5

2.3 Northumberland County Official Plan 6

2.4 Town of Cobourg Official Plan 7

2.5 Town of Cobourg Zoning By-law 85-2003 8

2.5.1 Rationale for Proposed Amendment 9

3.0

Summary and Conclusions 10

1

1.0

INTRODUCTION

MacNaughton Hermsen Britton Clarkson Planning Limited (“MHBC”) has been retained by Trinity Development Group Inc. (“the Owner”) to seek planning justification for a Zoning By-law Amendment (“ZBA”) to permit the proposed infill development on their lands municipally addressed as 1111 Elgin Street West in the Town of Cobourg (hereafter referred to as the “Subject Lands”). The proposed development area is located at the northeast corner of the Subject Lands (hereinafter referred to as the “Proposed Development Area”). The Proposed Development Area is located on the south side of Elgin Street West between Strathy Road and Rogers Road (Figure 1). The proposal requests an amendment to the Town of Cobourg Zoning By-law 85-2003 as amended by By-law 86-2007 and By-law 87-2007 to permit a multi-unit commercial infill development consisting of 6 units with a drive-through facility to the west within the Proposed Development Area. Uses contemplated include a restaurant, a financial institution and three retail operations. This report concludes that the proposed amendment is consistent with the Provincial Policy Statement and the Growth Plan for the Greater Golden Horseshoe. The proposed amendment is not in conflict with the Northumberland County Official Plan or the Town of Cobourg Official Plan.

1.1 SUBJECT LANDS AND SURROUNDING AREA DESCRIPTION

1.1.1 Subject Lands Description The Subject Lands are located on the south of Elgin Street West, municipally addressed as 1111 Elgin Street West (Figure 1). The Subject Lands are approximately 112,057 sq. m (27.69 acres) in size and has approximately 446 metres of lot frontage along Elgin Street West. The Subject Lands are currently occupied by the Northumberland Mall which consist of a variety of commercial retail uses including but not limited to a Metro Grocery Store, Rainbow Cinema, Dollarama and Staples. Furthermore, there are three free-standing buildings on the Subject Lands which include a Boston Pizza, LCBO and an A&W. The proposed development will be located east of the existing Boston Pizza where underutilized surface parking spaces currently exist. The Subject Lands are serviced by both Route 1 and Route 2 transit routes providing service every 30 minutes. These routes provide connectivity throughout the Town of Cobourg, including access to the Cobourg VIA Rail Station. The Subject Lands also abut an active transportation corridor in the form of a bicycle lane along Elgin Street West.

SCALE 1:4000 DATE: June 3, 2019

Data Source: First Base Solutions Aerial Flown 2016

1111 Elgin Street West,Cobourg, Ontario

LEGEND

Subject Lands

Figure 1

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Location Map

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Proposed Development Area

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1.1.2 Surrounding Area The surrounding land uses within the immediate area of the Subject Lands include: NORTH: Immediately north of the Subject Lands is Elgin Street West, a variety of automotive services

including vehicular sales and rental establishments, a variety of commercial and retail uses. Further north of the Subject Lands is agricultural lands. ;

EAST: Immediately east of the Subject Lands is a variety of retail, service and restaurant uses; SOUTH: Immediately south of the Subject Lands is residential uses consisting of semi-detached and

single detached dwellings and Westwood Park. WEST: Immediately west of the Subject Lands is Rogers Road and a variety of retail, service and

restaurant uses. Figure 2 of this report illustrates the surrounding land uses.

1.2 POLICY CONTEXT The following section provides an initial summary of the policy context for the Subject Lands and Proposed Development Area. A further, more detailed review of these policy documents are contained within Appendices A to D. The 2014 Provincial Policy Statement (“PPS”) and Growth Plan for the Greater Golden Horseshoe, 2019 (“Growth Plan”) are applicable to the Subject Lands. The Northumberland County Official Plan (“NCOP”) has identified the Subject Lands and Proposed Development Area being within the “Urban Area” and within the “Built Boundary” on Schedule A – Land Use (Figure 3). Urban Areas are to be planned in a manner for growth and their vitality and promote regeneration to create complete and healthy communities. The Subject Lands and Proposed Development Area front onto a “County Arterial Road” (Elgin Street West) as shown on Schedule C – Transportation (Figure 4). County Arterial Roads connect urban areas and rural settlement areas to Highway 401 with a right-of-way width up to 36.5 m. Elgin Street West has a right-of-way width of 44 m. In the Town of Cobourg Official Plan (“COP”), Schedule A - Land Use Plan (Figure 5), the Subject Lands and Proposed Development Area designated as “Shopping Node Area”. The Shopping Node Area designation is intended to apply to existing shopping areas that have a minimum gross floor area of 4,645 square metres. Intensification within existing shopping nodes is encouraged. Furthermore, the north-west corners of the Subject Lands at the intersection of Rogers Road and Elgin Street West is identified as a “Gateway Area” on Schedule B – Greenland System & Gateway Areas (Figure 6). The intent of Gateway Areas is to create major entrances to the Town by incorporating features such as landscaping and signage to emphasize the unique nature of the community. In addition, the Subject Lands and Proposed Development Area front onto an “Existing Arterial” road, an “Existing and Planned Pedestrian/Bicycle Path”, and a “Transit Route” as shown of Schedule E –

SCALE 1:10000 DATE: July 25, 2019


1111 Elgin Road West,Cobourg, Ontario

LEGEND

Subject Lands

Figure 2

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Context Map

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Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

Institutional

InstitutionalComm

ercial

Comm

ercial

Comm

ercial

Comm

ercial

Comm

ercial

Comm

ercial

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ercial

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ercial

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CentreCommunity

CentreCommunity

CentreCommunity

CentreCommunity

CentreCommunity

CentreCommunity

CentreCommunity

CentreCommunity

Centre

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Agricultural

Agricultural

Agricultural

Agricultural

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Commercial

Commercial

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SCALE 1:10000 DATE: July 25, 2019

Data Source: Northumberland County Official Plan- Schedule A Land Use (2016)


LEGEND

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Figure 3

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Northumberland

County Official Plan

Schedule A

Land Use

Urban Area

Agricultural Area

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Country Road/Arterial Road

Local Road

Highway 401 Interchange


Rural Settlement Area

Built Boundary County Boundary

Elgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street West

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SCALE 1:10000 DATE: July 25, 2019

Data Source: Northumberland County Official Plan- Schedule C Transportation (2016)

LEGEND

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Figure 4

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1111 Elgin Street West,

Cobourg, Ontario

Northumberland

County Official Plan

Schedule C

Transportation

Subject Lands

County Arterial Road


Local Arterial Road

Highway 401

Local Road

Highway 401 Interchange

County Boundary

Waterfront Trail

Urban Area

Elgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestElgin Street WestRogers R

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SCALE 1:5000 DATE: July 25, 2019

Data Source: Town of Cobourg Official Plan- Schedule 'A' Land Use Plan (2010)


LEGEND

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Town of Cobourg

Official Plan

Schedule 'A'

Land Use Plan

Major Institutional

Mixed Use Corridor Area

Park Area

Residential Area

Shopping Node Area

Secondary Plan Area

Built Boundary

Special Provision

Urban Settlement Area Boundary


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Figure 6

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Town of Cobourg

Official Plan

Schedule 'B'

Greenland System

& Gateway Areas

Gateway Area

Greenland System

Existing and Planned

Pedestrian/Bicycle Path

Linkage

Urban Settlement Area

Boundary


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Strathy Road

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Transportation Plan (Figure 7). These transit systems provide both vehicular and pedestrian connection to and from the Subject Lands. The Subject Lands are within the “Shopping Centre 1”, “Shopping Centre 2” and “Shopping Centre 3” zones (SC-1; SC-2; SC-3) in the Town of Cobourg Zoning By-law 85-2003 (Figure 8). However, the Proposed Development Area is only subject to the SC-1 zone. The SC-1 zoning category permits eating establishments, financial institutions as well as retail commercial uses, among other land uses. In 2007, two site specific amendments were approved for the subject lands, By-law 86-2007 and By-law 87-2007. The site specific amendments permit free standing buildings and a minimum parking rate for lands zones SC-1.

1.3 PROPOSED DEVELOPMENT The proposal is seeking a Zoning By-law Amendment (“ZBA”) for the proposed development on the Proposed Development Area. The amendment is required to permit an additional free standing building, as well as remove Schedule B-7 for the eastern portion of the Subject Lands as Schedule B-7 does not correctly reflect the existing condition of lands within the SC-1 zone. The proposal is for a one-storey multi-unit commercial building 929 sq. m (10,000 sq. ft.) in size. The proposed building consists of 6 units. The westerly unit will consist of a restaurant use, with a drive-through to the west of the unit; the easterly unit will consist of a financial institution use; and the three central units will allow for future commercial tenant opportunities. The proposed development will be located within the Subject Lands where underutilized surface parking currently exists on the site. The proposed commercial building will have frontage on Elgin Street West and the easterly entrance off of Elgin Street West at Strathy Road. Enhanced landscaping along the Elgin Street West frontage is proposed to provide an attractive presence for pedestrians and vehicular traffic. The Proposed Development Area will provide 21 parking spaces. As part of the development application the existing parking located in within the westerly limit of the Subject Lands will be realigned to provide additional parking for the remainder of the Subject Lands. The site plan, floor plans, elevations and renderings can be found in Appendix F. 1.3.1 Rationale for Zoning By-law Amendment The proposal is seeking a Zoning By-law Amendment (“ZBA”) to amend existing site specific provisions within the Town of Cobourg By-law 85-2003, By-law 86-2007 and By-law 87-2007. The proposed amendments will permit an additional freestanding building with a reduction in required parking, landscaping and setbacks. Furthermore, the proposed amendment will remove Schedule B-7 of Zoning By-law 85-2003 as it does not reflect the existing Northumberland Mall lands. The proposed amendment is supported by a Market Report prepared by Urban Metrics which justifies the increase in Gross Floor Area (GFA) on the Subject Lands. Section 2.5.1 of this report provides rationale for the proposed amendment. It is our opinion that the proposed amendment represents good planning and in the interest of the public.


Data Source: Town of Cobourg Official Plan- Schedule 'E' Transportation Plan (2010)

1111 Elgin Street WestCobourg, Ontario

LEGEND


nort

h

Town of Cobourg

Official Plan

Schedule 'E'

Transportation Plan

Existing Collector

Existing and Planned Pedestrian/Bicycle Path

Transit Routes

Secondary Plan Area

Urban Settlement Area Boundary

Proposed Collector


Existing Arterial

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Rogers R

oad

Strathy Road

Strathy Road

Strathy Road

Strathy Road

Strathy Road

Strathy Road

Strathy Road

Strathy Road

Strathy Road Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West

Elgin Street West


Data Source: The Corporation of the Town of Cobourg- Zoning By-Law No. 85-2003 Schedule A Map 8 (2004)

1111 Eglin Street West,Cobourg, Ontario

LEGEND


nort

h

The Corporation of

the Town of Cobourg

Zoning By-Law

No. 85-2003

Schedule A- Map 8

SC- Shopping Centre Commercial

R2- Residential 2

R3- Residential 3

R4- Multiple Residential 4

DC- District Commercial

OS- Open Space

D- Development

NR2- Neighbourhood Residential 2

NMU- Neighbourhood Mixed Use


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2.0

POLICY ANALYSIS The relevant planning policies have been analyzed to evaluate how the proposed Zoning By-law Amendment supports the intention and goals of Provincial, Regional and Local policy direction. The Provincial Policy Statement, Growth Plan for the Greater Golden Horseshoe, the Northumberland County Official Plan, and the Town of Cobourg Official Plan policies have been analyzed. The following sections provide a summary of the relevant policies and how they have been addressed. A detailed analysis for each policy documented can be found in Appendices A to D.

2.1 PROVINCIAL POLICY STATEMENT The 2014 Provincial Policy Statement (the “PPS”) was approved by the Ministry of Municipal Affairs and Housing on April 30th, 2014 and is applicable to the Town of Cobourg. The PPS provides general policy direction in matters relating to land use planning and development. The PPS outlines policy for Ontario’s long term prosperity, economic health and social well-being. These directives help to inform Municipalities’ Official Plans and Zoning By-laws, which then allow for the efficient use of lands and development patterns that support strong, livable and healthy communities that protect the environment and public health and safety, and facilitate economic growth. Building strong healthy communities is one of the key policy directives of the PPS as found in Section 1.0. It helps to inform the management and promotion of efficient development and land use patterns for accommodating an appropriate mix of residential, employment, institutional, recreation, park and open space uses and improving accessibility by removing land use barriers in order to create livable communities. The policies support the promotion of healthy, livable and safe communities through such matters as, intensification, land use compatibility, provision of housing, and the efficient use of public services and infrastructure. The policies in Section 1.6 deal with the efficient use of existing water, storm water, sanitary sewer, and transportation infrastructure. New developments are encouraged to utilize and support existing municipal infrastructure and support and enhance existing and planned transportation networks and corridors. Section 1.7 focuses on how to achieve and support long-term economic prosperity. The policies recognize that promoting redevelopment on underutilized lands can optimize the use of land, resources and infrastructure. Section 1.8 discusses the policies to support energy conservation through appropriate land use and development patterns.

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A full analysis of the relevant Provincial Policy Statements in relation to the proposed amendments can be found in Appendix A. In summary:

1. The proposed amendment will permit the development of the Subject Lands that support the financial well-being of the County and Town by providing a use which is compatible with the surrounding mix of land uses.

2. The proposed amendment will allow a compact built-form through infill development that efficiently utilizes existing infrastructure without requiring the uneconomical expansion of servicing.

3. The proposed development does not cause undue environmental or public health and safety concerns, and further contributes to a healthy, walkable community.

4. The proposed amendment will ensure that the Subject Lands and Proposed Development Area are developed in a manner which is compatible with and supportive of the adjacent residential, commercial and recreational uses. The proposed commercial uses will offer a diversified range of services to local residents and businesses in the Town of Cobourg.

5. The proposed development will permit a transit-supportive development which provides connectivity throughout Cobourg and other municipalities within the County.

6. The proposed development will comply with all applicable Provincial legislation, including the

Ontario Building Code and Accessibility for Ontarians with Disabilities Act (AODA). In our opinion the proposed Zoning By-law Amendment and the development it will permit is consistent with the PPS.

2.2 GROWTH PLAN FOR THE GREATER GOLDEN HORSESHOE

The Growth Plan for the Greater Golden Horseshoe (the “Growth Plan”) was approved by the Province of Ontario on June 16th, 2006 and amended May 19, 2019. The Growth Plan sets out policies to manage growth in the Greater Golden Horseshoe to achieve compact, complete communities in the future. Similar to the PPS, the objectives of the Growth Plan are to create complete, healthy and safe communities with a focus on intensification in settlement areas and optimizing the use of existing infrastructure. The policies within Section 2.2 of the Growth Plan speak to achieving these objectives. A full analysis of the relevant Growth Plan policies in relation to the proposed amendments can be found in Appendix B. In summary:

1. The proposed amendments will provide for intensification that will contribute to creating a complete community. The proposed compact built form of the commercial building is an efficient and appropriate utilization of land.

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2. The proposed development is compatible with surrounding land uses and will assist in meeting thedaily needs of local residents and commercial businesses.

3. The proposed amendments will permit the development of retail, service, restaurant and financialinstitution operations which will result in the efficient use of the Subject Lands and ProposedDevelopment Area and available infrastructure.

4. The proposed development will permit a transit-supportive development being on local busservices connecting to the Town’s broader transit system.

In our opinion, the proposed Zoning By-law Amendment and the development it will permit conforms to the Growth Plan.

2.3 NORTHUMBERLAND COUNTY OFFICIAL PLAN The Northumberland County Official Plan (“NCOP”) was approved by the Ontario Municipal Board on November 23, 2016. The purpose of the County Official Plan is to provide a policy basis for managing growth within the County.

The Northumberland County Official Plan (“NCOP”) has identified the Subject Lands and Proposed Development Area as being within the “Urban Area” and within the “Built Boundary” on Schedule A – Land Use (Figure 3).

Section C1 of NCOP directs growth towards the Urban Areas to contribute to the creation of complete communities. Urban Areas consist of established market places, residential neighbourhoods, services and cultural and recreational opportunities. Urban Areas should be planned to support communities that are compact, well-designed and lively to be socially inclusive, environmentally sustainable, and economically vibrant. Urban Areas, as per Section B2 of NCOP, aims to accommodate a significant portion of the planned population and employment growth in the County.

Furthermore, The Subject Lands and Proposed Development Area front onto a “County Arterial Road” (Elgin Street West) as shown on Schedule C – Transportation (Figure 4).

Section E2 of NCOP provides objectives to facilitate safe and efficient movement of people and goods within the County’s communities. County Arterial Roads connect urban areas and rural settlement areas to promote public transit, cycling and walking as alternative forms of travel. Country Arterial Roads also protect transportation corridors to facilitate transportation systems that support existing and future land uses.

A full analysis of the relevant Northumberland County Official Plan policies in relation to the proposed development can be found in Appendix C. In summary:

1. The proposed development conforms to the policies set out in the NCOP for Urban and Built-UpAreas as the proposed multi-unit commercial building is an efficient and cost-effective use of landand existing infrastructure.

2. The proposed amendment will diversify the range of available services to the local community. Theproposed uses are compatible with surrounding land uses and will be accessible to local residentsand employees in the surrounding area.

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3. The proposed development will be a transit-supportive development that will support theincreased utilization of public transit.

4. The proposed development permitted by the amendment will support a vibrant urban area due toits proximity to a range of commercial and residential opportunities within the Urban Area.

5. The proposed development will be of high quality in built form and landscape design.

In our opinion, the proposed Zoning By-law Amendment and the development it will permit conforms to the RWOP.

2.4 TOWN OF COBOURG OFFICIAL PLAN The Town of Cobourg Official Plan (“COP”) was adopted by the Cobourg Municipal Council and approved by the Ministry of Municipal Affairs and Housing in 2010. However, the COP was subject to appeal to the Ontario Municipal Board. In May 2017, the COP was approved by the Ontario Municipal Board and is now in-effect.

In the COP, Schedule A - Land Use Plan (Figure 5), shows the Subject Lands and Proposed Development Area designated as “Shopping Node Area”.

Section 14.3.4 of COP provides specific land use policies for lands designated as Shopping Node Area. The purpose of the Shopping Node Area provide commercial opportunities along Strathy Road and Eglin Street West to provide focus to the Northumberland Mall. Permitted uses include but not limited to commercial, office, institutional, hotels and conference centres. Intensification is encourage within existing shopping nodes.

Furthermore, the north-west corner of the Subject Lands at the intersection of Rogers Road and Elgin Street West is identified as a “Gateway Area” on Schedule B – Greenland System & Gateway Areas (Figure 6). Section 5.3 of COP states the intent of Gateway Areas is to create major entrances to the Town by incorporating features such as landscaping and signage to emphasize the unique nature of the community.

In addition, the Subject Lands and Proposed Development Area front onto an “Existing Arterial” road, an “Existing and Planned Pedestrian/Bicycle Path”, and a “Transit Route” as shown of Schedule E – Transportation Plan (Figure 7). These transit systems provide both vehicular and pedestrian connection to and from the Subject Lands as set out in Section 6 of COP.

Overall, the proposed development will assist in achieving the Town’s Built Boundary employment targets as outlined in Section 3.2.3. Further, as per Section 3.8.3.3, the infill development conforms to the intensification policies for Shopping Node Areas and the site specific design guidelines in Section 3.8.4.2.2.

An analysis of the relevant of Town of Cobourg Official Plan policies in relation to the proposed development can be found in Appendix D. In summary:

1. The proposed development allows for the intensification of built-form in an existing shopping node,and be developed to provide a compact built-form that is consistent with the policies for ShoppingNode Areas.

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2. The proposed amendment will allow for an eating establishment, financial institution andcommercial uses which will be complementary to and compatible with the existing adjacentcommercial and residential uses.

3. The proposed amendments conform to the policies set out in the COP for development in Built-UpArea as the proposal will encourage a more efficient and cost-effective use of existing land andinfrastructure. The proposed development will meet municipal infrastructure and transportationpolicies of the COP.

4. The proposed development will permit a transit-supportive development connecting to local busservices and Cobourg’s VIA Rail Station.

5. The proposed development will provide high quality landscaping and architecture thatcomplement the surrounding area and help create a sense of place and an attractive public realm.

In our opinion, Zoning By-law Amendment and the development it will permit conforms to the policy direction of the Town of Cobourg Official Plan.

2.5 TOWN OF COBOURG ZONING BY-LAW 85-2003 The Subject Lands are within the “Shopping Centre 1”, “Shopping Centre 2” and “Shopping Centre 3” zones (SC-1; SC-2; SC-3) in the Town of Cobourg Zoning By-law 85-2003 (Figure 8). However, the Proposed Development Area is only subject to the SC-1 zone. The SC-1 zoning category permits eating establishments, financial institutions as well as retail commercial uses, among other land uses.

Furthermore, the subject lands are subject to a site specific amendments by-law 86-2007 and by-law 87-2007 which apply to lands identified on Schedule B-7 and zoned SC-1. In 2007, two site specific amendments were approved for the subject lands which amended By-law 85-2003. Site specific by-law 086-2007 amended by-law 85-2003 permit free standing buildings and a minimum parking rate for lands within the SC-1.

The proposed uses are permitted on the Subject Lands and Proposed Development Area, however a Zoning By-law Amendment is required to modify zoning regulations to accommodate the building on the north-easterly portion of the property. Relief is required from the following regulations:

• Update the definition of Lot Frontage;• Recognize existing and proposed buildings within the SC-1 zone; • Update the permitted entrance location; • Update required Parking and Loading standards.

Furthermore, the amendment will remove “Schedule B-7” as the current schedule is out of date and does not correctly reflect the existing condition.

A draft of the zoning by-law to amend the Town of Cobourg Zoning By-law 85-2003 is included as Appendix E of this Report.

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2.5.1 Rationale for the Proposed Amendments

The proposed amendment is appropriate for the Subject Lands as they implement many of the Town of Cobourg Official Plan polices as established earlier in this Report. In addition:

• The removal of Schedule B-7 will bring the entire SC-1 Zone into conformity to the existing and proposed building footprints for the entire site;

• The proposed amendment modifies the parking requires that are more in keeping with the current parking demand of the overall Shopping Centre, thereby promoting infill on underutilized lands.

• The proposed amendment adds new commercial opportunities that are supported by a Market Study prepared by Urban Metrics.

Based on the above, we believe the proposed amendment to Town of Cobourg Zoning By-law 85-2003 as amended is in the public interest and represents good planning.

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3.0SUMMARY AND CONCLUSIONSMHBC has prepared this planning justification report in support of amendments to the Town of Coburg Zoning By-law 85-2003 as amended to permit a one-storey multi-unit commercial building on the Subject Lands.

The proposed vision for the Subject Lands and Proposed Development Area contemplates a low-density commercial building to support the existing commercial and residential uses within community. The redevelopment of the Subject Lands and Proposed Development Area will allow for an appropriately designed commercial building intensifying an underutilized parking lot which implements the vision being established by the Provincial and Local policies.

The proposal meets the intent of provincial planning policies, including the PPS and the Growth Plan, as well as the County Official Plan. Specifically, the proposed development will contribute to the planning goals of creating a complete community, intensification of built-form, and sensitive to the existing context of surrounding land uses.

Furthermore, in our opinion, the proposed development conforms to the Town of Cobourg “Shopping Node Area” designation as it provides additional local commercial services to the greater community and meets design criteria within the Town Official Plan. The proposed development meets the Town Official Plan policies as it will assist the Town meeting intensification objectives within this area.

In summary, in our professional planning opinion the proposed amendment to permit the proposed development is in the public interest and represents good planning for the following reasons:

1. The proposed amendment and proposed development are consistent with the relevantdevelopment, planning and environmental protection policies of the Provincial Policy Statement.

2. The proposed amendment and proposed development are in keeping with the relevantintensification, development, infrastructure and environmental protection policies of the GrowthPlan for the Greater Golden Horseshoe.

3. The proposed amendment and proposed development conform to the policies of theNorthumberland County Official Plan.

4. The proposed amendment and proposed development conform to the policies of the Town ofCobourg Official Plan.

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5. The proposed amendment will permit a development which is designed at a high level of quality,implementing the urban design policies and guidelines of the Town of Cobourg, as reflected in theUrban Design Brief prepared by MHBC under separate cover.

6. The proposed development will optimize the existing municipal infrastructure, including municipalwater and sewage services, utilities, roads and public transit in a compact built-form.

7. The proposed development provides a transit-supportive form that is in proximity to local busservices.

For the above reasons, we respectfully recommend that the proposed Zoning By-law Amendment as contained in Appendix E be approved.

Yours truly,

MHBC

Eldon Theodore, BES, MUDS, MLAI, MCIP, RPP Celeste Salvagna, B.U.R.Pl Partner & Urban Designer Senior Planner

Kenneth Scullion, B.U.R.Pl Planner

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APPENDIX A: PROVINCIAL POLICY ANALYSIS

The Provincial Policy Statement, 2014 (“PPS”) was approved by the Ministry of Municipal Affairs and Housing on April 30, 2014 and functions as the policy foundation for regulating the development and use of land in Ontario. The PPS is applicable to the master plan area and the development site. The PPS aims to facilitate the construction of healthy, livable, safe communities by encouraging efficient use of land, resources, and infrastructure that in turn contribute to citizens’ wellbeing, economic vitality, and environmental protection. The following is a summary of policies within the PPS applicable to the proposal and how the proposal responds to those policies. The following is an analysis of the proposed Zoning By-law Amendment in relation to the 2014 Provincial Policy Statement. Within Section 1.0 Building Strong and Healthy Communities, Policy 1.1, Subsection 1.1.1, describes how healthy, livable and safe communities are sustained. The following is a review of the relevant policies and how the proposed amendment address them. Policy 1.1.1 of the PPS states that healthy, liveable, and safe communities are sustained by: a) promoting efficient development and land use patterns which sustain the financial well-being of the Province

and municipalities over the long term; c) avoiding development and land use patterns which may cause environmental or public health and safety

concerns; d) avoiding development and land use patterns that would prevent the efficient expansion of settlement areas

in those areas which are adjacent or close to settlement areas; e) promoting cost-effective development patterns and standards to minimize land consumption and servicing

costs; f) improving accessibility for persons with disabilities and older persons by identifying, preventing and removing

land use barriers which restrict their full participation in society; and g) ensuring that necessary infrastructure, electricity generation facilities and transmission and distribution

systems, and public service facilities are or will be available to meet current and projected needs. Evaluation: The proposed redevelopment contributes to a healthy, liveable, and safe community in the following way:

• The proposed development will develop on underutilized lands in a designated settlement area, no expansion to the existing settlement area is required to accommodate the proposal.

• The proposed redevelopment will contribute to the mix and range of employment/commercial uses within the shopping centre area of the Town, which currently consists of predominately low-rise commercial units. The proposed infill will further enhance an identified gateway in the Town by urbanising the existing streetscape.

• The proposed development will have no adverse affects on the environment, public health or safety, or prevent the efficient expansion settlement areas.

• The proposed development will be fully accessible and meet the needs of all patrons of the commercial and financial institutional uses.

• The proposed development takes advantage of existing infrastructure within the built-up area, reducing land consumption and servicing costs.

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• The proposed building will be constructed in accordance with the Ontario Building Code, AODAand all required accessible standards.

Policy 1.1.2 of the PPS states that intensification and redevelopment of designated growth areas are intended to accommodate for a range and mix of employment and housing opportunities and other land uses to meet the needs for the time horizon of up to 20 years.

Evaluation: The proposed development intends to develop underutilized lands to provide restaurant, financial institution and other commercial uses providing a greater range of local commercial opportunities in the Town.

Policy 1.1.3.1 promotes located growth and development within settlement areas, additionally Policy 1.1.3.2 of the PPS states that land use patterns within settlement areas shall be based on:

a) densities and a mix of land uses which:1. efficiently use land and resources;2. are appropriate for and efficiently use the infrastructure and public service facilities which are planned

or available, and avoid the need for their unjustified and/or uneconomical expansion; 3. minimize negative impacts to air quality and climate change, and promote energy efficiency;4. support active transportation; and 5. are transit-supportive, where transit is planned, exists, or may be developed

b) A range of uses and opportunities for intensification and redevelopment in accordance with the criteria inpolicy 1.1.3.3, where this can be accommodated.

Evaluation: The proposal is situated within the settlement area of the Town of Cobourg. The proposal supports the policies of 1.1.3.2 as the infill will intensify the existing shopping centre through infill development. The proposal is within an area that is serviced by existing and planning infrastructure with access to two bus routes located on site, including the Downtown Terminus which will assist in promoting public transportation opportunities. The intensification of the development site provides opportunities to reduce negative impacts of climate change by promoting active transportation through proximity to public transportation, and pedestrian and bicycle friendly environment that encourages walking and cycling. The proposal provides a range of uses through intensifying an existing development that includes restaurant, financial institutional and space for other uses.

Policy 1.1.3.3 of the PPS states planning authorities are directed to identify appropriate locations and promote opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites, and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs.

Evaluation: The Town of Cobourg encourages the intensification of existing shopping centre areas. Municipal services exist in the vicinity, making the lands readily available to accommodate development that will support growth and employment projections into the future. The proposed development on a currently underutilized portion of existing surface parking and is appropriate and supports the intent of the policy and contributes to the optimum utilization of existing infrastructure.

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Policy 1.1.3.4 of the PPS states that appropriate development standards should be promoted which facilitate intensification, redevelopment, and compact form, while maintaining appropriate levels of public health and safety.

Evaluation: The proposed development will promote intensification and the redevelopment of the Subject Lands by providing a compact built form which represents efficient development of the lands. The proposal will not results in any adverse effects on public health or safety.

Policy 1.1.3.6 of the PPS encourages development to take place in designated growth areas to have a compact form, mix of uses and densities that allow for the efficient use of land, infrastructure and public service facilities.

Evaluation: The proposal is within the existing built-up area and will have a compact built form with a mix of non-residential uses that will efficiently utilize existing infrastructure.

Policy 1.6.7.2 of the PPS states that efficient use shall be made of existing and planned transportation infrastructure.

Evaluation: The proposed development is accessible by Cobourg’s public transit infrastructure and fronts onto an arterial right-of-way and public sidewalks, therefore efficiently using existing and planned transportation infrastructure.

Policy 1.7.1 of the PPS states the long-term economic prosperity should be supported by:

a) promoting opportunities for economic development and community investment-readiness; b) optimizing the long-term availability and use of land, resources, infrastructure, electricity generation

facilities and transmission and distribution systems, and public service facilities; c) maintaining and, where possible, enhancing the vitality and viability of downtowns and mainstreets; d) encouraging a sense of place, by promoting well-designed built form and cultural planning, and by

conserving features that help define character, including built heritage resources and cultural heritagelandscapes.

Evaluation: The proposal promotes opportunities for economic development by introducing additional non-residential uses for economic development through job creation within the Shopping Node Area designation. The proposed non-residential uses will be complementary to the surrounding existing commercial non-residential land uses, and utilize existing infrastructure available for the site taking advantage of infrastructure investments. The location of the built form will promote a sense of place along Elgin Street West, an identified Count Arterial Road, by urbanizing and animating the existing public realm. Overall the proposal promotes the long-term economic prosperity of the County and Town.

Policy 1.8.1 describes how Planning authorities shall support energy conservation and efficiency, improved air quality, reduced greenhouse gas emissions, and climate change adaptation through land use and development patterns which:

a) promote compact form and a structure of nodes and corridors;b) promote the use of active transportation and transit in and between residential, employment (including

commercial and industrial) and institutional uses and other areas; c) improve the mix of employment and housing uses to shorten commute journeys and decrease

transportation congestion; d) promote design and orientation which:

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i. maximizes energy efficiency and conservation, and considers the mitigating effects ofvegetation; and

ii. maximizes opportunities for the use of renewable energy systems and alternative energy systems; and

g) maximize vegetation within settlement areas, where feasible.

Evaluation: The proposed building represents an efficient use of the Subject Lands and will be of acompact built form, making use of the existing infrastructure at an appropriate. The Subject Landsare currently serviced by two existing transit stops located on site, including the DowntownTerminus. The proposed building will provide bicycle parking for visitors and employees to reinforce the objective of providing opportunities for active transportation. The proposal will take advantageof existing facilities connecting the proposal with the surrounding commercial uses. The proposedlocation will optimize and improve the public realm by locating the new building adjacent to theexisting intersection of Elgin Street West and the driveway. This location will assist in promotingwalkable connections to the proposed development to the existing public sidewalk. Lastly, energyefficiency requirements of the Town and Province will be encouraged to maximize energy efficiency and conservation.

Based on the above, it is concluded that the proposal as facilitated by the Zoning By-law Amendment is consistent with the policies of the Provincial Policy Statement.

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APPENDIX B: GROWTH PLAN ANALYSIS

The Growth Plan for the Greater Golden Horseshoe (“Growth Plan”), as amended on May 16, 2019, is applicable the Subject Lands. The management of growth in existing areas, and where it should be taking place, is guided through the Growth Plan as it recognizes the importance of intensification and the way municipalities plan that growth. An analysis of the Growth Plan policies has been conducted to demonstrate that the proposed Zoning By-law Amendment application is in keeping with the direction of and thus conformity with the Growth Plan policies. The following is a summary of the policies applicable to the proposed development. Policy 2.2.1.1 provides that the forecasted population and employment growth identified within the Growth Plan will be used for planning and managing growth in the Greater Golden Horseshoe (“GGH”) to the horizon of this Plan.

Evaluation: The proposed amendment will permit the development of a range of non-residential land uses which will assist in creating new jobs, thereby assisting the Town in achieving the planned employment growth.

Policy 2.2.1.2 directs that the forecasted growth should be allocated based on the following priorities:

a) the vast majority of growth will be directed to settlement areas that: i. have a delineated built boundary; ii. have existing or planned municipal water and wastewater systems; and iii. can support the achievement of complete communities;

c) within settlement areas, growth will be focused in: i. delineated built-up areas; ii. strategic growth areas; iii. locations with existing or planned transit, with a priority on higher order transit where it exists or

is planned; and iv. areas with existing or planned public service facilities;

d) development will be directed to settlement areas, except where the policies of this Plan permit otherwise; e) development will be generally directed away from hazardous lands;

. Evaluation: The proposal supports the Growth Plan’s intensification directives by: • adding new commercial units within the Town of Cobourg’s urban boundary that will utilize

existing public infrastructure; • promoting reinvestment of an existing greyfield site through intensification of an underutilized

portion of a site; • providing an infill development in proximity to existing public transit routes; • providing additional commercial uses within the settlement area that supports the

achievement of complete communities; and, • directs development away from hazardous lands.

Policy 2.2.1.4 states that applying the policies of this Plan will support the achievement of complete communities that:

a) feature a diverse mix of land uses, including residential and employment uses, and convenient access to local stores, services, and public service facilities;

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b) improve social equity and overall quality of life, including human health, for people of all ages, abilities, and incomes;

c) expand convenient access to: i. a range of transportation options, including options for the safe, comfortable and convenient use of active transportation;

d) expand convenient access to: a. a range of transportation options, including options for the safe, comfortable and convenient

use of active transportation; b. public service facilities, co-located and integrated in community hubs; c. an appropriate supply of safe, publicly-accessible open spaces, parks, trails, and other

recreational facilities; and, d. healthy, local, and affordable food options, including through urban agriculture;

e) ensure the development of high-quality compact built form, an attractive and vibrant public realm, including public open spaces, through site design and urban design standards;

f) mitigate and adapt to climate change impacts, build resilience, reduce greenhouse gas emissions, and contribute towards the achievement of low-carbon communities; and

g) integrate green infrastructure and low impact development.

Evaluation: The proposed development will contribute to achieving complete community by: • providing for a new commercial uses that will be convenient and accessible to existing

residential neighbourhoods and area businesses within the surrounding area; • providing a diverse range of retail/commercial land uses at various unit sizes to accommodate

a mixture of tenants • Diversify the range of commercial uses and service that promote a high-quality of life for

residents in adjacent neighbourhoods; • proposing a high-quality public and private realm with visual interest, and a framework that will

achieve an attractive and vibrant public realm; • Reducing the demand for vehicles through proximity to transit options, active transportation

infrastructure and reduction in surface parking area which will effectively reduce greenhouse gas emissions; and,

• Incorporating low impact development standards of design into the proposal where feasible. Based on the above analysis, it is concluded that the proposed amendment and the proposal is in keeping with the applicable policies of the Growth Plan.

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APPENDIX C: NORTHUMBERLAND COUNTY OFFICIAL PLAN The Northumberland County Official Plan (“NCOP”) was approved by the Ontario Municipal Board on November 23, 2016. The purposed of this Official Plan is to provide a policy basis for managing growth within the County. Section A2 of the NCOP outlines the guiding principles that establish the basis for making land use planning decisions. The applicable principles are as follows:

2. To provide opportunities for economic development in both urban and rural areas in a manner that fosters competitiveness and a positive and attractive business environment.

3. To direct most forms of development to urban areas where full services are available and to support the efficient use of land and infrastructure to meet the needs of present and future residents and businesses and ensure that an adequate supply of land and housing choices are available for present and future residents.

4. To protect and enhance the character of existing urban areas and rural settlement areas, and to maintain them as diverse, livable, safe, thriving and attractive communities.

Evaluation: The proposal supports the NCOP’s guiding principles by: • Providing commercial uses that will foster competitiveness and support economic development of

the Town; adding new commercial units within the Town of Cobourg’s urban boundary will utilize existing public infrastructure;

• providing a convenient, comfortable and safe environment that will serve all components of the population; and,

• maintaining and enhancing the shopping centre’s character to enhance the Town’s attractive character.

Section B2 states that a minimum of 80% of expected population and employment in the planning period is expected to occur in the six urban areas in the County as shown on Tables A and B. More specifically, Table B states that there is a target of 1,772 new jobs within the Town between 2011 and 2034.

Evaluation: The proposed development will contribute to achieving the 1,772 new jobs by providing additional commercial opportunities within the Town of Cobourg between 2011 and 2034.

Section B8.1.a) states that planning for sewage and water services shall:

i. Direct and accommodate expected growth or development in a manner that promotes the efficient use and optimization of existing: 1. Municipal sewage services and municipal water services; and

ii. Ensure that these systems are provided in a manner that: 1. Can be sustained by the water resources upon which such services rely; 2. Is feasible, financially viable and complies with all regulatory requirements; and 3. Protects human health and the natural environment;

iii. Promote water conservation and water use efficiency; iv. Integrate servicing and land use considerations at all stages of the planning process; and v. Be in accordance with the servicing hierarchy outlined through Sections B8.1 b), B8.1 c) and B14.

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a) Municipal sewage services and municipal water services are the preferred form of servicing for settlement areas. Intensification and redevelopment within settlement areas on existing municipal sewage services and municipal water services should be promoted, wherever feasible.

Evaluation: The proposal will utilize existing municipal servicing infrastructure, therefore promoting efficient use of infrastructure and services.

Section C1.1 states that the County encourages urban areas to become complete communities where there is:

a) A strong live/work ratio, where the majority of residents are employed in the community in which they live; b) Choice in the market place, in terms of obtaining goods and services;

Evaluation: The proposed development will promote a range of commercial services in close proximity to existing residential areas, supporting a live/work environmental while providing a greater range of choice in the marketplace. This is confirmed by a Market Study prepared by Urban Metrics.

Section C1.2.2 of the NCOP outlines the commercial area objectives for urban areas in Northhumberland County. The following are the applicable objectives for commercial development in urban areas:

a) Encourage commercial development that will provide a full range of goods and services, at appropriate locations, to meet the needs of the County's residents, employees and businesses;

b) Encourage and promote development that combines commercial, residential and other land uses to facilitate the more efficient use of urban land and the establishment of a pedestrian environment;

c) Promote the efficient use of existing and planned infrastructure by creating the opportunity for various forms of commercial and residential intensification, where appropriate;

d) Encourage the protection of existing commercial areas to ensure that their function as neighbourhood and community gathering places is retained;

e) Encourage the continued revitalization of traditional and emerging main street areas which reflects their heritage significance and which promotes a mix of uses and attractions for retail, other community uses and activities, and tourism; and,

f) Encourage good urban design to improve the aesthetic quality of retail corridors in the County to ensure that they function as attractive destinations for shoppers from the County and the surrounding area.

Evaluation: The proposal supports the general provisions for urban areas by: • providing additional commercial opportunities to residents and employees and contribute to the

existing business within a community. • promoting an appropriate built-form for the proposed commercial uses that will retain the existing

character of the existing commercial neighbourhood. This built-form will also strengthen the streetscape at Elgin Street West to promote a main street type environment.

• providing high quality architecture and landscaping to create an attractive shopping environment. Section C1.4 of the NCOP states that a full range of uses is permitted within urban areas in accordance with local Official Plan policies and land use designations.

Evaluation: The proposed additional commercial uses are permitted within the Shopping Node Area designation as outlined within the Town of Cobourg Official Plan..

Section E2.1.k) encourages the efficient use of land along transportation corridors to maximize the use of public transit.

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Evaluation: The proposed development area fronts onto the Elgin Street West right-of-way which currently has active transportation infrastructure.

Based on the above, it is concluded that the proposal as facilitated by the Zoning By-law Amendment conforms to the policies of the Northumberland County Official Plan.

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APPENDIX D: THE TOWN OF COBOURG OFFICIAL PLAN The Town of Cobourg Official Plan (“COP”) was adopted by the Cobourg Municipal Council and approved by the Ministry of Municipal Affairs and Housing in 2010. However, the COP was subject to appeal to the Ontario Municipal Board. In May 2017, the COP was approved by the Ontario Municipal Board and is now in-effect.

Section 2 of the COP outlines Vision Principles for the Town and the objectives to execute these visions. These are as follows:

Policy 2.2 states Cobourg is a Regional Centre for Northumberland County and its position as a strong, liveable and healthy community providing a full range of opportunities to live, work, play and shop within the Town will be reinforced through:

ii. an emphasis on sustainable, accessible and compact development, particularly transit supportive, mixed use built form along its main streets, which will enable Cobourg to enhance its function as a vibrant, environmentally aware urban centre; and,

iv. a mix of employment uses, including innovative employment opportunities, which will promote Cobourg’s role as a major employment centre in Northumberland County.

Evaluation: The proposed development will be compact, transit supportive and provide a greater range of commercial opportunities for Northumberland County.

Policy 2.5 states decisions made with respect to the future of the Town of Cobourg will reflect the need to maintain a healthy and economically viable community. The applicable objectives to achieve this vision statement are:

i. To foster an economic climate and community structure that supports the viability of existing businesses and encourages the location of new employment opportunities in the community;

iii. To provide for a range of commercial facilities to serve the residents of the Town and the surrounding area; vii. To ensure that all changes to the community promote safety and security through the use of appropriate

design strategies; viii. To encourage accessibility for pedestrian, bicycle and other active transportation modes throughout the

community; x. To minimize or prevent conflict between sensitive development and potentially incompatible industrial,

commercial and institutional land uses;

Evaluation: The proposal supports Cobourg’s economic objective policies by:

i. Supporting existing businesses by providing additional commercial opportunities within an identified gateway area;

• Utilizing existing infrastructure and services provided on Elgin Street West; • Promotes active transportation and transit ridership by locating additional commercial

opportunities in proximity to existing transportation routes; • Introducing a design that will not compromise the safety and security of the area; and, • Promoting a compact built form and uses that will achieve compatibility with the surrounding

context.

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Policy 2.7, states that the Town’s approach to community and site design is based on the following:

ii. The interconnected street network will foster compact, walkable neighbourhoods. Compact development will be encouraged in the design of vacant or underutilized parcels of land. A mixture of uses andappropriately scaled building forms will contribute to an active streetscape and increased densities in the community.

iii. Active transportation will promote the priority of pedestrian, cyclists and transit over vehicles through the design of streets and their boulevards.

iv. The Town will actively encourage development which is designed based on the principles of sustainability to reduce the consumption of energy, land and other non-renewable resources; minimize the waste ofmaterials, water and other limited resources; create a liveable, healthy and productive environment; andreduce greenhouse gas emissions.

Evaluation: The proposal will have a compact built-form that will contribute to an attractive,walkable streetscape through aesthetic architectural design and landscaping. Further, the proposalseeks to develop underutilized parking spaces that will efficiently utlilze existing services andprovide additional commercial opportunities. The proposed location of the infill developmentabutting Elgin Street West to the north will encourage the use of public transportation and activemodes of transportation as the proposal will connect to existing municipal sidewalks withconnections to existing bus routes, thus contributing to a reduction of greenhouse gas emissions.

Policy 3.7.5 states evaluating applications for new anchor uses outside the Main Central Area which require an Official Plan and/or zoning by-law amendment, or the relocation of such existing anchor uses which are in the Main Central Area to lands outside the Main Central Area, or the establishment of a second anchor store outside the Main Central Area, shall retain their own specialist market, design and other required consultants at the expense of the applicant. In particular, the Town will satisfy itself that every effort has been made to establish or maintain the use in the Main Central Area, including the use of a non-standard building or building design, and/or the establishment of a satellite operation in the Main Central Area, recognizing the potential benefits to the community of intensification and infill, as well as the benefits to be derived from locating new anchor uses in the Main Central Area or retaining existing anchor uses in the Main Central Area, all of which contribute to the long term economic prosperity of the community by maintaining and enhancing the vitality and viability of the Main Central Area in conformity with Provincial policy.

Evaluation: As per the Market Study prepared by urbanMetrics inc. no impact will be created by the proposed development on the viability of established commercial areas within the community, and particularly the Main Central Area. The commercial uses proposed will support local businesses and enhance the range of retail uses and services available to local employees and employers located in the vicinity of Northumberland Mall.

Policy 3.8.1 states that the purpose of the Shopping Node Area designation is intended to apply to existing shopping areas which are anchored by one or more centres with a minimum gross floor area of 4,645 square metres (50,000 sq. ft.) and are comprised of shopping centres or other facilities which have been planned, developed and managed as a unit.

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Evaluation: The Subject Lands and Proposed Development Area will maintain compatibility by ensuring consistency through similar materials and design with the existing Northumberland Mall, to read as one site. The Subject Lands are owned by one entity and will continue to be managed as one unit.

Policy 3.8.2 states that the following are the permitted uses within the Shopping Node Area designation:

i. commercial including department stores and supermarkets;ii. office;iii. institutional;iv. parks and recreation;v. high density residential.

Evaluation: The proposed development will consist of commercial and institutional uses, and aretherefore permitted uses

Policy 3.8.3.3 of the COP states that the intensification of existing Shopping Nodes will be encouraged, in particular the introduction of mixed use development and high density residential uses through the redevelopment of existing buildings and parking lots. New development shall conform with all the policies of this section:

i. the new buildings should be designed and located to assist in the creation of an attractive streetscapeappearance and, with no parking between the buildings and the street;

iii. minimum height of two full storeys, however, the Town may consider a minimum height of 6 metreswhere limited development of parking lots is proposed where such development will not limit futureintensification proposals, and maximum height six storeys;

iv. a minimum floor space index of generally in the order of 0.3 and maximum floor space index of 2.0provided that the Town may consider a reduction in the minimum density on specific sites for the initialphase of development where the approved development plan provides for the achievement of theminimum density; and,

v. Council may by by-law reduce the parking requirements in the Zoning By-law for a mixed usedevelopment in accordance with a parking analysis as set out in Section 3.7.7 iv).

Evaluation: The proposal conforms to the intensification of Shopping Node Areas by:

• The built form and landscaping will contribute to an attractive built-form and streetscape bylocating the proposed building adjacent to Elgin Street West, thereby animating the publicrealm

• The proposal consists of a one-storey non-residential multi-unit building that will be perceivedas a two-storey building due to the increased ground floor height, thereby achieving the intentof this policy;

• The proposed infill development will increase the overall site density to 0.38 FSI, therebymeeting the minimum requirement of 0.3 FSI;

• The proposed amendment seeks to permit a parking reduction to permit 21 spaces for theProposed Development site that maintains adequate parking rates as supported by the ParkingJustification Report.

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Furthermore, a detailed Market Study prepared by urbanMetrics inc. has been prepared in support of this application which provided detailed analysis of the proposed uses for the Subject Lands.

Policy 3.8.4.2.1 of the COP outlines the permitted uses for lands on the South Side of Elgin Street West, West of William Street/Jubilee Gateway Park, North of Victoria Place Shopping Centre. These include all uses outlines in Section 3.8.2.

Evaluation: The proposed uses conform to the permitted uses outlined in Section 3.8.2.

Policy 3.8.4.2.2 outlines urban design guidelines specific for the development of the Subject Lands, in addition to the urban design guidelines in Section 5.

Evaluation: The site-specific guidelines have been evaluated and justified in the Urban Design Brief completed by MHBC under separate cover.

Policy 4.8.2 states the town will encourage development designed to:

i. Reduce the consumption of energy, land and other non-renewable resources including support for energy efficient building and opportunities for co-generation;

ii. Minimize the waste of materials, water and other limited resources; iii. Create livable, healthy and productive environments; iv. Reduce greenhouse gases, and, v. Enhance biodiversity, ecological function, and the natural heritage system, including the provision

of wildlife habitat and linkages.

Evaluation: The proposed development will provide a high standard of development through material considerations, landscape elements and a range of sustainable initiatives. The proposal represents an infill development on an existing underutilized parking lot fronting along a major arterial road that will contribute to the Town’s vision for sustainable development and promoting better use of land resource and energy efficiency. A detailed analysis of the properties sustainability is provided in the Urban Design Brief prepared by MHBC Planning.

Policy 5.2.1 - 5.2.10 outlines the urban design policies for the Town of Cobourg.

Evaluation: The urban design policies for the proposed development will be evaluated and justified in the Urban Design Brief completed by MHBC Planning.

Policy 5.3 outlines gateway areas, specifically development in these areas shall generally conform to the following:

a) buildings and structures shall incorporate architectural, landscaping or other features which emphasize the unique nature of the community;

b) buildings or structures are sited and massed toward the major intersection; and,

c) parking areas shall be at the rear or side of buildings.

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ii) The Town shall incorporate features such as landscaping and signage in the road allowance to clearly identify gateway areas.

Evaluation: The proposed infill development conforms to the above noted gateway policies by locating the proposed units towards the main intersection of Elgin Street West and the mall drive aisle, to promote an animated public realm. Proposed parking spaces will be located in the rear and side yards, thereby meeting the intent of this policy. Specific details related to the built form and site design have been address in the Urban Design Brief submitted in support of the proposed amendment.

Moreover, Policy 6.6.1 outlines policies for general parking requirements for all new development. These are as follows:

a) adequate off-street vehicular parking and loading facilities be provided which are planned and engineered to allow access to all parking spaces;

b) ingress and egress to parking and loading areas be limited in number and designed to acceptable standards for traffic safety; and,

c) access points on arterial and collector roads be shared by adjoining land uses, where practicable, to minimize traffic hazards.

Evaluation: Existing access points to the Subject Lands will be maintained from Elgin Street West to the north, while access to the Proposed Development Area will be facilitated through internal driveways. The proposed development as facilitated through the proposed Amendment will provide sufficient off-street parking and loading facilities. The proposed parking reduction will maintain adequate parking spaces, while promoting intensification. The proposed infill development will consist of one loading space on site that will be free and clear of encumbrances.

Policy 7.2.1.i) states that new development and/or redevelopment shall only be permitted where the water supply and distribution system has adequate capacity to service such development and/or redevelopment. Furthermore, Policy 7.2.2.i) states that all new development shall be serviced by the municipal water supply and distribution system and the developer shall be responsible for the installation of such works subject to the approval of the Town, Lakefront Utilities Services Inc. and the Ministry of the Environment. Policy 7.3.1.i) then states that all new development and/or redevelopment shall only be permitted where the sewage collection and treatment facilities are adequate to service such development. Policy 7.3.2.i) of the COP states that all new development shall be serviced by the municipal sewage collection and treatment system and the developer shall be responsible for the installation of such works subject to the approval of the Town and the Ministry of the Environment. The recommendations of any relevant watershed plan shall also be taken into consideration. Policy 7.4.1.i) then states that no development or redevelopment shall be permitted if such development or redevelopment will have a detrimental effect on the storm water drainage system. Finally, Policy 7.5.1 states that development will be managed to efficiently use land, resources, infrastructure, and public service facilities and to avoid any unnecessary and/or uneconomic expansion of infrastructure. In particular, infilling and intensification are encouraged where lands are designated for the proposed use and full municipal services are available in accordance with the Growth Management Strategy in Section 3.2 and other relevant policies of this Plan.

Evaluation: The proposal satisfies the policies above by providing the following:

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• As confirmed by the Functional Servicing Report, the proposed infill development will be adequately serviced. The proposed development will connect to municipal services.

• As confirmed by the Functional Servicing Report, the proposed development will utilize existing sewage collection and treatment system and will not create an impact on existing sewage treatment facilities.

• The proposed development will utilize existent infrastructure and servicing on underutilized lands.

Section 7.6 states that:

i. All local power and telephone lines and other “cable “ services serving new developed areas shall be located underground and shall be grouped into a single utility conduit, wherever possible. The Town shall also encourage all “cable” service providers in existing developed areas to locate their services underground whenever physically and financially possible.

ii. The Town will support the provision of electronic communications technology involving high capacity fibre optics to enhance telecommunications services within the Town. However, telecommunications transmission tower proposals shall be evaluated in conformity with the policies of Section 3.14 of this Plan.

iii. Cable requirements for telecommunications shall be located underground consistent with the intent of Section 7.7 i).

Evaluation: The proposal will connect to all existing services which are currently located underground. Approval of connections will be secured through Site Plan Approval.

Based on the above, it is concluded that the proposal as facilitated through the proposed Zoning By-law Amendment conforms to the relevant policies of the Town of Cobourg Official Plan.

THE CORPORATION OF THE TOWN OF COBOURG BY-LAW NUMBER XXX-2019

A BY-LAW TO AMEND ZONING BY-LAW NUMBER 85-2003 (1111 ELGIN STREET WEST).

WHEREAS the Council of the Corporation of the Town of Cobourg held a Public Meeting in accordance with the Planning Act, R.S.O. 1990, c.P. 13, as amended, on the XXth day of XXXX, 2019 regarding an application by Trinity Development Group Inc. to re-zone portion of the 9.92 ha (24.52 ac) parcel of land 1111 Elgin Street West (hereinafter referred to as the "Subject Lands") to permit a 6 unit commercial development consisting of a restaurant, a financial institution and three retail units; AND WHEREAS the Council of the Corporation of the Town of Cobourg duly considered all public submissions, the Manager of Planning Services' report and all other relevant information surrounding the subject matter, and deems it advisable to amend By-Law Number 85-2003, as amended; NOW THEREFORE the Council of the Corporation of the Town of Cobourg enacts as follows:

1. THAT the lands subject to this By-law are outlined by heavy blacklines on Schedule 1 attached to this By-law;

2. THAT Zoning By-law 85-2003, as amended, is amended by deleting “Schedule B-7”;

3. THAT Zoning By-law 85-2003, as amended, is further amended by modifying Section 13.2.1 (Shopping Centre Commercial Exception 1 (SC-1)), as follows:

(A) Notwithstanding Regulation 3.116 the Lot Frontage shall be Eglin Street West (County Road

2).

(B) Regulation 13.2.1.3 Permitted Building and Structures be deleted in its entirety and replaced with the following new regulation: The buildings and structures existing at the date of adoptions of this By-law plus any expansion of the existing buildings on lands shown on Schedule 1 to this By-law shall be permitted for Permitted Uses in Section 13.1.1 and 13.1.2.

(C) Regulation 13.2.1.4 (iii) Driveway Locations be deleted in its entirety and replaced with the following new regulation:

Only three driveway entrances/exits will be permitted from Elgin Street West (County Road 2) for property zoned (SC-1), (SC-2), and (SC-3).

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(D) Regulation 13.2.1.4 (iv) Parking Requirements be deleted in its entirety and replaced with the

following new regulation: Notwithstanding Parking Regulations of Section 6, for property zoned (SC-1), (SC-2) and (SC-3): (i) Each parking space shall have a minimum area of 14.85 sq. m (159.85 sq. ft.);

(E) Regulation 13.2.1.4 (ix) Free-Standing Building be deleted in its entirety and replaced with the

following new regulation: Three free-standing buildings are permitted in the parking lot area of property zoned (SC-1) and shall contain: (i) Two Single Storey Restaurant Buildings; and (ii) One multi-unit building with a maximum gross floor area of 930 sq. m (10,010 sq. ft.),

inclusive of one drive-through.

4. THAT this By-law shall take effect upon the date of final passing hereof, subject to the provisions of the Planning Act, R.S.O. 1990, c. P. 13, as amended. By-law read and passed in Open Council this XXth day of XXXX, 2019.

_______________________ _______________________

MAYOR MUNICIPAL CLERK DRAFT

1111 ELGIN STREET WEST

For By-Law 85-2003

Not to Scale07/04/2019

THE CORPORATION OF THE TOWN OF COBOURGBY-LAW NUMBER XXX-2019

A BY-LAW TO AMEND ZONING BY-LAW NUMBER 85-2003 (1111 ELGIN STREET)

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230-7050 WESTON ROAD / WOODBRIDGE / ONTARIO / L4L 8G7 / T: 905.761.5588 / F: 905.761.5589 / WWW.MHBCPLAN.COM

URBAN DESIGN BRIEF

1111 Elgin Street West (Northumberland Mall) Cobourg, Ontario Date:

July 2019 Prepared for:

Trinity Development Group Inc. Prepared by: MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC) 7050 Weston Road, Suite 230 Woodbridge ON L4L 8G7 T: 905 761 5588 x213 F: 905 761 5589 Our File: 9922CV

KITCHENER WOODBRIDGE LONDON KINGSTON BARRIE BURLINGTON

1. INTRODUCTION MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC) has been retained by Trinity Development Group Inc. (“the Owner”) to prepare an Urban Design Brief for a proposed infill development on their lands municipally addressed as 1111 Elgin Street West in the City of Cobourg (hereafter referred to as the “Subject Lands” or “Site”). The proposed development area is located at the northeast corner of the Subject Lands (hereinafter referred to as the “Proposed Development Area”). The Proposed Developed Area is located on the south side of Elgin Street West between Strathy Road and Rogers Road (Figure 1). The purpose of this Urban Design Brief is to illustrate how the proposal will meet the design objectives provided for this area in the Town of Cobourg.

Figure 1 – Location of the Subject Lands and Proposed Developed Area.

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PROPOSAL The proposal (Figure 2-7) is for a 6 unit, 929 m2 (10,000 sq. ft), one-storey multi-unit commercial building on the Proposed Developed Area of 3,816 m2 (0.94 acre). The westerly unit will consist of a restaurant use, with a drive-through to the west of the unit. The easterly unit will consist of a financial institution use, and lastly, the four central units will allow for future commercial tenant opportunities. The proposed development will realign the existing parking spaces to accommodate the new building footprint. A total of 21 parking spaces will be provided with 2 spaces being barrier free parking spaces. 12 parking spaces (inclusive of the 2 barrier free parking spaces) will be immediately south of the main entrances of the proposed units, and 9 parking spaces will be located west of the drive-through of the proposed development. A loading area and waste facility will be situated at the centre of the drive-through facility vehicular parking zone, west of the proposed building. Landscaping fronting along Elgin Street West has been proposed to provide a pedestrian oriented streetscape setting and to establish an attractive building frontage along a major arterial road. The proposal is seeking a Zoning By-law Amendment (“ZBA”) for the proposed development on the Subject Lands. The amendments are required to permit an additional free standing building, and to modify zoning regulations including coverage and parking to accommodate the proposal.

Figure 2 – Site Plan of Proposed Developed Area by Petroff Partnership Architects.

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Figure 3 – North Section of the Proposed Development by Petroff Partnership Architects.

Figure 4 – South Section of the Proposed Development by Petroff Partnership Architects.

Figure 5 – East Section of the Proposed Development by Petroff Partnership Architects.

Figure 6 – East Section of the Proposed Development by Petroff Partnership Architects.

Figure 7 – Perspective view of the Proposed Development by Petroff Partnership Architects.

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2. EXISTING CONTEXT ANALYSIS Four quadrants surround the Town of Cobourg’s main Employment Area and the Downtown and Harbour Area. The northern quadrants are bounded by Highway 401 to the north and the CN/CP railway to the south. The quadrants in the south are bounded by the railway to the north and Lake Ontario to the south. The Proposed Development Area falls within the North West Quadrant as indicated in Figure 8. North West Quadrant The North West Quadrant is primarily residential with commercial uses along Elgin Street and Burnham Street. Some of the key commercial and retail include the Northumberland Mall and the Cobourg SmartCentres. The Northumberland Hills Hospital is also within the quadrant and is located near the intersection of Burnham Street and Highway 401. The area north of Elgin Street is largely undeveloped with a number of vacant parcels in the Cobourg West Business Park. Elgin Street provides the main east-west connection, while Burnham Street and William Street provide the north-south linkages and access to Highway 401.

Figure 8 – Town of Cobourg’s Main Areas and Quadrants (Town of Cobourg Urban and Landscape Design Guidelines, Section 1.1). The proposed development falls within the North West Quadrant.

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The Subject Lands is located on the south of Elgin Street West with approximately 446 metres of lot frontage along Elgin Street West. The eastern portion of the Subject Lands is currently occupied by the Northumberland Mall with Boston Pizza to the west and an A&W to the east. Currently, the Proposed Development Area is occupied by parking spaces (Figure 9).

Figure 9 – Street corner view along Elgin St W (across from Strathy Rd) of the Proposed Development Area. The Subject Lands are serviced by both Route 1 and Route 2 bus transit every 30 minutes. These routes provide connectivity throughout the Town of Cobourg, including access to the Cobourg VIA Rail station. The Subject Lands also abut an active transportation corridor in the form of a bicycle lane along Elgin Street West. The surrounding land uses within the immediate area of the Proposed Development Area include (Figure 10): NORTH: Immediately north of the subject lands and Elgin Street West are two car dealerships, a

spa and pool maintenance retail store and Strathy Plaza, with agricultural lands existing further north;

EAST: A variety of retail, service and restaurant uses; SOUTH: Immediately south of the Subject Lands consists of established semi-detached and

detached single dwelling neighbourhoods with Westwood Park further south; WEST: Immediately west of the Subject Lands is a variety of retail, service and restaurant uses

further west.

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Figure 10 – Surrounding land uses within the immediate area of the Proposed Development Area.

3. TOWN OF COBOURG URBAN AND LANDSCAPE DESIGN GUIDELINES

The proposed development will be reviewed and assessed as per the Town of Cobourg’s Urban and Landscape Design Guidelines (“ULDG”) to ensure that the proposal is well integrated with the site surrounding and promotes a high quality of urban design. This section will illustrate how the proposal will meet the design objectives provided for this area in the Town of Cobourg.

3.1. Site Design, Function, and Orientation

ULDG Section 2.1 - Community Vision • An emphasis on sustainable, accessible

and compact development, particularly transit supportive, mixed use built form along its main streets, which will enable Cobourg to enhance its function as a vibrant, environmentally aware urban centre;

Proposal Response The proposal provides a mix of retail, commercial, and financial uses, which in turn creates employment opportunities. The proposal is situated along Eglin Street West with access to Route 1 and Route 2 bus transit to support the existing transportation network and

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• A mix of employment uses which will continue to promote Cobourg’s role as a major employment centre in Northumberland County; and,

• A transportation system which will

support multiple modes of travel including transit, cycling and pedestrian movement, as well as goods movement.

ULDG Section 2.2.2 - Encourage Compact, Mixed Use Development • Compact development will be

encouraged in the design of vacant or underutilized parcels of land. A mixture of uses and appropriately scaled building forms will contribute to an active streetscape and increased densities in the community.

ULDG 2.2.6 - Provide a Vital Setting for Employment Uses • A healthy mix of employment uses,

including innovative employment opportunities, and the placement of employment lands in key locations will ensure the Town of Cobourg retains its role as a vibrant employment centre in Northumberland County.

encourage transit usage. The proposal also provides bicycle parking at the south-east of the proposed building in support of multiple modes of travel and compliment the existing bicycle lanes along the north side of Elgin Street West.

The proposal represents an infill development on an existing underutilized parking lot fronting along a major arterial road / Eglin Street West. The development will provide an appropriate building frontage to animate the streetscape and assist in establishing an active street front. The proposal will help diversify the current uses in the area by providing new commercial, retail, and office spaces in fostering a range of employment opportunities. The site design and orientation is consistent with the Town’s objective of establishing a mixed used, compact development.

3.2. Pedestrian and Vehicular Circulation

ULDG Section 2.2.3 - Promote Active Transportation • Active transportation will promote the

priority of pedestrian, cyclists and transit over vehicles through the design of streets and their boulevards.

ULDG Section 3.4.1.1 - Arterial Roads • Arterial Roads should transition to a more

urban character and include a high level of design in the pedestrian realm. This includes buildings with densities supportive of transit and alternative modes of transportation (such as cycling),

Proposal Response Pedestrian circulation will be prioritized by providing clear paving demarcation, crossings, and unobstructed sightlines to ensure visibility is maintained at all times between pedestrians and motorists. The proposal provides barrier free sidewalks and surface marked crosswalks that creates a continuous connection for pedestrians. Curb ramps will be implemented to ensure transition between changing levels are provided in accordance to AODA and barrier-free/universal access design requirements.

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and the provision of well landscaped, pedestrian oriented boulevards.

• Arterial Roads should balance pedestrian oriented streetscapes with-the functional requirements of the road, including parking and the movement of goods.

ULDG Section 3.4.1.6 - Sidewalks (Mixed Use & Commercial Areas) • Mixed Use/Corridor Areas and Commercial

Area sidewalks are typically wider, accommodating the highest number of pedestrians, a variety of commercial activities and street amenities (street trees, lighting, bike parking, seating, etc.).

ULDG Section 3.4.1.6.h • All sidewalks shall be barrier-free. Sidewalk

clutter (e.g. newspaper boxes, signage, etc.), should be minimized to enable safe and efficient movement of pedestrians (including strollers, wheel-chairs, etc.).

ULDG Section 3.4.1.6.j • As provincially mandated, curb ramps

should be used to provide assistance to persons with disabilities, as well as providing a proper transition between the road surface and top-of-curb at pedestrian sidewalk corners.

ULDG Section 3.4.1.8 - Crosswalks and Intersections • Crosswalks ensure continuity of the

sidewalk network. Carefully designed crosswalks must be provided to enhance access for pedestrians.

ULDG Section 3.4.1.8.a • Crosswalks should be continuous and

connected to adjacent sidewalks. ULDG Section 3.4.2 - Pedestrian and Bicycle Circulation • Encouraging alternative modes of

transportation throughout the Town of Cobourg will promote healthy lifestyles

Bicycle parking facilities will be located adjacent to main building entrances to ensure ease of access and providing natural surveillance. The proposed bicycle parking facilities will compliment the existing bicycle lanes along the north side of Elgin Street West and support active transportation. The proposal will assist the Town’s evolution in transitioning arterial roads, such as Eglin Street West, into a more urban, pedestrian friendly character by providing appropriate building frontage and high quality landscaping to define walkway circulation along the arterial road and within the Site’s internal circulation. A high-quality landscape frontage will be implemented to establish an attractive streetscape and assist in the transformation of Elgin Street West into a pedestrian oriented boulevard. Integration of wide sidewalks, native yet resilient street trees, seating, streetscape furniture, durable and consistent paving materials, and clear wayfinding and lighting should be applied where appropriate. The proposal will provide additional attention to the corner treatment at where the site accessway and Elgin Street West intersects, including enhanced sidewalk conditions through decorative plantings, seating areas, increased sight lines, and universal design markings where appropriate to enhance the pedestrian movement experience. The proposed drive-through is located away from the main pedestrian activity areas, while ensuring clear sightlines and surface marking at crosswalks will be implemented to facilitate safe pedestrian and vehicular movement.

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and support a variety of land uses. Good circulation supports mixed land use and a concentrated population, reducing auto dependency and supporting local goods and businesses.

ULDG Section 4.3.4 - Drive-Throughs • Ensure efficient on-site circulation that

minimizes vehicle idling time and traffic disruption while creating a safe and comfortable pedestrian environment.

ULDG Section 4.5.4.2.f - Commercial Retail Units (CRUs) CRUs should have continuous pedestrian sidewalks on all sides of the building where public entrances and parking areas are located.

3.3. Site Servicing and Parking

ULDG Section 4.2.5 - Storage, Servicing and Loading • The visual impact of service and delivery

areas should be minimized. Landscape treatments are encouraged to provide additional screening to service area enclosures. In general, open storage, where permitted, should be located at the rear of lots, screened by building placement or by landscape screening.

ULDG Section 4.2.5.a • Loading docks, outside storage and

service areas should be located in areas of low visibility such as at the side (non-street side) or rear of buildings. Outside storage of any kind in public street right-of-way, exterior side or front yard building setbacks or easement areas is discouraged.

ULDG Section 4.3 - Parking • In new development, where surface lots

are required, these areas should be designed to minimize their visual impact

Proposal Response The service area is located west of the proposed mixed use commercial building, separated from the pedestrian activity areas and walkways and integrated within the parking area to reduce curb cuts along the streetscape. The service zone does not encroach into the exterior side or front yard setback and will be screened through landscaping. The proposal represents an infill development on an existing parking lot along Elgin Street West, and will enhance the visual experience and assist in defining the street frontage along with existing and future buildings as more infill development occurs. This new built form will also assist with screening existing and proposed parking.

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and to allow for redevelopment as future building sites. The layout of initial buildings should consider site access, landscape and site servicing that will permit the long term intensification of these sites.

3.4. Architecture Design

ULDG Section 3.4.5 - Universal Design (Public Realm) • The principles of universal design should

be applied in all public spaces and within new developments to ensure individuals of varying ability are able to access public areas and buildings throughout the Town of Cobourg.

ULDG Section 4.3.4 - Drive-Throughs • Where drive-through facilities are

included, they should be carefully designed to maximize the safety of pedestrians and cyclists in the area while minimizing negative visual impacts.

Building Base Design ULDG Section 4.4.2.a • The building base should be designed and

massed to create a pedestrian oriented streetscape.

ULDG Section 4.4.2.b • A significant amount of the building

frontage on the ground floor and at building base levels should be glass to allow views of the indoor uses and create visual interest for pedestrians. Spandrel glass is strongly discouraged.

ULDG Section 4.4.2.e • Taller floor-to-ceiling heights at-grade are

recommended to create a strong street presence and flexible commercial space.

Commercial Retail Units ULDG Section 4.5.4.2

Proposal Response The proposed one-storey multi-unit commercial building will assist in defining the street edge experience along Elgin Street West by ensuring a human scale experience at grade is achieved. The proposed building provides barrier-free access and connections from the building entrances to the street and pedestrian walkways. The proposed drive-through is situated at the west of the proposed commercial building, away from the main pedestrian activity areas. Clear sightlines and surface marking at crosswalks will be implemented to facilitate safe vehicular movement and to prioritize pedestrian safety. The proposed multi-unit commercial building provides multiple entrances along the north and south side of the building to ensure a high level of accessibility along Elgin Street West and the internal pedestrian walkways. The north and south building walls provide extensive transparent glass façades to allow views into and out of the building to promote visual interest and natural surveillance. This also creates a continuous street wall along Elgin Street West and assist in defining the street edge experience. High floor-to-ceiling heights will be provided in accordance to the guideline recommendation of a minimum of 4.5 m. The proposed building height is appropriate and consistent with the surrounding context and will assist in creating a walkable, pedestrian oriented environment.

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• Outside of the Mixed Use/Corridor Areas, the arrangement of smaller commercial retail units (CRUs) that align walkable “main streets” with a consistent rhythm of entrances is strongly encouraged.

ULDG Section 4.5.4.2.c • Building entrances should be located on

the street side of the building. If this is not possible, a clear and direct pedestrian route from the public sidewalk to the entrance should be provided.

3.5. Landscape Design

ULDG Section 3.4.1.6.d - Sidewalks (Mixed Use & Commercial Areas) • Sidewalks should be coordinated with the

design of feature paving across boulevards, intersections, crosswalks and driveways to ensure visibility and accessibility of the pedestrian network.

ULDG Section 3.4.1.6.e • Street trees should be located within the

paved boulevard and planted in an adequate pit under a metal grille.

ULDG Section 3.4.1.6.g • Porous surfaces should be considered for

sidewalks especially when adjacent to parks and open spaces.

ULDG Section 3.4.1.6.i • For sidewalks on busy main streets,

textured edges and sound assisted crosswalks should be considered to assist the visually impaired.

ULDG Section 3.4.1.8.e - Crosswalks and Intersections • Streetscape design should take into

account the geometry of streets and their sightlines. Transit shelters, signs, trees and other visual obstructions should be located to ensure they do not obstruct

Proposal Response An attractive landscape design will assist in defining and animating the street edge along Elgin Street West and creating an animated urban character for the site and its surrounding.

The proposed landscape treatment will emphasize the pedestrian experience and movement through high-quality landscape features, including consistent paving materials, coherent planting layout of trees, shrubs, and groundcovers, and outdoor light fixtures to define a continuous, attractive streetscape environment. The proposed walkways and landscape materials will provide consistent transitions to maintain and enhance the existing pedestrian network and the public realm. Permeable paving and textured paving will be considered where appropriate to reduce surface runoff and assist mobility for disabled individuals. Landscape furnishings, including waste receptacles and bicycle parking facilities, where appropriate, will follow a consistent theme to ensure a unified streetscape appearance is maintained. Selected plantings and landscape furniture will be durable and low maintenance

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driver visibility and create unsafe conditions at intersections.

ULDG Section 3.4.3 - Mixed Use/Commercial Street Furniture • Street furniture, including benches,

bicycle racks, waste receptacles, light poles and bollards should have a consistent style to promote a pedestrian orientation on mixed use/commercial streets. A unified palette of street furniture helps distinguish key public and Mixed Use/Corridor Areas.

ULDG Section 3.4.3.b • A palette of street furniture should be

selected based on suitability, durability, ease of maintenance, compatibility with Cobourg’s climate, cost effectiveness and sustainability.

ULDG Section 3.4.3.d • Street furniture should be placed to not

impede pedestrian circulation, emergency vehicles and snow removal.

ULDG Section 3.4.5.e - Universal Design (Public Realm) • All public sidewalks shall be barrier-free.

Street trees and landscaping, seating, public art and signage should not be an obstacle to the barrier-free path of travel.

ULDG Section 4.3.4 - Drive-Throughs • The design of drive-through facilities

should contribute to achieving a high quality streetscape and public realm while ensuring compatibility with both current and planned development.

while ensuring circulation for pedestrians, emergency vehicles, and servicing routes are not obstructed. Universal design will be applied to ensure all landscape features do not impede on barrier-free movement along Elgin Street West and the proposed walkway connections.

Clear sightlines will be maintained by ensuring the height of plantings, including tree branch clearance, shrub heights, and street furniture and signage are compliant to the principles of Crime Prevention through Environmental Design (CPTED). Appropriate landscaping will be provided to define the drive-through areas and provide an attractive, cohesive setting that compliments the overall proposal.

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3.6. Utility, Lighting, and Signage

ULDG Section 3.4.3.4 - Lighting Sustainable lighting practices should be implemented to reduce light pollution, conserve energy and reinforce pedestrian priority. Pedestrian-frequented areas can be emphasized by the use of pedestrian-scaled light standards or illuminated bollards. ULDG Section 3.4.3.4.a • Solar power should be incorporated into

the design of street lighting and transit facilities to supplement the power requirements of street infrastructure.

ULDG Section 3.4.3.4.b • The design and location of lighting should

consider the impacts of light pollution, energy efficiency and any other potential negative impacts.

ULDG Section 3.4.3.4.d • Induction lighting, solar power, road

reflectors and similar alternative lighting and energy sources are encouraged for energy efficiency. Sensors should also be used to help regulate brightness and when lights turn on and off.

ULDG Section 3.4.3.4.e • In high pedestrian activity areas (main

streets, key intersections, transit stops), where higher levels of pedestrian lighting is appropriate, pedestrian-scaled light standards are appropriate.

Public Signs ULDG Section 3.4.3.6.b • Signs should be carefully located to ensure

it does not impede sightlines for drivers.

Proposal Response Appropriate lighting will be implemented to ensure high visibility is maintained for all building entrances, walkways, pedestrian activity areas, and parking lots to ensure a safe pedestrian environment is provided. Strategic lighting placement will also be included to create opportunities for informal surveillance to enhance safety of the publicly accessible areas. Light sensors and solar powered light fixtures will be considered where appropriate. The proposed lighting for the building and landscape components will be of high quality light standards and fixtures that is compatible with the overall character of the proposal and the surrounding context. Light pollution will be avoided through low-reflectance surfaces and low-angle spotlights and fixtures where feasible. Wayfinding signage, where appropriate, will be placed at locations that do not block sightlines between pedestrians and motorists. Advance coordination with utility companies will ensure appropriate screening is implemented where necessary to minimize visual impacts, while allowing for connections of existing utilities to align with any future services and expansions.

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3.7. Sustainability and Microclimate

ULDG Section 2.2.4 - Promote Sustainable Development • The Town will actively encourage

development which is designed based on the principles of sustainability to reduce the consumption of energy, land and other non-renewable resources; minimize the waste of materials, water and other limited resources; create a liveable, healthy and productive environment; and reduce greenhouse gas emissions.

ULDG Section 2.2.8 - Promote Healthy Lifestyles and Physical, Mental and Spiritual Well-being • Compact mixed use development

encourages alternative modes of transportation… promoting a healthy and active lifestyle for the residents of the Town of Cobourg.

ULDG Section 3.1.a – Sustainability • Where possible, public realm design

should aim to reduce impervious hard surfaces.

ULDG Section 3.1.b • Materials selected for use in the public

realm should be durable to avoid premature replacement.

ULDG Section 3.1.c • Materials selected for the public realm

should be recycled to reduce the energy needed to extract and manufacture new materials.

ULDG Section 3.1.d • Materials should be locally sourced to

prevent the expenditure of fossil fuels used for freight transportation. Canadian products are generally suited to withstand our climate.

Proposal Response The proposal represents an infill development on an existing underutilized parking lot fronting along a major arterial road that will contribute to the Town’s vision for sustainable development and promoting better use of land resource and energy efficiency. The proposal is a compact built form that emphasizes a pedestrian oriented streetscape setting and assist in defining an active street edge along Elgin Street West. The proposal also promotes alternative transportation modes as the site is accessible by two existing transit routes. Active transportation is also encouraged by providing bicycle parking facilities.

Where feasible, permeable paving and rain gardens will be implemented to reduce surface run-off. The landscaping will include native, non-invasive plant species where appropriate, including integration of drought–tolerant species to reduce water consumption. Durable local and recycled building materials, where appropriate, will be used to reduce the carbon footprint of the development.

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4. CONCLUSION The proposed one-storey multi-unit commercial building represents intensification on an existing underutilized parking lot fronting along Eglin Street West. The development will provide an appropriate building frontage to animate the streetscape and assist in establishing an active street front while respecting the surrounding context and built form. The proposal is also accessible by existing transit routes and a bicycle laneway in fostering an active and transit supportive urban environment. The proposed development will provide additional commercial, retail, office, and employment opportunities to assist the Town in promoting pedestrian-oriented and transit supportive environments along major arterial roads. This is consistent with the Town’s vision and emphasis on sustainable, accessible, and compact development. The architectural design, site orientation, and siting of the building has been carefully designed to compliment its surrounding context by strengthening the street edge experience along Elgin Street West and supporting the adjacent commercial, retail, and business uses. The proposal takes into consideration of maintaining clear sightlines between pedestrians and motorists and implements appropriate architectural massing and landscape design that prioritizes pedestrian safety while fitting in with its surrounding context. The proposal also provides bicycle parking and connector walkways to existing public sidewalks to promote active transportation. The proposal implements an appropriate architectural and landscape design to create a visually appealing, pedestrian scaled street edge development that is welcoming to local residents and visitors. The proposal is compatible with the surrounding context and adheres to the Town of Cobourg’s Urban and Landscape Design Guidelines to assist the Town in managing its development objectives sustainably for a strong, liveable, and healthy community. Yours truly,

MHBC

Eldon C. Theodore, BES, MUDS, MLAI, MCIP, RPP Partner and Urban Designer

Marty Chan, BLA, MUD, MScPl Planner & Urban Designer

planning report planning repor… · from: desta mcadam, mcip, rpp senior planner – development...

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