Jury Lands Final Report Small

Jury Lands Community
Development Plan
Integrated Planning Solutions

Prepared For: Faye Langmaid (Manager of Special Projects,
Municipality of Clarington), Nancy Alcock (PLG 720 Studio Advisor)
Date: November 30, 2009
Acknowledgements
Integrated Planning Solutions (IPS) is grateful to several people and organizations for their
support throughout this project. We would like to thank the Municipality of Clarington for
the opportunity to undertake a community development plan for the Camp 30 site. We would
especially like to thank Faye Langmaid, Special Projects Manager for Clarington, and Martha
Rutherford Conrad, administrator of Clarington Museums and Achieves for their guidance
and support. Thank you to the Kaitlin Group, and Kelvin Whalen, Vice-President of Land
Development, for his cooperation and valuable advice regarding the redevelopment of the Camp
30 site. IPS extends gratitude to the many other individuals at the Municipality of Clarington
who provided information and feedback during this project, especially David Crome the Director
of Planning Services and Carlo Pellerin, Manager of Development Review. Finally, IPS would
like to thank Nancy Alcock, our faculty advisor from the Ryerson School of Urban and Regional
Planning. Nancy has provided us with invaluable insight and support throughout this process and
it has been a true privilege to work with her.
Contributors
Matt Alexander
John Duncan
Kathryn Kram
Stefan Michalak
Michael Scott
Brandon Weiler
Lisa Marie Williams
Jury Lands Community Development Plan

Table of Contents
Executive Summary I
Project Mandate II
“The Jury Lands” II
Part 1: Context 1
1.1 Macro Site Analysis 1
1.2 Micro Site Analysis 1
1.3 Attributes of the Site 1
1.4 Environmental Context 2
1.5 Site History 4

Part 2.0: Planning and Policy 9

2.1 Ontario Legislation and Plans 9
2.2 Regional and Municipal Legislation and Plans 11

2.4 SWOT Analysis 16
Part 3: Strategic Framework 19

3.1 Vision 19
3.2 Themes 19
3.3 Goals and Objectives 19
Part 4: Community Development Plan 21

4.1 The Development Concept 21
4.2 Residential Areas 23
4.3 Community Facilities 24
4.4 Circulation 24
4.5 Projected Density 25
Part 5: Heritage Designation 27

5.1 Recommendations 27
5.2 Requirements 28
5.3 Potential Issues 30
5.4 Designation Process 30
Part 6: Property Management 31

6.1 Conditions for Municipal Ownership 31
6.2 Guiding Principles and Responsibilities 32
6.3 Corporate Structure 32
6.4 The Board of Directors 33
6.5 Executive Director 33


Part 7: Partnership Opportunities 35
Part 8: Community Engagement 37
Part 9: Opportunities for Adaptive Reuse 39

9.1 Recreation 40
9.2 Arts and Culture 41
9.3 Tourism 42
9.4 Retail/Commercial 43
Part 10: Financing Options 45

10.1 Community Improvement Plan 45
10.2 Tax Increment Financing (TIF) &
Tax Increment Equivalency Grants (TIEG) 47
10.3 Other Incentives 47
10.4 Funding Programs 48
Part 11: Moving Forward 49
Conclusion 53
References 55
List of Figures 59
Appendix 61

Executive
Summary
In September 2009, IPS engaged in a project with Faye opportunities, funding options, and a phasing timeline. IPS
Langmaid, Special Projects Manager for the Municipality of suggests that a not-for-profit group be created to implement
Clarington, to create a community development plan for a the vision and remain in place to guide the future of the
site commonly referred to as Camp 30, home of a former site. The adaptive reuse opportunities that IPS has identified
Prisoner of War (POW) camp and Boys Training School. The are incorporated in four categories, recreation, tourism,
site has a unique history that is significant to not only the arts and culture as well as retail and commercial. IPS has
Bowmanville community but also at provincial and federal recognized that the vision and all its components will be a
levels. A private developer, the Kaitlin Group, currently costly venture and have therefore provided some options
owns the site. The Kaitlin Group is in the process of for funding. Finally, IPS has recommended a timeline for
applying for an Official Plan amendment and has introduced the implementation of the goals, objectives, and actions it
a potential vision for the site. has proposed. The timeline reflects what needs to occur
first in order to ensure the rest of the vision can be met.
Clarington is a rapidly growing community where low- The timeline also reflects objectives and actions that can be
density development and vehicle reliance are two of the considered ‘quick wins’ that will help gain momentum for
most defining characteristics. With policies in place to guide the vision moving forward.
growth within and surrounding Clarington, intensifying
density and promoting alternative modes of transit are vital
to the Camp 30 site and the healthy growth of Clarington.
In order to create a community development plan IPS
has articulated a vision for the site. This vision strives to
incorporate the current and future needs of the community,
while being respectful of the site’s unique history. From the
vision, IPS has set goals, objectives and actions to be achieved
at various stages through the community development
process. The goals, objectives, and actions were formulated
while considering the community, environment, economy
and history equally.
In order to achieve the vision IPS has proposed a heritage

designation plan, management structure, adaptive reuse
Jury Lands Community Development Plan I

Project Mandate
IPS has been requested by the Municipality of Clarington to prepare a community
development plan for the Camp 30 site. In preparing the plan IPS has undertaken
research to identify cultural assets, and has attempted to use them to improve
the economic, social and environmental health of the surrounding community.
IPS has strived to reestablish the Camp 30 site as a focal point within Clarington
through the integration of residential, institutional, environmental, heritage,
and commercial uses, creating an integrated and shared community space. In
completing the plan IPS has:
Completed a vision statement, identified themes and completed a detailed list

of goals and objectives by which to reach the goals
Created a land-use development plan that will guide the development of the
site
Proposed heritage designation recommendations
Identified a management structure that will govern the site
Provided recommendations on adaptive re-uses for current buildings and
identified possible funding opportunities to aid in the process and
Provided an implementation strategy
“The Jury Lands”

Throughout this document IPS will refer to the property located at 2020 Lambs
Road as the Jury Lands. This name has been chosen to acknowledge the legacy of
John Jury who donated the former Darch Farm to the province of Ontario for use
as the Bowmanville Boys Training School. This set the path for all future uses on the
property including construction of the buildings, the establishment of POW Camp
30 and all subsequent private school uses. If not for Mr. Jury’s generous contribu-
tion, the town of Bowmanville would be missing a valuable component of its
rich heritage.
Future redevelopment and plans of subdivision for the site will make the municipal
address obsolete, and the site’s varied history as a training school, POW camp, and
private school facilities give the site a fractured identity. Rebranding the property
as The Jury Lands will help bring together the varied histories of the location and
provide recognition for one of the community’s great entrepreneurs.
II Jury Lands Community Development Plan

1
Context
1.1 Macro Site Analysis immediate area include: a residential subdivision to the west,
current farmland to the east that is owned by the Kaitlin
The Jury Lands site is located in Bowmanville, a community Group, undeveloped residential land to the south, and
within the Municipality of Clarington, which is part of farmland to the north.
the Region of Durham (See Figure 1). Bowmanville
is approximately 15km east of Oshawa and 75km east 1.3 Attributes of the Site
of Toronto (Virtual Walk, 2009). Bowmanville has 2
interchanges and is in close proximity to Highway 401, The terrain slopes west towards the Soper Creek, which
allowing for increased access to the Greater Toronto Area runs south along the western edge of the property. A smaller
(GTA). Bowmanville is also connected to surrounding GTA stream valley cuts across the northeastern portion of the
communities by public transit. Durham Region Transit has 5 property and two significant tributaries run east west, one
public bus routes that service local residential areas, as well on the south side of the existing buildings and one on the
as GO Transit operating buses into downtown Bowmanville, north side, through the site.
connecting to the train station in Oshawa. Trains from GO
Transit’s Oshawa station offer connections to the rest of the Eighteen buildings, some dating back to the 1920s, still stand
Golden Horseshoe west, including Toronto, Burlington, and on the property in varying states of neglect. Many of the
Hamilton. Bowmanville’s proximity to a major 400 series buildings are structurally sound with only cosmetic damage
highway, as well as public transit, places it in an ideal location due to vandalism. Eleven of the buildings are clustered
for future development. around a central open space.
1.2 Micro Site Analysis Many tall, healthy-looking deciduous and coniferous trees
grow on the property, particularly along the smaller stream
The Jury Lands site, located at 2020 Lambs Road, is in the northeast, and along the existing road that circulates
approximately 2.4km northeast of downtown Bowmanville. through the centre of the site. A dense woodlot stands in the
The site is approximately 40 hectares and is bordered by two northwest corner.
arterial roads, Concession Street to the south and Lambs
Road to the east (See Figure 2). The Soper Creek runs along The natural features of the property stand out significantly
the western edge of the site, with railroad tracks existing because they have been somewhat neglected since the
just north of the site boundaries. Surrounding uses in the buildings were vacated, giving the impression that the
Jury Lands Community Development Plan 1

Figure 1: Regional Context
Note: property has been abandoned. The site is currently fenced, gated and public access
This map is for illustrative purpos- is not allowed.
es only. Scale is approximate and
some information may no longer
be accurate. 1.4 Environmental Context
Sources:
407 East Environmental
Macro Environmental Resources Overview
Assessment and The Bowmanville Marsh watershed, the third largest of the Durham Region
Preliminary design Study, Coastal Wetlands, is located along the Lake Ontario shoreline. This watershed
2009 has two main tributaries, Bowmanville Creek and Soper Creek. The tributaries
Friends of the Greenbelt of the marsh are important spawning waterways for trout and salmon while the
Foundation, 2009
GO Transit, 2009
wetland also supports other fish species including Golden Shiner,Yellow Perch and
Google, 2009 Sunfish (Valleys2000, 2009). As a result, the Bowmanville Marsh Coastal Wetland
has been designated as a provincially significant wetland under the Provincial
Policy Statement, which prohibits development and site alteration impacting any
natural features and functions. The Central Lake Ontario Conservation Authority
has jurisdiction over the Bowmanville Marsh watershed, along with 14 other
watersheds along Lake Ontario (Central Lake Ontario Conservation, 2005).
2 Jury Lands Community Development Plan

Figure 2: Local Context
Micro Environmental Resources Overview Note:

The Soper Creek flows south towards Lake Ontario, through the western portion This map is for illustrative purpos-
es only. Scale is approximate and
of the Jury Lands site. The Soper Creek is a natural habitat for many species of fish some information may no longer
including native brown and speckled trout. Stephen’s Gulch Conservation Area, be accurate.
which is north of the site, provides great potential for cold-water fishing as well
as other wilderness and outdoors tourism-related activities. This conservation Sources:
area consists of 130 hectares of deciduous forest and coniferous forest/swamp,

!""#
which contribute to the maintenance of the Soper Creek’s water quantity and Durham Region Transit, 2009
Friends of the Greenbelt
temperature. This portion of the valley system has been designated the Soper Foundation, 2009
Valley Area of Natural and Scientific Interest (ANSI) because of its dynamic natural Google, 2009
heritage systems (Central Lake Ontario Conservation, 2007). The 2005 Greenbelt
Plan designated the Bowmanville and Soper Creeks as ‘river valley connections
outside the greenbelt’. This indicates the importance of these watercourses as
natural corridors that facilitate movement of native plants and animals between
landscapes (Ministry of Municipal Affairs and Housing, 2005). In consideration of
these ecological features, the Municipality of Clarington’s Official Plan designates
the areas surrounding the Soper Creek as environmentally sensitive lands. This
classification prohibits any development that is detrimental to the natural heritage
landscapes.

1.5 Site History
John H. Jury and the Bowmanville Boys Training School
2020 Lambs Road has been intimately intertwined with the community of
Bowmanville for many years. The site once referred to as ‘Darch Farm’, was
originally owned by Mr. John H. Jury, a wealthy local businessman whose
former residence is now the local museum in Bowmanville. The 300-acre farm
was surprisingly donated to the Ontario provincial government by Mr. Jury
after hearing J. Alex Edmison, (then mayor of Toronto), speak about juvenile
delinquency and the social welfare of young boys penalized in the justice system. By
request of Mr. Jury the site was meant to be a school for “unadjusted boys” (Globe,
1925). Once the Ontario government accepted these conditions, the Bowmanville
Boys Training School was founded; it opened in 1931. The Oshawa Daily Times
claimed on June 13, 1930 that the “Bowmanville Boys Training School exists to
give boys a fair chance in life”. The boys at the training school became an integral
part of the community, hosting an annual fair and music festivals at the school and
performing various agricultural services in the area.
Camp 30
On November 19th, 1941 the Training School was requisitioned by the Federal
government to to house high ranking German prisoners of war. It is suggested that
2020 Lambs Road in Bowmanville was selected because of its proximity to the
401 King’s highway, which would make transport of goods and prisoners easier.
Additionally, the buildings were already equipped to hold large amounts of people
in an isolated rural setting (Hoffman, 1988). Although there was considerable
trepidation about German soldiers being held on Canadian soil, Camp 30 provided
a vital service to the war effort. Prisoners held in the camp had little chance of
escape. If they did manage to get away they would be too far from any German
military units to be able to rejoin the war. As well, the conditions in the camp
provided a much needed paradigm shift for many German soldiers who were
inundated with Nazi propaganda at home (United States Holocaust Memorial
Museum, 2006). Camp 30 truly was an excellent example of the Canadian
contribution to the war against Hitler and provided German soldiers a great
example of what life outside of the Nazi regime could be like. Presently the Jury
Lands is home to the last Canadian World War II POW camp still in existence.
Post-War
After World War II, the Jury Lands returned to its normal operations as a Boys
Training School. The school also has a strong agricultural and environmental
history. Students at the school learned valuable agricultural skills and provided help
to local farmers when needed. Also, a seed cleaning facility was located on the site
for use by students and local farmers. While the school was still in operation there
was a thriving greenhouse and an arboretum set up by the provincial government.
The school officially closed in 1979 due to the provincial government’s reluctance
to continue the training school program (Barris, 1982). After its closure some
government organizations used the space for storage while the province attempted

to find a buyer for the land. In 1981 the Town of Newcastle attempted to purchase
the property from the province for $2 in order to develop it for its own municipal
buildings. However, the province refused to sell the property for less than market
value, which was estimated at $1.7 million (Barris, 1982). After the province
concluded that none of its own ministries were willing to use the space they put
the property out to tender in 1982.
In 1983 the province finally sold the site to a foreign buyer who converted the
buildings into a finishing school for Malaysian students preparing to enter Canadian
universities. Since 1983 the site has been St. Stephen’s Secondary School and most
recently the Darul Uloom Islamic School, which closed in fall 2008.
On March 28, 2009 there was a fire at the Jury Lands site. Clarington This Week
reported that there were two fires, one in the gymnasium and one in Ferguson Hall
(O’Meara, 2009). Although the fire in the gymnasium was extinguished without
much damage, Ferguson Hall was badly burnt (O’Meara, 2009). The damage from
the fire is still evident as well as the effects of vandalism and graffiti.
The Kaitlin Group, a private developer now owns the Jury Lands and is currently
developing a plan for the future of the site.
Figure 3
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In terms of architectural significance many of the buildings on the Jury Lands are
rare and magnificent examples of important Canadian architecture and building.
The campus was originally constructed as a showpiece for progressive education
in Ontario and an example for the rest of the province. Despite recent desertion,
the Jury Lands site has not lost its architectural merit or integrity. The campus is
a mix of different architectural styles, including arts and crafts, collegiate gothic,
modern, and international style. There are particular buildings that stand out
amongst the rest. Specifically the Jury House, Kiwanis House, Cafeteria building
and Gymnasium are all examples of the prairie style of architecture. Prairie style
architecture was developed by renowned American architect Frank Lloyd Wright
and his associates based out of his Oak Park studio in the state of Illinois in the
United States. Prairie style architecture was brought to Canada by Francis C.
Sullivan, the only Canadian to apprentice with Wright in Chicago (Kalman, 2000).
Figure 4 Sullivan worked for the Canadian Department of Public Works from 1908 to 1911
Pembroke Public Library and famously designed the Pembroke Public library (See Figure 4).
In Canada, prairie style architecture was predominantly used for private residences,
making its institutional use at the Boys Training School unique. Also, considering
that there are four buildings on the site that depict this rare style of architecture,
the Jury Lands site is definitely one of a kind. Prairie style buildings are considered
by many to be Canada’s first foray into modern architectural styles, therefore
marking a serious change in the way that Canadians designed and envisioned
buildings (Kalman, 2000).
Prairie style architecture is commonly marked by strong geometric qualities, with

an emphasis on horizontals and an absence of historical ornaments (Blumenson,
1990). As a result of this simplicity, the impact of the architecture is found in the
buildings’ interaction with its natural environment (Ricketts, 2003). This idea is
crucial to the significance of the buildings on the Jury Lands; most of the prairie
style buildings in Canada are located in metropolitan areas where they do not
have the ability to interact with the land in the expansive settings that Wright
had perceived. Additionally this type of architecture suited the site much better
than many of the other styles present during the time period due to the site’s
location in Bowmanville. In the mid-1920s, when the site had been completed, it
was considered far from downtown Bowmanville since it was in a predominantly
agricultural area. The dominance of this agricultural landscape aided the designs of
the site by fusing it with the existing rustic settlement.
The Jury Lands site represents one of the few remaining examples of the prairie
school architecture left in Canada and is a unique piece of Canada’s architectural
history. Most importantly in terms of architectural value, the buildings on the site
that represent prairie style are well constructed and designed.
According to the Ontario Heritage Trust (OHT), the buildings on the Jury
Lands are a good representation of prairie style of architecture. In regards to the
buildings’ references to prairie style, the OHT states that “These characteristics

are well represented at Camp 30 and as a collection they hold architectural and
contextual significance” (Ontario Heritage Trust, 2009).
All of the buildings on the site were designed by architects employed by the
provincial government. F.R. Heakes and George White were the primary architects
on the site, though Heakes is credited with the design of most buildings. George
Williams was also involved in the design of some buildings.
F.R. Heakes is most famous for his design of Chorley Park in Toronto (See Figure
5), which unfortunately was demolished in 1961. Other notable Heakes designs
are the Superior Court of Justice in Thunder Bay (See Figure 6), the Mining
Building at the University of Toronto (See Figure 7) and the Whitney Block also
Figure 5
in Toronto. At the Jury Lands site, Heakes designed the cafeteria, gymnasium, Chorley Park, Toronto c. 1920
Kiwanis House, Ferguson Hall, and Jury House. These buildings are only some
of the buildings that are notable in the design history of Heakes, who was once
a prominent civil architect. As a result, the Jury Lands site contains some rare
artifacts that are emblematic of the province’s evolution in architecture and built
form. Unfortunately, many of the buildings that were designed by these architects
have been demolished.
Although the prairie style of architecture on the site is the most prominent and
frankly the most important, there are other styles that are well represented at
the Boys Training School. Other buildings on the site are traditional with a mix of
prairie style and arts and crafts, while Ferguson Hall is a “simplified classical revival Figure 6
building” (Ontario Heritage Trust, 2009). Many of the other buildings on the site, Ontario Superior Court of Justice,
Thunder Bay
which tend to be smaller storage type buildings, are merely functional designs that
bear little architectural significance.
Figure 7
The Mining Building,
University of Toronto

2
Planning Policy &

Development of the Jury Lands site will be guided by various urban growth centres, built-up areas and designated
provincial and municipal policy documents. At the provincial greenfield areas—with associated density and development
level, the last five years have seen a renewed interest in requirements. Though Bowmanville has not been identified
community planning, with the publication of the Places to as an urban growth centre, the Jury Lands site, located
Grow Growth Plan for the Greater Golden Horseshoe and within the built boundary of Bowmanville, is designated as a
the Greenbelt Plan. This interest has also been reflected in built-up area (See Appendix A).
the establishment of Metrolinx, the regional transportation
authority. These provincial initiatives provide a broad The Growth Plan identifies intensification in built-up areas
framework in which regional and municipal land use policies as the primary means of accommodating population and
regulate local development. Specifically relevant to the employment growth in GTA communities. In addition, it
development of the Jury Lands site are the Official Plans of mandates that new growth be directed towards creating
the Region of Durham and the Municipality of Clarington. transit-supportive complete communities that provide a
mixture of land uses and building types, reduces the need
for long distance commuting and increases the modal share
2.1 Ontario Legislation and Plans of transit, walking and cycling. Generally, municipalities are
expected to ensure that new development:
Places to Grow

In 2006, the Province of Ontario released Places to Grow,
the growth plan for the Greater Golden Horseshoe. The urban forms that support walking, cycling, and
Growth Plan mandates that by 2015, 40% of residential the early integration and sustained viability of
development will be in the form of intensification within transit service
built-up areas, and sets new standards and targets for density
and urban structure in Golden Horseshoe municipalities. vibrant neighbourhoods, including residential
Since its passing, all decisions made by municipalities or and employment uses
the Ontario Municipal Board under the Planning Act or

Condominium Act must conform with the Growth Plan design and urban design standards that support
(Ministry of Public Infrastructure Renewal, 2006). opportunities for transit, walking and cycling
(Ministry of Public Infrastructure Renewal, 2006)
The Growth Plan provides a statutory built boundary and
identifies three broad categories of developable land— The adjacent lands held by the Kaitlin Group to the east

of Lambs Road are identified as designated greenfield area. This land may be
developed in tandem with the Jury Lands site, and is subject to more specific
development requirements.
The Growth Plan sets new standards for density and design that must be followed
in any development of the Jury Lands site. However, a degree of flexibility is
provided to municipalities for determining where intensification will take place and
to what extent.
Greenbelt
In 2005, the province of Ontario released its Greenbelt Plan, which consolidates
the areas of the Oak Ridges Moraine and Niagara Escarpment Plan and establishes
additional protected countryside lands in the Greater Toronto Area. This aims to
concentrate future development and halt any development on valuable agricultural
land and natural features. Development within the protected countryside is subject
to strict regulation.
The Jury Lands site is located outside the Greenbelt (See Appendix B) and its
protected countryside lands and is not subject to the stringent additional regulation
for development. However, Soper Creek is identified by the Greenbelt Plan as a
river valley connection (outside the Greenbelt) (Ministry of Municipal Affairs and
Housing, 2005). The river valleys connecting the Greenbelt with Lake Ontario are
recognized as an integral component of the Greenbelt’s natural heritage system.
Municipalities and conservation authorities are subject to the following non-
binding recommendations regarding future development in these areas:
1. To continue with stewardship, remediation and appropriate park
and trail initiatives which maintain and, to the extent possible,
enhance the ecological features and functions found within these
valley systems
2. To consider land conversions or redevelopments in or abutting an
urban river valley and strive for planning approaches that:
a. Establish or increase the extent or width of vegetation
protection zones in natural self-sustaining vegetation,
especially in the most ecologically sensitive areas (i.e. near the
stream and below the stable top of bank)
b. Increase or improve fish habitat in streams and in the adjacent
riparian lands
c. Include landscaping and habitat restoration that increase the
ability of native plants and animals to use valley systems as
both wildlife habitat and movement corridors
d. Seek to avoid, minimize and/or mitigate impacts associated
with the quality and quantity of urban run-off into the valley
systems
3. To integrate watershed planning and management approaches for
lands both within and beyond the Greenbelt
(Ministry of Municipal Affairs and Housing, 2005)
While the Greenbelt Plan imposes no binding requirements on the Jury Lands site,

the recommendations regarding river valleys are best practice for environmental
management and function as a useful guide for potential treatment of the Soper
Creek.
Metrolinx
Established in 2007, Metrolinx is a provincial agency tasked with planning
and operating an integrated regional transportation network for the GTA, and
encouraging movement towards more sustainable transportation alternatives.
To accomplish these goals, Metrolinx has prepared the Big Move Regional
Transportation Plan, identifying future priorities for expansion and enhancement
of the region’s transportation infrastructure.
The Big Move Plan foresees expansion of rush hour express rail service to
downtown Bowmanville within the 15-year horizon. Beyond the 25-year time
horizon of this plan, extension of the Highway 2 bus rapid transit corridor from
Oshawa to Bowmanville and Newcastle is possible (Metrolinx, 2008). In addition,
eastward expansion of Highway 407 from its present terminus through Clarington
to Highway 115 is planned. Metrolinx encourages new community development
to be pedestrian, cycling and transit-supportive, in aid of creating a sustainable
transportation system.
The extension of rush hour express rail service to Bowmanville may create
additional demand for housing in Bowmanville, but appears unlikely to cause any
major changes in urban form.
2.2 Regional and Municipal Legislation and Plans

Regional Municipality of Durham
The region’s responsibilities as they pertain to this project include: approval
authority for local official plan amendments, review and commenting on plans
of subdivision applications, zoning by-law amendments, consents and Ministry of
the Environment certificates of approval (Region of Durham, 2008). Since any
development that takes place on this site will require an Official Plan amendment
and a zoning by-law amendment they will need to be in keeping with regional
policies and plans for the area.
The Region of Durham Official Plan shows the site designated as Living Areas along
the eastern portion of the property and Major Open Space Areas following along
the streams on the property.
Living Areas
The Region of Durham mandates that lands designated as Living Areas are to
incorporate a wide variety of housing types, sizes and tenure to provide living
accommodations addressing various socio-economic factors. These areas are to
be developed through intensifying and redeveloping existing built up areas in a
compact form. Although the predominant land use should be residential, the
designation also permits some commercial uses, recreational and public uses, and

limited office and retail uses provided they are in centres designated in the official
plan (Region of Durham, 2008).
Major Open Spaces

This regional designation for Major Open Spaces is predominantly meant for
conservation but also permits agricultural uses, with the provision that other non-
agricultural uses may be determined by the local Official Plan (Region of Durham,
2008).
Municipality of Clarington
The Official Plan for the Municipality of Clarington indicates that the northern
two thirds of the Jury Lands site are designated as Future Urban Residential Area,
the southern third of the site as Community Park (See Appendix D), and the area
surrounding Soper Creek as an Environmental Protection Area (Municipality
of Clarington, 2007). An Official Plan amendment will be required in order to
designate the Future Urban Residential and Community Park lands as Urban,
Medium, or High Density Residential.
Current zoning for the site permits a private school use only under the zone
R1-10 (Municipality of Clarington, 1984). While the current use of the site as a
private school no longer exists the zoning does not become obsolete. Any new
development will require an amendment to the zoning by-law, either to remove the
exception from the R1 designation to permit residential use, or to apply another
zoning designation altogether to permit a variety of uses.
Future Urban Residential Area

An area is designated as a Future Urban Residential Area when the lands are not
required for residential use within the time frame of the plan, which is until 2016.
As such there are no detailed land uses allocated for the area. Until additional
residential lands are required, the land is to be used for agricultural purposes
or other interim uses as long as they are not capital intensive, require municipal
services, have no negative effect on natural heritage features, or jeopardize the
future development of the land (Municipality of Clarington, 2007).
Environmental Protection Area

The Environmental Protection Area designation prevents any development from
taking place along the Soper Creek valley that runs along the western edge of
the property and along the streams at the north end. This designation requires a
minimum setback of 5 metres from top-of-bank but precise determination of the
setbacks will be done in consultation with the Conservation Authority through the
development application review process (Municipality of Clarington, 2007).
Community Park
General policies for parks in Clarington require connection to open space systems,
noise alleviation measures, central location within the community they will serve,
access from two sides and street frontage greater than 25 percent. Co-location
with schools is encouraged to facilitate sharing of facilities. The Community Park
designation specifies a catchment population from 15,000 to 25,000 persons

and an area from 4 to 12 hectares. The intention is for the community park to
provide outdoor and indoor recreational facilities, though these are not specified
(Municipality of Clarington, 2007).

In order to gain a better understanding of the existing conditions in the
Municipality of Clarington and more specifically Bowmanville, IPS has developed a
community profile. This profile has helped guide IPS’ vision, goals, and objectives
that are introduced later in the report.
Demographics
In the 2006 census, Statistics Canada reported a population of 77,820 for
the Municipality of Clarington. Bowmanville, the largest community in the
Municipality of Clarington, has a population of 31,830. Clarington is the fourth
fastest growing municipality in Ontario and the fastest growing municipality east
of Toronto. Between 2001 and 2006 Clarington’s population increased by 11.4%,
which is almost double the provincial average of 6.6% (Statistics Canada, 2009).
Clarington’s largest population cohort is between 35 to 49 years of age
(See Figure 8).
There is also a large population between the ages of 5 to 19 years. Due to the
significant number of people in these cohorts, Clarington has a high number of
families in the municipality with 22,590 families with an average of 3.1 persons
per family. Clarington‘s median age of 36.9 years is also lower than the provincial
average of 39 years.
Figure 8: Clarington Population Breakdown
Source: Statistics Canada, 2009

Building Typology
Uniformity in building typology dominates the housing landscape in Clarington.
As seen in Figure 9, 79.9% of all housing in Clarington is in the form of single-
detached, with row housing representing the second largest proportion at 7.5%.
There are very few duplex or apartment buildings in the municipality, which has
led to a far lower density (127.3 people per square kilometer) than surrounding
municipalities such as Oshawa (366.0 people per square kilometer) (Statistics
Canada, 2009). As Clarington is the fourth fastest growing municipality in Ontario
this will influence the necessity to create more density in future development in
the municipality.
Clarington’s community profile also gives a detailed breakdown of the average

price paid for each housing type found within Bowmanville, Courtice, and
Newcastle (See Figure 10). The average prices paid for each housing type show
that single-detached and link or row houses command the most money.
Labour Force
As of 2006, based on the total experienced labour force of those 15 years and
over, the top three industries include manufacturing, other services, and business
services. Of the total labour pool including 41,900 workers, 7115 were employed
in manufacturing, 7,105 were employed in other services not categorized, and
6,650 were employed in business services (See Figure 11). While there appears
Figure 9: Building Typology as a Percent of Total Housing

Figure 10: Average Price Paid per Housing Type in Clarington
Housing Type Average Price Paid
Bowmanville / Courtice Newcastle
Detached $ 270,288 *!
Semi-Detached *#+! n/a
Condo / Apartment $ 151,750 n/a
Link houses $ 229,205 *#!;"
Condo / Townhouse $ 180,750 n/a
Attached / Row /
$ 196,147 n/a
Townhouse
Source: Municipality of Clarington, 2008
to be a strong labour force present in Clarington it is important to note that more

than half of the labour force works outside of the municipality. Of the 41,900
person labour pool, 25,035 commute out of the Municipality of Clarington
and 6,825 commute outside of Durham Region to work. It is important that
Clarington attempt to create more opportunities for residents to find employment
within the municipality.
Income
The median family income (two parent families with children; 2 earners) in
Clarington is $81,900 (Clarington Profile, 2008). Clarington also indicates that
Economic Families (2 persons or more) median income is $63,600. Statistics
Canada (2006) reported, that the median earnings for persons 15 years and over
was $34,892, almost $5000 more than the provincial average of $29,335. The high
number of families and higher earnings may explain why single-detached housing is
so prominent in Clarington.
Figure 11: Total Experienced Labour Force 15 Years
and Over by Industry

Modes of Transit to Work
As observed in building typology, there is a dominant theme occurring in the mode
of travel individuals use commuting to and from their place of employment. As
shown in Figure 12, 31,940 of 37,590 or roughly 85% of individuals drive a car,
truck, or van to work; another 8% ride as passengers in a car, truck, or van. Public
transit and walking or biking percentages represent very little of the overall mode
of travel to and from work.
Figure 12: Mode of Travel to and from Work
2.4 SWOT Analysis

IPS has conducted a SWOT analysis in order to better understand the strengths,
weaknesses, opportunities and threats that influence the Jury Lands. These factors
have all been equally considered and thus incorporated into the vision for site
redevelopment and its associated processes. The results of the SWOT analysis will
help guide IPS’ recommendations moving forward.
Strengths
!"#& '
"*+ <
=
in addition to the site’s conformity to governing provincial policies
>
community east of Toronto) therefore justifying appropriate proposals for
development
>
of Ontario, suggesting they may have more disposable income
> ?
to preserve the heritage of the site through adaptive reuse of its buildings
?
@Q

the Jury House, Kiwanis House, Natatorium, Cafeteria and the Infirmary
building
>

Canadian architecture, especially in institutional buildings
>
> @Q

provincial, and municipal levels
Weaknesses
X
urban boundary in Bowmanville. This could make it hard to attract
businesses and community members to the site
Z @Q [#
plain and has multiple tributaries running through it, therefore restricting
the parts of the site that can be developed
@Q

transit, possibly enabling a high dependency on personal vehicles
@Q

X

cost of rehabilitation may far exceed the cost of demolition
>< @Q \
which means an Official Plan amendment is required. Official Plan
amendments may only occur when the Municipality of Clarington is
undergoing an Official Plan review
'
!
As a result, the cost of improving the standards of existing buildings and
structures may be extensive depending on the future use of the building.
An example of this is the pool in the natatorium that no longer meets the
safety requirements for an indoor pool
>

#

making it hard to seamlessly integrate new development
> \

considering adaptive reuse. They may be too big for a single use, yet too
small for multiple uses
Q '
]
housing and considerable reliance on personal vehicles. Suggesting that
new building types or modes of travel may not be well received or socially
acceptable within the local context
>[# @Q
development to the west. Also, the site’s south and east of the Jury Lands
may not be developed for some time, indicating potential isolation of site
activities
Opportunities
>@Q "* &
array of options for development and use
X

(covering approximately 6 of the 40 hectares of the site), there is no

development on the site, allowing IPS to develop a truly original vision
>
@Q
incorporate heritage through adaptive reuse

protection from demolition. This provides IPS time to develop creative
solutions in the form of a preservation and community development plan
>

individual buildings therefore integrating local heritage into the
redevelopment process
?
407 through Clarington in addition to GO Transit’s proposal to expand
train service into Clarington at three stops
^[
and preservation of the Jury Lands’ buildings, these funding opportunities
will suggest certain adaptive reuses as viable options
>[# @Q
opportunity to integrate a protected environmental resource
into IPS’ vision
Threats
>
@Q
\
this continues, it may impact the nature of prospective uses
X

recommended for demolition, demolition may occur in the future
> _ `{X
somewhat contentious among residents, who may feel that the designation
of the Jury
Q #
>
and rehabilitation of existing buildings
> #

sector actors pertaining to the nature, pace and location of development on
the site
>
|
surrounding the property and measures taken to keep individuals from
entering the buildings are insufficient. This makes liability an issue that
must be addressed in the near future

3
Strategic
Framework
Initial research surrounding the history, community History and Cultural Heritage
profile, planning context, and SWOT analysis of the Jury The Jury Lands have a unique architectural and historical
Lands provided IPS with a background in which to move significance within the community of Clarington as well as
forward with the creation of a community development in a national context. IPS strives to promote and celebrate
plan for the site. In order to guide this process IPS this uniqueness by proposing adaptive reuse opportunities
developed a vision of what the future Jury Lands site will for several of the existing heritage buildings on-site. IPS
represent to the community. This vision will be achieved will propose measures that sustain the existing form and
by establishing specific goals and objectives all of which tie materials of designated historic properties, therefore
into three fundamental themes surrounding the successful preserving its heritage.
redevelopment of the Jury Lands.
Community
3.1 Vision Recreational and educational programs and other
opportunities for adaptive reuse will be provided to facilitate
IPS envisions a community where residents and visitors will: community use by Bowmanville residents and integrate the
Jury Lands with the surrounding community.
Z

Z Natural Environment
events and celebrations The redevelopment plan for the Jury Lands will respect
[ and enhance the significant natural features on-site, most
^ < importantly the Soper Creek.
3.2 Themes 3.3 Goals and Objectives

Taking into account the above goals and objectives, as well In order to achieve this vision and guide the creation of a
as the information accumulated from prior research, IPS has community development plan for the Jury Lands, IPS has
developed three fundamental themes to be incorporated into identified the goals and objectives found on the next page.
a community development plan for the Jury Lands. These
themes represent:

Goals Objectives
Identify buildings for reuse or Demonstrate architectural significance
demolition with justification for of each building
proposed reuse opportunities
Record historic use of each building
Assess physical condition of
each building
Discuss potential adaptive reuses
Develop projects and programming Establish a management organization to

appropriate for the Jury Lands in guide development in the interests of
keeping with the vision and mission the community
identified by IPS
Identify potential partnerships,
external funding sources and
development incentives
Promote and preserve the Jury Lands

historical resources
Integrate the Jury Lands with the Connect the site with new and
established community of Clarington upgraded roads, trails and pathsProtect
and provide public access to green
space
Develop programming in conjunction

with existing local cultural groups
Involve the community in the

planning and implementation of the
redevelopment of the site
Achieve the most appropriate level Research the significance of the

of Municipal, Provincial and Federal buildings and their past uses
heritage designation for the existing
buildings Provide a rationale for the protection
and rehabilitation of the buildings
Create a proposal for redevelopment Present a number of possible directions

of the Jury Lands in keeping with the to the client
vision and mission identified by IPS
Integrate client feedback with
IPS recommendations

4
Community
Development Plan
Although the Jury Lands site currently sits on the outskirts History and Cultural Heritage
of Bowmanville, the areas surrounding the site are slated for The rich architectural and historical significance of the Jury
future residential development. Looking at this long-term Lands will be celebrated and protected through the creation
potential for the Jury Lands IPS believes it can play a key role of a Heritage Conservation District (HCD) encompassing
in providing a space for residents of Bowmanville to gather, the central portion of the property. This area includes the
celebrate, and learn about local history. original Boys Training School buildings and central green
space, used by generations of students and also as the core
The dynamic and innovative redevelopment IPS envisions of Camp 30. The HCD will protect these buildings and their
for the Jury Lands will be a mixture of residential and physical relationship to each other.
commercial development, adaptive reuse of heritage
buildings and community recreational facilities. The Adaptive reuse will attract both tourists and local residents,
Jury Lands redevelopment will also incorporate a scenic while celebrating the history of the site and the architectural
green space focusing on the Soper Creek. Through the character of the buildings. This is essential in sustaining
combination of development and site design this community the heritage value of the site through frequent use of the
development plan sustains the unique heritage value of buildings and core area.
the Jury Lands by integrating it with a new residential
community. The community space provided will not only Community
serve to attract new residents, it will integrate the Jury Establishing connections to the wider Clarington community
Lands with the Clarington community while attracting is an important component of the redevelopment plan. This
tourists from Canada and around the world. integration will be both physical, through the creation and
extension of trail and transit infrastructure, as well as social.
The revitalized heritage buildings will be home to recreation
4.1 The Development Concept facilities, performance spaces, and retail attractions. There
will also be opportunity for passive recreation in the green
In preparing the community development plan (See Figure
and public spaces.
13) for the Jury Lands, IPS focused on the three themes
identified previously to ensure the creation of a healthy and
Natural Environment
vibrant community.
The proposed development respects the natural environment
of the Soper Creek, treating it as an asset and essential

TH1
SM1 S1
A1
S2
SM2
A2 TH2
M1
M2
> <=
TH4
S4
SM4
TH5
Figure 13
Community Development Plan

component of the site. Much of the Soper Creek floodplain will be naturalized,
encouraging the growth of native species and creating new habitats where
appropriate, in the form of brush, ponds and marshlands (7). The integrity of
the Soper Creek tributaries that run across the site will be respected by new
development. An extensive path system through the flood plain and community
will strengthen the bond between humans and nature.
4.2 Residential Areas

The Jury Lands will be developed with a combination of single-detached, semi-
detached, townhouse and apartment dwellings, with the largest portion being
street-facing townhouses. Townhouses with rear laneway access will front on to
Concession Street and Lambs Road, providing transit-supportive density along
these major streets.
Southern section
In the southern section of the site, single-detached homes are located in the
interior, with a number of semi-detached homes, as well as a single low-rise
apartment building, which overlooks the Soper Creek. An open area along the
western edge of this section provides an excellent view to residents and allows easy
access to the natural environment. This area is well connected to its surroundings
by the multi-use trail system, but offers a quieter style of life. The townhouse units
along Lambs Road and Concession Street East provide increased density along
these arterial roads, making them more pedestrian friendly and transit supportive.
A small playground (1) is provided in the north end of this section for use by
neighbourhood children.
Central section
The central section of the site, just north of the heritage core, is slightly higher
density with a combination of townhouses, low-rise apartments and semi-detached
homes adjacent to low-rise office buildings with ground-floor retail. This area
is easy to access from Lambs Road, and conveniently close to the facilities and
amenities offered by the re vitalized heritage resources.
Northern section
A tributary of the Soper Creek separates the northern section of the Jury Lands
from the rest of the developable lands. This section would be connected to Lambs
Road by a bridge spanning the tributary. A low-rise apartment building is proposed
at the Lambs Road intersection, with the area reached by bridge primarily
developed as single-detached homes, and semi-detached homes, with townhouses
at the north.

4.3 Community Facilities
The heritage buildings at the core of the site will see a renewed life serving both
local residents and visitors. A central plaza (3) provides a flexible multi-use space,
appropriate for performances, markets, and gatherings. Plaques and signs will
commemorate events that occurred at this location, revealing the history of the site
to visitors.
The facade of Ferguson Hall will be rehabilitated from its present condition (See
Figure 14) to function as an open-air performance space in the summer and skating
rink in the winter, with a small service and storage structure constructed near
its former main entrance. The Jury House is recommended for conversion to a
Figure 14 daycare facility. The workshop buildings will be renovated and rented out as studio
Conceptiual Rendering of and gallery space to local artists, artisans and craftsmen. The cafeteria will be
Ferguson Hall
converted to an event hall/restaurant or food-based retail store specializing in local
products. The Infirmary will be converted into a boutique hotel, serving tourists
and vacationers. Kiwanis House will be converted into a museum focusing on the
history and significance of Camp 30 and Canada’s war effort. The Triple Dormitory
will be used as a conference facility.
Two remaining parcels of land (4) within the loop road are reserved for future
building development. Located within the HCD, these potential future buildings
would be sympathetic in form to the important heritage of the site.
To the west below the ridge of the site are landscaped passive recreation areas (6)
with amenities such as small, individual BBQ stands and removable picnic tables to
encourage casual use. Mitigation measures will be examined, if deemed necessary
by the Municipality, to ensure safety within range of the flood protection area.
4.4 Circulation
IPS proposes an extensive multi-use trail and path network throughout the site, and
linking it to the existing and potential future trail systems of Bowmanville. These
trails run along the Soper Creek connecting residential units, heritage buildings,
commercial hubs and green space. Trails will minimize disruption to natural
features while maximizing both convenience and scenic vistas. The original paths
and barriers of the site are remembered through a special brick treatment along
their routes.
Public roads in the residential areas, and a private road system within the
heritage core serve automobile traffic. Visitor parking is provided in two lots
(5) conveniently near larger attractions. The circulation system enhances the
site’s natural vistas, allowing people to experience the Jury Lands by walking,
riding or driving. Connectivity and accessibility have been well integrated into
the development of this plan, in order to facilitate an enjoyable, relaxing and
unforgettable experience for both residents and visitors.

4.5 Projected Density
The available area has been calculated in order to provide a basis for an estimated
number of units for each housing type. Each parcel of land shown in Figure 13 has
been assigned a code based on the housing type for that parcel.
Using the Municipality of Clarington’s zoning regulations, the minimum lot

dimensions for each housing typology were used to generate a sample property to
serve as a baseline for calculations. For instance, the minimum lot dimensions for
R1 designations will allow for the creation of a sample property with a total area
of “x”. By dividing the total amount of available land (“y”) by “x”, the maximum
number of units that can be developed of that particular housing typology can
Figure 15
Projected Unit Range

be determined. The following table shows the area for each parcel of land, the
appropriate zoning designation for that parcel and the minimum lot size allowed
by the zoning and a basic calculation of the number of units possible following the
above calculations.
The application of specific zoning regulations on parcels of land on the site is

primarily for illustrative purposes. The intention is to provide a picture of the
number of units the site can expect to yield (based on our goals and objectives)
including their approximate location. Once the maximum number of units based
on minimum lot size has been calculated, the same calculations will be completed
based on the minimum lot size multiplied by 20%. Property sizes will therefore
differ to accommodate a variety of family sizes and income levels (See Figure 15).

5
Heritage
Designation
Together, the previous two interim reports introduced the register, along with Ferguson Hall. A map illustrating the
concept of heritage designation, discussed its many facets, boundaries of the district can be found in Figure 16. IPS
and illustrated the effects that it can have on buildings and chose these boundaries based on historical considerations as
properties. This process has allowed IPS to gain a greater well as natural features occurring on the site.
understanding of how heritage designation would best fit
within the context of the Jury Lands site. The second interim The HCD plan will allow for municipal management of
report provided a comparative analysis between a Heritage development, establishment of minimum maintenance
Conservation District (HCD) and individual building standards, and the possibility of providing financial incentives
designation. This research distinguished heritage districts for private development. The benefits of designating the Jury
by highlighting key points regarding why districts are used, Lands as an HCD include:
respective advantages, and other important characteristics.
~ '
At the outset of IPS’ research, all 18 buildings on-site were ~ '
listed on the municipal register. This register provides > ?# '
interim protection to buildings with heritage potential. It is @Q ^
the first step to designation at the Provincial level. Recently, ^ ^
Council reduced the number of listed buildings to six. The Understanding of the Jury Lands
rest of the buildings have been either removed from the ^ @Q
register or marked for demolition. The buildings remaining of Historic Places
on the register were chosen based on their condition and
architectural significance, historical relevance and proximity The central theme of HCDs is the manner in which they
to one another. encapsulate and define a site. Unlike standard heritage
designation, districts apply macro-level considerations that
define the over-arching character of a site. For instance,
5.1 Recommendations the significance of an HCD often extends beyond its built
heritage, structures, streets, landscape and other physical
IPS recommends the creation of an HCD that includes the
and spatial elements, to include important vistas and views
central buildings and land in between. This district will be
between and towards buildings and spaces within the district.
confined to the middle section of the property and will
encompass all of the buildings currently on the municipal

The heritage designation process on a building-by-building basis tends to be too
narrow in its focus to encompass such macro-level considerations. When the
cultural heritage of an area extends beyond qualities of individual buildings and
structures , an HCD is the best course of action.
Figure 16
Heritage Protection Plan
5.2 Requirements
In order to determine the applicability of HCDs, certain criteria must be
examined within the context of the site in question. These criteria were adapted
from the Ministry of Culture’s Guide to Heritage Conservation Districts. The
following describes the qualities that heritage districts should consider regarding a
site, as well as a follow-up that links these criteria to the Jury Lands:
Provincial/Municipal Designation
The protection of heritage properties is affected most by the Ontario Heritage
Act, which is implemented through municipal government, Council and heritage
committees. At this level, properties such as the Jury Lands can achieve protection
through designation. The following is a brief summary of some benefits designated
status can bestow on a building or property:
Z

attributes and
~ ]

consent from Council

Requirement Site Characteristics
A concentration of heritage buildings, Buildings at Jury Lands are in close
sites, structures; designed landscapes, proximity of one another
natural landscapes that are linked by
aesthetic, historical and socio-cultural Share a common historical, cultural and
contexts or use architectural background
Some buildings share similar prairie-

style architecture
Common historical and cultural bond

through the institutional uses present
A framework of structured elements Circular road network defines the site

including major natural features such and creates a physical boundary to help
as topography, land form, landscapes, frame heritage buildings
watercourses and built form such
as pathways and street patterns, Also helps to define and strengthen the
landmarks, nodes or intersections, cultural character of the area as a whole
approaches and edges
A sense of visual coherence through the All of the current on-site buildings
use of such elements as building scale, display comparable mass and height as
mass, height, material, proportion and well as material construction, which in
colour that convey a distinct sense of turn strengthens the character of the
time or place site
Prairie style architecture interacts with

the surrounding landscape to provide
idea juxtaposition to complement style
A distinctiveness which enables Jury Lands site displays certain

districts to be recognized and distinctiveness when juxtaposed against
distinguishable from their surroundings residential development to the west
or from neighbouring areas
Rare example of clustered institutional
buildings built in prairie style
Jury Lands are culturally and histori-

cally unique to the area and beyond
Federal Designation
Federal level heritage preservation has an entirely different role than that of the
provincial and municipal levels. Primarily, federal heritage preservation takes
place through specialized grants and subsidies based on specific qualifications. If
designated at this level, the eligibility of the Jury Lands site for grants and subsidies
is substantial.

In terms of building support and interest in the site, designation at the federal level
allows for the Jury Lands to be included in the National Register of Historic Places.
This allows for information pertaining the Jury Lands to be available though this
program, boosting the visibility of the Jury Lands and increasing cultural tourism in
the area.
5.3 Potential Issues

Initially, IPS’ primary concern was the provision of any additional limitations
on lands adjacent to the HCD. The 2005 Provincial Policy Statement states that,
“Development and site alteration may be permitted on adjacent lands to protected
heritage property where the proposed development and site alteration has been
evaluated and it has been demonstrated that the heritage attributes of the protected
heritage property will be conserved” (Ministry of Municipal Affairs and Housing,
2005).
Any provisions affecting development on adjacent lands must be set in place

through the creation of a district plan. Municipalities are required to adopt a
district plan for every HCD. This plan must include a statement of objectives,
policies and guidelines for managing development within the district. It is through
this district plan that any additional limitations on development of adjacent land are
prescribed and enforced.
IPS recommends that the district plan does not place any additional limitations
on adjacent lands other than what the zoning itself will allow. The boundary of
the district will run across the entire site from east to west and the northern and
southern boundaries will be based on tributaries running across the site (See Figure
16).
5.4 Designation Process

The designation of a heritage district requires the completion of a comprehensive
process by the municipality. All HCDs should be based on a sound rationale,
proper boundaries, meaningful public participation and a complete HCD plan. The
Ontario Ministry of Culture explains the process of completing an HCD, which can
be found in Appendix C.
Clarington has an established HCD in their municipality and should therefore

be experienced with the process required to complete a successful document.
IPS recommends that this process begin as soon as possible with the request to
designate followed by consultation with the local municipal heritage committee.

6
Property
Management
The development of the Jury Lands has attracted a great deal Inc.). However, IPS has not conducted a proper name search
of attention among local residents. The success of the Jury and the board may decide that a different name is more
Lands as a community and tourist attraction will depend on appropriate for the corporation.
proper integration of the heritage district with the privately
owned properties surrounding it. 6.1 Conditions for Municipal Ownership
Some controversy has been generated due to the spread The Kaitlin Group has offered to donate to the municipality
of rumors and apprehension on the part of the property the portion of the property on which most of the significant
owner and the municipality to commit to any specific buildings sit. IPS recommends that the municipality accept
course of action without public consultation. Ideas for the the offer with the following conditions:
development of the site and use of the existing buildings are
plentiful but a unified vision has yet to be decided. >

to the satisfaction of the municipality
IPS recommends the creation of a not-for-profit corporation Z

to oversee the redevelopment of the Jury Lands. This will and have not been recommended for demolition by
ensure that the wishes of the municipality, the property the municipality, be included in the offer
owner and the public are addressed in a way that conforms > `
to the goals and objectives set out in this report. the board of directors of JLM Inc. and commit to
the recommendations of the board in developing the
This section discusses the conditions under which the Jury Lands
municipality will take ownership of the buildings, an
overview of the responsibilities of the not-for-profit Upon fulfillment of these conditions, and others as
corporation, the corporate structure of a not-for-profit agreed upon by the two parties, the municipality will take
management organization for the Jury Lands HCD, short- possession of the buildings located on the Jury Lands and
term objectives and goals of the organization and the benefits JLM Inc. will assume responsibility for them.
of using a not-for-profit corporation to manage the Jury
Lands HCD and properties.
For the purposes of this report IPS will refer to the not-for-
profit corporation as Jury Lands Management Inc. (JLM

6.2 Guiding Principles and Responsibilities
The decisions of the board will be guided by the following goals:
^

community at large
@Q
^
# @Q
=
@Q
JLM Inc. will take on the following responsibilities in pursuit of the above goals:
[#

of the buildings within the HCD
?

the Jury Lands to the community at large
*
Bowmanville Boys Training School
?#~
community facility
?
@Q~

adjacent to the HCD
6.3 Corporate Structure
IPS recommends that the Municipality of Clarington register a not-for-profit

corporation for the purpose of facilitating the restoration and reuse of the Jury
Lands buildings and HCD.
JLM Inc. will ultimately be governed by a volunteer board of directors chosen

through a selection process initiated by the municipality. Until the board has been
finalized the municipality will appoint an interim board to govern for a period
of no greater than one year. This interim board should begin the restoration and
redevelopment process, and create the terms of reference. Once established, the
Board of Directors will hire an executive director to provide leadership, vision and
a public face for JLM Inc. and the Jury Lands as a whole. Staff may also be hired for
administrative, grant writing and other duties as the board sees fit. The board will
enlist the help of volunteers for committees and special events and may contract
firms for landscaping, marketing or other services.
The board should consider forming committees to implement initiatives in the

following categories:

= ~


[ =
~

^
Each committee will be chaired by a member of the board and consist of members
of the community with a special interest or expertise in that field.
6.4 The Board of Directors
The board of directors for the not-for-profit corporation should consist of one
representative from each of the following groups:
>?

expertise and ensure that the Jury Lands are developed in keeping with the
applicable plans and policies
>?
representative of the wishes of Council and the residents of Clarington and
Durham Region
> `

a timely manner
> '>
opportunities
> _
comment on the impact of development on the community in general
>Z {
buildings are restored appropriately and that new buildings do not detract
from the architectural integrity of the existing buildings
?Z
cultural heritage of the Jury Lands
> @Q
as an attraction
6.5 Executive Director
The executive director will be hired to fulfill the following responsibilities:
?

\
\
Z

\

@Q?^ !&
=
]]
Q

Q
\

{ \
^
(adapted from: McNamara, 1997)

Managing the property within the HCD through a not-for-profit corporation

is preferable to direct management by a department of the municipality, or a
volunteer committee for the following reasons:
@Q?^ !
Kaitlin Group and individual members of the board.
@Q?^ !

its own budget and financing
>

ongoing operations
>@Q?^ !

public and potential investors/partners
(adapted from: Industry Canada, 2002)
JLM Inc. will have the ability to devote all its resources and time to this single
project and will give the municipality legal distance from its operations. The
municipality will benefit from this arrangement, as it will not need to burden staff
with the responsibilities associated with such a large undertaking. The Municipality
of Clarington is not in the business of restoring, maintaining and reusing heritage
buildings at the scale seen with the Jury Lands.
The Kaitlin Group’s participation on the JLM Inc. board of directors will
demonstrate their appreciation for the needs of the community and their
willingness to create a development that is fully integrated with the HCD. Any
differences that may arise between the Kaitlin Group and the Municipality
regarding the type of development desired will be resolved through JLM Inc. with
direct input from the other board members.
As a not-for-profit corporation, JLM Inc. will be required to file information with

Canada Customs and Revenue Agency (Industry Canada, 2002), and will require
dedicated staff and bureaucracy in addition to that of the Municipality. Criticisms
of special purposes bodies such as this suggest that they are needlessly complex
(Kitchen, 2002), but JLM Inc. will posses special knowledge not held by the
municipality and will take a proactive approach to communication with the public,
increasing transparency and accountability.

7
Partnership
Opportunities
A common theme appearing in IPS’ research was that of organizations collaborated to redevelop the former industrial
community based partnerships. Almost all of the different complex into a prominent arts, culture and entertainment
case studies analyzed (See Appendix D) incorporated some pavilion within Toronto’s downtown. Artscape purchased
form of community-based partnership in redevelopment a 20-year lease on 2 buildings and moved 60 new tenants
efforts. A partnership can be understood as a mutually into these buildings. This partnership between the property
beneficial agreement, prompting two or more groups to owner and anchor tenant increased the appeal of the site to
work together to achieve compatible goals (Frank & Smith, the arts community and creative entrepreneurs resulting in a
2000). Partnerships in any form, grant both organizations diverse tenant mix, including the following:
opportunities to learn and grow through a shared
experience. Productive partnerships allow for the exchange Z
of skills, knowledge and experience between the involved ]
parties. >
~
In terms of adaptive reuse and programming for the Jury ?
Lands, IPS recommends the incorporation of community- Z] \
based partnerships. The Brickworks redevelopment in (adapted from Sinclair, 2005)
Toronto is an innovative example of how a not-for-profit
organization partnered with existing community groups Community-based partnerships are particularly suited
to deliver programming. The list of community partners to the redevelopment of the Jury Lands, they allow for
at the Brickworks includes: the YMCA of Greater Toronto, the community to be actively involved in all aspects of
Gardiner Museum of Ceramic Art, Jamie Kennedy Kitchens, the process, including the identification of needs and
Toronto District School Board and the University of decision-making. Understanding the local context such
Toronto’s Health Knowledge Lab (Evergreen, 2009). as demographics, local character, goals, strengths and
weaknesses is key to these types of agreements. IPS has
IPS found another successful example of this type of therefore compiled a list of potential community groups
partnership in the Distillery District case study (see that have an established presence in the community and
Appendix D). After purchasing the Distillery District in may provide opportunities to aid in the redevelopment of
2001, Cityscape entered into a partnership with Artscape, the Jury Lands (See Appendix H). By drawing on the rich
a local not-for-profit urban development firm. These community resources Bowmanville and Clarington have

to offer, IPS hopes to integrate the Jury Lands with the existing social network.
Establishing strong local connections will promote the new and exciting programs
implemented on-site while ensuring community support.

8
Community
Engagement
IPS recognizes community engagement as an essential part historical significance of the Jury Lands and why it
of the planning process, in which a collective vision can be is worth preserving. Provide residents with a
embraced and implemented by both project leaders and succinct yet comprehensive knowledge base from
stakeholders. Engagement ultimately contributes to the which they can make informed decisions regarding
quality and longevity of any proposal; residents are more the fate of this site and its buildings. This stage will
inclined to offer support for approval after being involved allow the organization to gauge the reaction of the
in a proposal’s inception and implementation. The manner community to the vision developed by IPS thus
in which citizens are integrated into local decision-making identifying and addressing any concerns or issues
processes directly impacts levels of public pride and
investment in local development initiatives.

interest among residents and facilitate
IPS conducted a thorough local context review in order to communication through a project website
develop a vision statement reflective of community values. (See Figure 17), media plan, social media, direct
This vision takes into consideration current demographic mail, information sessions, kiosks/displays,
trends as well as regional growth management policies newsletters, site tours or any other means deemed
that influence the nature and pace of development in appropriate. This stage attempts to trigger dialogue
Clarington. Goals and objectives have been stated as a means between project leaders and residents through a
of attaining this vision, in addition to themes of history, variety of channels. Organizers must be prepared
cultural heritage, community and natural environment. to offer incentives like childcare and food at
These themes indicate the most fundamental components meetings to accommodate to the needs of residents
of the cultural heritage plan, one of which is community, whose time is very valuable
implying the inherent importance of citizen engagement.
Since IPS will outline actions for instigating positive changes ~ #
in the built environment, it is crucial to outline actions will capitalize on the local knowledge and expertise
for corresponding social changes as well. It is therefore of all interest groups. This allows citizens to
recommended that JLM. Inc create an engagement strategy influence any planning efforts undertaken to achieve
to carry out the following actions: the vision, goals and objectives for the site. It is
advised that JLM Inc. use the following tools and
~ techniques for developing this plan: citizen group

work sessions, surveys, interviews, open houses, and
youth programs such as essay-writing contests
[ \#

function and design decisions for the redevelopment
plan. This stage allows planning and design
professionals to explore several options for site uses and layouts, based on
the stated values of the community. Scenario evaluation serves as one
mechanism for comparing concepts, designs and reuse opportunities.
Frequent charettes may be held to allow for the on-going incorporation of
feedback from residents in the form of ranking, dot voting, criteria matrix,
pro/con evaluation, and process of elimination
#

familiar with its components due to their on-going participation in the
process. This presentation will depict a clear direction for the project
while acknowledging the contributions of residents in enhancing any
prospective benefits. This may take place as an open house celebration on
its own or in accordance with another local event. This may provide an
opportunity for discussions of implementation ensuring integration of
community, heritage and environment as the foundation of development
(Community Engagement Associates, n.d.)
Civic deliberation, as described above, strives to link Clarington’s history with its
contemporary experience by encouraging its citizens to participate in the process
for preserving its historic resources. JLM Inc. will seek out novel community data
gathering techniques to ensure that the Jury Lands redevelopment is the product of
community-based partnerships.
Figure 17
Jury Lands Website Concept

9
Opportunities
for Adaptive Reuse
Following the decision to preserve and maintain the site as a Retention of the original building’s ‘embodied energy’,
HCD, IPS looked at how to best incorporate the reuse of the which is the energy consumed by all of the processes
existing heritage buildings into the community development associated with the production of a building. In addition,
plan. These options were informed by IPS’ vision and newer buildings sometimes have higher embodied energy
objectives as well as Clarington’s goals for economic costs than buildings that have been adaptively reused.
development:
Social
>
The quality and design of the built environment influences
the employment base and promote the Municipality standard of living as well as impact on natural resources.
as a prime business location in the GTA Adaptive reuse can restore and maintain the heritage
> significance of buildings and help ensure their survival, with
in reasonable proximity to their workplaces opportunities for residential, commercial or institutional
> _ use.
recreational and tourism opportunities
(Municipality of Clarington, 2008) Economic
If there is a combination of financial incentives and evidence
IPS understands that adaptive reuse should have minimal of commercial opportunities then there is a possibility
impact on the heritage significance of the structures and their for savings and returns, like embodied energy savings, to
setting. It is important to recognize why each building has outweigh extra restoration costs and project risks.
heritage status in order to execute a development strategy
that is sensitive to its historic features. Adaptive reuse Innovation
will preserve heritage integrity by adding a contemporary Provides dynamic ways of dealing with development pressure
layer that enhances a building’s future value, rather than (Department of Environment and Heritage, 2004)
undertaking significant alterations to the original structure.
The benefits of adaptive reuse are as follows: The options for adaptive reuse described in this section are
based on research conducted by IPS. They will support the
Environmental vision, themes, goals and objectives outlined for the Jury
Rehabilitation of buildings that are invaluable components Lands redevelopment and fall into the following categories:
of the community’s landscape, identity and amenities. recreation, arts and culture, tourism and retail/commercial.

9.1 Recreation
Incorporating recreational opportunities into the redevelopment of the Jury Lands
is inline with IPS’ vision and themes and also helps achieve the goal of integrating
the Jury Lands with the Clarington community.
Trail System
An objective for community integration is to connect existing trails to the Jury
Lands site. The Soper Creek trail currently runs north for approximately 710
metres from Soper Creek Park in southern Bowmanville to Highway 2 and another
unpaved section runs north from Highway 2 to Concession Street (Municipality of
Clarington, 2008). IPS recommends that the existing Soper Valley Trail be extended
north from Highway 2, connecting the existing trail to an unpaved portion ending
south of Concession Street. This extension will follow Soper Creek through the
Jury Lands site connecting the existing residential development to the west and the
central community space (See Figure 18). The trail extension will be developed
to allow cross-country skiing in the winter, ensuring it will be used actively by the
community year round.
The cost of extending this trail would be borne by the Municipality, but may
be eligible for provincial funding. Additionally, the Municipality may be able to
partner with Valleys 2000, a community based non-profit organization that helped
to develop and fundraise for the existing trails in the Bowmanville valley (See
Appendix E).
Outdoor Skating Rink

IPS has undertaken research on parks and open spaces as well as recreational
facilities in Bowmanville to better understand if there is a demand not currently
being met in the community. IPS conducted an inventory of indoor recreational
facilities and obtained a list of outdoor recreational facilities from Clarington’s
User Guide. This research showed no outdoor skating facilities in the Bowmanville
area, thus IPS recommends the creation of an outdoor skating rink on site. This
idea revisits a unique piece of the Jury Lands history, as an outdoor rink was once
part of the Boys Training School. In an effort to place the rink in a central location
as well as preserve the façade of Ferguson Hall, IPS recommends the rink be placed
in the footprint of the original building while retaining three of the
walls (See Figure 19).
Figure 18 Indoor Basketball Court and Community Indoor Recreation

Soper Creek Trail System To achieve IPS’ vision of a site where residents can access shared community
space, and also to achieve Clarington’s economic development goal of increasing
recreational opportunities, IPS recommends the Natatoruim be used as indoor
community recreation space. The gymnasium portion of the building has retained
the original wooden flooring and could be rehabilitated to serve as an indoor
basketball court. This recreational space, as well as the outdoor skating rink may be
helpful in justifying the removal of the Community Park Designation currently on
the southern portion of the site.

BBQ Stations With Space For Passive Recreation
IPS was present at a one-day summit on November 3, 2009 held by the
Municipality of Clarington regarding the redevelopment of the Jury Lands. Many
stakeholders, residents and interested parties were present and contributed to
a design charrette for the site. One idea that many residents contributed was
the popularity of BBQ areas at Orono Park (in Clarington to the northeast of
Bowmanville). Many participants at the summit mentioned that these facilities are
very popular and frequently overbooked. IPS recommends the development of
BBQ stations along the western edge of the central community space surrounding
the buildings. This area would provide space for passive recreation and would also
serve as a connection between the community area and the Soper Valley trail and
natural green space.
Playground
To facilitate community use of the Jury Lands, and to serve the surrounding
current, proposed and future residential developments, IPS recommends the Figure 19
creation of a playground close to the central community space near the existing Rendering of Outdoor Skating at
buildings. Ferguson Hall
9.2 Arts and Culture

IPS has identified arts and cultural facilities as a need currently facing the
Clarington community. Providing these types of spaces will aid in redeveloping the
Jury Lands as a dynamic site where residents can access shared community space
for local events and celebrations. A discussion with the Clarington Board of Trade
led to the realization that the Bowmanville area lacks theater and performance
space as well as arts and cultural facilities in general. Currently, Bowmanville has
only one organization dedicated to the visual arts: The Visual Arts Centre (See
Appendix E). The Visual Arts Centre’s strategic report recognizes the growing
demand for cultural opportunities in the community: 31% of households surveyed
requested additional arts and cultural programming (Visual Arts Centre, 2009).
Taking this community need into account, IPS investigated the best way to
incorporate these types of spaces into the redevelopment of the site.
Outdoor Performance Space

After recommending the creation of an outdoor skating rink in the preserved shell
of the Administration Building, IPS looked at how to use this space year round.
IPS is recommending this space be used in the summer season as an outdoor
performance space. It will be open to any community group or organization to
use, thus providing programming that meets the needs of the community. It could
also be used for local events and celebrations as it is close to the other buildings,
the public plaza and parking.
Arts and Crafts Workshop or Exhibition Space

The dynamic community hub IPS envisions for the future Jury Lands will include

space for local artists to rent. This space would serve as either workshop space or
exhibition/gallery space depending on need. IPS believes the Fire Hall/Carpentry
Shop, Library and Industrial Arts buildings would be particularly suitable for this
use. One community group that may be interested in these buildings is be the
Visual Arts Centre; one of the challenges they face in their current building is that
the layout and limited space constrains the nature and amount of programming
possible (Visual Arts Centre, 2009).
9.3 Tourism
Incorporating tourism initiatives into the redevelopment of the Jury Lands will
not only help to achieve IPS’ vision for the site, it will also serve to accomplish
Clarington’s economic development goal of increasing tourism opportunities. IPS
recognizes the unique and important history of the Jury Lands and envisions a site
where people can appreciate and learn about local history.
Camp 30 Museum
A museum celebrating the Jury Lands unique history represents an opportunity
to accomplish this vision as well as the objective of promoting and preserving the
Jury Lands historical resources. The museum, to be located in the Kiwanis House,
will provide permanent and rotating exhibit space. The focus of the museum will
be on the site’s military history as Canada’s last remaining POW camp, but will
also provide information about its other significant uses as the Boys Training School
and the Darch Farm. Information about the architectural significance of the site,
as well as former owner John Jury will also be available. The museum will include
a versatile space that will allow seasonal and temporary exhibits to be hosted,
therefore encouraging year round and repeat visits.
The Camp 30 museum will be run as a partnership between JLM Inc. and
Clarington Museums and Archives. Appendix F shows information on potential
demand and possible costs. IPS has identified a range of funding available which are
discussed in the funding section of this report.
Jury Lands Heritage Interpretation Strategy

Along with a museum on site, IPS is recommending the implementation of a
heritage interpretation strategy similar to one used in the Rocks heritage district
in New South Whales, Australia (See Appendix D). The Rocks, one of the world’s
oldest preserved colonial districts, developed this strategy to engage with visitors,
residents and workers. The strategy uses guided and self-guided walks, talks,
drama, displays, signs and a footpath to bring to life the stories told in the on-
site museum (Sydney Harbour Foreshore Authority, 2009). IPS recommends the
development of a path, tracing the old parameters of Camp 30, around the Jury
Lands site to tell the stories of Camp 30 as well as the Boys Training School. Non-
intrusive plaques and signs will be placed along the path for informational purposes
(See Figure 20).
Figure 20
Commerative Plaque Concept Together the Camp 30 museum and heritage interpretation strategy will allow

visitors to appreciate and learn about local history. The museum will be named
after Camp 30 as the military history of the site will be important in marketing the
Jury Lands to potential visitors.
9.4 Retail/Commercial
IPS recommends the inclusion of a commercial component in its redevelopment
plans for the Jury Lands. This would allow for entrepreneurial activity on site, part
of IPS’ vision and would also help to integrate the Jury Lands with the surrounding
community. Additionally, any jobs created on site would be within reasonable
proximity to current and future residential areas, one of Clarington’s goals for
economic development.
It is important to consider local context, when considering commercial or retail

activity, since it is the people who will determine the longevity of any business
ventures. Commercial and retail elements could be used to accentuate the site’s
history, as done with the Distillery District, by retaining the buildings as multi-
purpose facilities for contemporary uses such as: farmers’ markets, tea rooms,
workshop spaces/classes or local trade shows, picnics and fairs (See Appendix D).
IPS understands that these types of adaptive reuses in particular will depend heavily
on the market and advice of the local retail representative on the board of JLM
Inc., thus recommendations in this section are less specific and open to adaptation.
Banquet Hall/Local Food Restaurant/Local Food Based Retail

IPS has identified the Cafeteria building as an opportunity to develop a banquet
hall in conjunction with either a local food restaurant or local food based retail
(such as seasonal farm stands). The inclusion of a venture focusing on local foods
would help to support the local and regional economy. Clarington is home to a
significant amount of agricultural land (See Appendix G) and Durham Region as
a whole offers a diverse agricultural production that is unsurpassed in Ontario
(Durham Region, 2008). This also supports the theme of natural environment
and protection of green space as the majority of land in Clarington is designated as
greenbelt.

!"#
IPS has identified the Infirmary building as an opportunity to include a Boutique
Hotel in the redevelopment of the Jury Lands. The structure of the building
lends itself to such a use as the inside is partitioned off into individual rooms.
Additionally, a hotel on-site would provide jobs as well as increase tourism
opportunities in the surrounding area. Durham College in Oshawa is starting a
two-year program in Hospitality Management: Hotel, Restaurant & Tourism in
September 2010 (pending approval) and may be a possible partner for the running
of the hotel. The program description mentions the focus on providing students
with active learning opportunities, which could translate into internships (Durham
College, 2009). IPS understands that this particular use would be highly dependant
on the market and thus recommends that the building could alternatively be used
for office space.

!"$
"#
IPS recommends the Triple Dorm be renovated to provide conference or multi-use
rental facilities. These facilities would be made available to community members
providing a source of revenue for JLM Inc.
Daycare Facilities
Due to the amount of current, proposed and future residential development to

occur in the area around the Jury Lands, IPS recommends the reuse of the Jury
House as a daycare facility. This facility will be accessible by an arterial road
(Lambs Road) and will be close to parking as well as being accessible by foot
or cycling. The site’s long history as a school as well as the natural setting and
recreational opportunities make it a unique location for a daycare facility. This
particular use would also benefit from the inclusion of office facilities on site in the
Infirmary building. A daycare would most definitely serve to integrate the Jury
Lands with the surrounding community and would increase the marketing value of
on site office buildings as well as provide a flow of traffic for retail stores.
These proposed options for reuse will bring vibrancy to the Jury Lands with the
integration of recreational, cultural and commercial activities that support ‘good
food, good friends and good fun’. Adaptive reuse of the buildings will preserve
the site’s integrity by adding a contemporary layer and enhancing its future value.
Year-round recreational and tourist activities will ensure the Jury Lands site
becomes a hub of community activity. This hub of activity will draw both residents
and visitors into the ‘heart’ of the site to explore the historic character of the Jury
Lands, through its local restaurant, market and museum as well as other local
business ventures.

10
Financing
Options
10.1 Community Improvement Plan the lands outside this area. CIPs are often used in situations
where the adaptive reuse of a building or set of buildings is
In the event the Municipality decides to incorporate private a priority and the economic resources for capital investment
interests into the site’s management the following section are insufficient.
provides guidance as to how this process can be carried out.
If the site remains under municipal ownership the following It is clear that a CIP would be a positive step in achieving
tools may not be viable. Clarington’s and IPS’ goals of preserving the history of the
Jury Lands while establishing the site as a viable economic
IPS believes that in order to achieve the established goals resource. Although CIPs are most often directed at
of revitalization and fiscal security for the Jury Lands, a restoration efforts, there are specific goals that should be
community improvement plan (CIP) must be designed incorporated into the plan created for the Jury Lands. These
and implemented by the Municipality of Clarington. A goals are common to many CIPs and reflect the Jury Lands’
CIP will help Clarington achieve remediation of the site, situation. The goals for the CIP should be as follows:
growth management goals, and will attract employment
opportunities to the Jury Lands. As well, a CIP will allow

for the implementation of a tax increment financing (TIF) municipal initiatives
scheme, which can be used to attract investment to the Jury >
Lands. rehabilitation and redevelopment

coordinated manner
Community Improvement Plan (CIP) [
municipal incentive-based programs
One considerable challenge that the Municipality of
Clarington faces is the financial implication of restoration
IPS is suggesting implementing a municipally driven
and adaptive reuse of the buildings on the site. The design
incentive focused CIP program that will include the
and implementation of an effective CIP is the most logical
following components:
first step in solving this complex problem. The CIP will be
separate from the HCD as it will be administered by the

Municipality. However, the boundaries of the CIP will match
industrial buildings
the boundaries of the HCD, thus the CIP will not affect

# #

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Implementation/ Design
In order to design a complete CIP, Clarington the plan would have to conform to
the province’s 3-step process. Step 1 in the process is called ‘Building the Plan’s
Foundation’ and includes identifying community needs, building community
support, and preparing a detailed report to Council. Step 2 is the preparation of
the plan, which includes:
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>

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~

Step 3 of the plan involves the implementation of the plan, specifically monitoring
of the programs and service delivery and the development of a marketing program.
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The following are powers the municipality will obtain after creating a CIP:

community improvement area to pay the whole or any part of identified
eligible costs of environmental site assessment, environmental
remediation, development, redevelopment, construction and
reconstruction of lands

'

buildings, structures, works and improvements or facilities
(adapted from: Ministry of Municipal Affairs and Housing, 2008)
In regards to the encouragement of business development, municipalities are pro-

hibited from implementing bonusing strategies under law, however there are ways
in which the municipality can assist businesses. These include:
^

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10.2 Tax Increment Financing (TIF) & Tax Increment
Equivalency Grants (TIEG)
TIFs and TIEGs are tools that could stimulate private investment in the Jury Lands
by using the tax revenue generated by the new private development to pay for the
necessary improvements and infrastructure for this development to occur.
TIF and TIEG tools can be used to help municipalities create innovative financial
solutions regarding the redevelopment of heritage buildings. TIF is defined as a:
“Financing incentive based on municipal grants and loans that can be given under
the Planning Act’s community-improvement provisions. By calculating a grant
or loan on the higher property tax that is generated from development (the tax
increment), municipalities can offer eligible developers financing incentives that
will put lands and buildings that might not otherwise be developed, back into
productive use” (Ministry of Municipal Affairs and Housing, 2003).
The benefits of TIFs and TIEGs have been identified by IPS as key objectives for the
long term success of the Jury Lands, these benefits include:

community-improvement project areas
^
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existing infrastructure, services and facilities
Thus IPS recommends that Clarington implement a TIF plan or a TIEG program
to complement their CIP. This will allow for some flexibility in encouraging
investment in the Jury Lands.
10.3 Other Incentives

Once there is an interest in investment, Clarington could help to encourage this by
reducing their municipal planning related fees. This could include fees and charges
for building permits, Official Plan and zoning adjustments, site plan applications,
permits, and variances. If these fees are reduced or eliminated, Clarington could
attract increased development to the area.
Ontario Heritage Tax Credit
Depending on the ownership structure of the Jury Lands there is considerable

merit in exploring the Ontario Heritage Tax Credit program. If the lands become
and remain owned by the municipality then the tax credit program will not apply.
However, if Clarington decides to acquire then sell the lands, IPS suggests that
Clarington develop a heritage tax credit program for the Jury Lands.

10.4 Funding Programs
The initiatives proposed in this report will be implemented either directly

through JML Inc. or a participating agency such as Clarington Museums and
Archives or the Visual Arts Centre of Clarington. Funding for these initiatives will
come from revenue generating programs such as facility rentals as well as grants
from government, associations and foundations and donations from community
members.
Appendix H summarizes the initiatives proposed in this report along with potential
funding for implementation. The amount of funding available varies significantly
from program to program. The Canadian Museums Association, for example, offers
grants of up to $1000 towards projects budgeted at $500 to $1000 to restore
archival materials for display. The Parks Canada National Historic Sites Cost-
Sharing program on the other hand, reimburses up to $425,000 (or %50 of costs)
for restoration of a National Historic Site.
Proposals for funding require detailed descriptions and budgets for each
initiative and deadlines are throughout the year. Many established not-for-profit
organizations employ an experienced grant writer who is familiar with the process
and can help get the most out of a funding program.

11
Moving
Forward
In conjunction with the creation of a land-use map for future development and
uses, IPS has outlined an agenda for phased recommendations. The following out-
lines IPS recommendations for short-, medium- and long-term actions to be taken
by all involved parties seeking to realize the vision for the Jury Lands.
Phase One
Time Period 1 to 2 Years
Goal 1A Integrate the Jury Lands with the established

community of Clarington
Actions Undertake regular site maintenance (removal

of all debris, small-scale structural repairs to
buildings, cleaning building interior, landscaping)
in preparation for any interim uses
Conduct safety audit to identify and

address liabilities
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resource for disseminating site
redevelopment information
Install video surveillance system to deter

trespassing and vandalism
Form JLM Inc. to supervise planning initiatives

related to redevelopment as well s future
on-site operations

Form a volunteer group, Friends of the Jury Lands,
who will support most of the initiatives in this
initial phase
Allow and encourage passive interim uses like

dog-walking, picnics, photography to maintain
human presence on the site while steps are being
taken to acquire formal designation for heritage
resources
Pave and reconnect the trail system along the

Soper Creek to allow citizens to interact with the
natural environment
Contact local media (television, radio and print

journalism) to give exposure to the plans for the
designation and redevelopment of the Jury Lands
Renovate the Fire Hall/Carpentry Shop, Library

and Industrial Arts buildings and make them
available for use as community art spaces
Complete development reports as listed

in Appendix I
Goal 1B Achieve the most appropriate level of municipal,

provincial and federal heritage designation for the
existing buildings
Actions Host a series of citizen panels and town hall

meetings to facilitate local awareness of the
redevelopment process
Get documented community support for

designation with petitions
Fundraise at local events like bingo games,

auctions, sporting events to support future
restoration of heritage buildings
Submission of HCD application by JLM Inc. to

ensure prospective development preserves the
site’s heritage qualities
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Plan and current zoning to allow for mixed-use
development and slightly higher densities

Phase 2
Time Period ;Z
Goal 2A Develop projects and programming appropriate for

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by IPS
Actions JLM Inc. to form partnerships with local groups in

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environment, tourism and culture allowing for
local investment, entrepreneurial opportunities
and joint ventures
Market and promote the Jury Lands on a local,

regional and national scale to attract investors,
tenants and visitors
JLM Inc. to hire a grant writer and/or experienced

fundraiser to seek and acquire multiple sources
of funding through grants from the government or
private foundations
Conduct visioning exercise with community

to discuss and critique the adaptive reuse
opportunities being considered for the site
Goal 2B Create a proposal for redevelopment of the Jury

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Actions =

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of JLM Inc.
JLM Inc. to oversee negotiations between major

stakeholders (potential Jury Lands tenants
and residents)and the Clarington community
to determine how the CIP will be implemented
alongside the HCD
Hold public consultation sessions to update

citizens on progress of site redevelopment and get
feedback on how well JLM Inc. has been meeting
its goals

Phase 3
Time Period 5 to 10 Years
Goal 3A Identify buildings for reuse or demolition with

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Actions JLM Inc. to decide on what buildings will be

integrated into the central community hub through
adaptive reuse based on professional advice and
community input
Complete development reports evaluating the

impact of development on the physical, economic,
social and ecological surroundings (HIA, EIA, TIA)
Remediate selected buildings and preserve their

heritage qualities for adaptive reuse
Acquire servicing required for mixed-use

developments and upgrade any existing
infrastructure
JLM Inc. to supervise the construction process for

the residential, retail/commercial and community
space components ensuring that all HCD
requirements are respected
Goal 3B Integrate the Jury Lands with the established

community of Clarington
Actions Facilitate a shorter homeowner and tenant

turnover by promoting any ownership, leasing and
rental opportunities in the Jury Lands
JLM Inc. to collaborate with the Municipality

to maintain the physical condition of the site’s
community space

Conclusion
IPS has been commissioned to create a community development plan for
the Jury Lands site in Clarington. The group has been asked to explore
and present options for adaptive reuse of the site’s historic buildings.
These opportunities for reuse, however, must be socially acceptable
to the local population, economically viable for the developer and
municipality as well as environmentally sensitive to the nearby Soper
Creek. IPS has conducted preliminary research on the site’s geographic
context, history, demographic trends, heritage legislation provisions and
relevant preservation planning precedents to inform its recommendations

most from a mixed-use redevelopment with a particular emphasis on
culture and heritage, interconnected green spaces and facilities conducive
to entrepreneurial activity. As a result, IPS developed a vision and
corresponding themes that seek to transform the Jury Lands into a multi-
functional and dynamic space for local residents and visitors.
The innovative redevelopment IPS envisions for the Jury Lands will be
a mixture of residential and commercial development, adaptive reuse of
heritage buildings and community recreational facilities. The Jury Lands
will also incorporate a scenic green space focusing on the Soper Creek.
IPS has determined that in order to best preserve the history of the Jury
Lands an HCD should be established. In addition, depending on the needs
of the municipality the HCD plan should be complemented by a CIP with
provisions for TIF and TIEG funding options. IPS has recommended
an optimal structure for the management of the site. This management
company (JLM Inc.) will draw on local knowledge, expertise and will
pool resources to execute the redevelopment plan. IPS recognizes the

conjunction with the creation of a land-use map for future development
and uses, IPS has outlined an agenda for phased recommendations.
The community development plan created by IPS outlines a logical
course of action for project leaders and stakeholders who will ultimately
determine the extent to which the goals and objectives are met. Adherence
to the recommended course of action will ensure that the expectations of
the project, as stated earlier, are met if not surpassed.

REFERENCES
Artscape (2009). About Artscape. Retrieved October 30, 2009 from: http://www.torontoartscape.on.ca/about
Barris, Daniel. (1982) The Making of a White Elephant - Pine Ridge Training School. Oshawa Times.
Blumenson, John. (1990). Ontario Architecture: a Guide to Styles and Building Terms 1794 to the Present.
Fitzhernery and Whiteside, Markham
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List of Figures
Figure Title Page
1 Regional Map 2
2 Local Map
$%" 5
4 Pembroke Public Library 6
5 Chorley Park, Toronto c.1920 7
6 Superiod Court of Justice, Thunder Bay 7
7 The Mining Building, University of Toronto 7
8 Clarington Population Breakdown
9 Building Typology as % of Total Housing 14
10 Average Price Paid per Housing Type in Clarington 15
11 Total Experienced Labour Force 15 Years and Over by Industry 15
12 Mode of Travel to and from Work 16
Community Development Plan 22
14 Rendering of Ferguson Hall 24
15 Projected Unit Range 25
16 Heritage Protection Plan 27
17 Jury Lands Website Concept +
18 Soper Creek Trail System 40
19 Rendering of Outdoor Skating at Ferguson Hall 41
20 Commemorative Plaque Concept 42

Appendix
A Places to Grow Map
B Greenbelt
C Heritage Conservation District Flow Chart
D Case Studies
Distillery District
Evergreen Brickworks
Angus Shops
Hecla Block
Grand Traverse Commons
Bushells Warehouse Redevelopment
E Potential Community Partners
F Museum Background Research
G Agricultural Land
H Funding Proposals
I Development Reports
J Field Research

Appendix A - Place to Grow Map

Appendix B - Greenbelt Plan

Appendix C - Heritage Conservation District Flow Chart

Appendix D: Case Studies
Case Study Distillery District, Toronto, Ontario

Historical 13-acre national historic site comprised of approximately 40 buildings and 10 streets located just
description east of downtown Toronto, north of the Gardiner Expressway and west of the Don Valley Parkway.
and local Gooderham and Worts Distillery (original name) was founded by brothers-in-law, William and
context James, in 1832. By the 1850s, it was one of the largest functioning distilleries in the British Empire
allowing Canada to claim its place as an economic frontrunner. In December 2001, Cityscape
Holdings Inc. purchased the site with the intention of turning the dilapidated buildings into a
pedestrian centre for arts, culture and entertainment.
Heritage The Distillery was categorized as a national imposing landmark in 1988, due to the nature and type
Designation of its built form, cohesive architectural style and its role in shaping the Canadian economy on a
Status global scale. Its collection of Victorian Industrial Architecture is the largest and best preserved in
North America.
Heritage The derelict condition of the buildings required demolition, construction, restoration as well
Preservation as infrastructure replacement, therefore a significant investment. Estimated project costs were
Strategy $6,699,685 with anticipated contributions from the federal and provincial governments amounting
to approximately $1,000,000. After sixteen months of intense repair and renovation by the owner,
the Distillery opened to the public in May 2003 (Distillery District, 2009). The Distillery has
seamlessly integrated galleries, theatres, restaurants, cafes and boutiques into its heritage buildings
– fulfilling the need for social vibrancy and economic growth. Redevelopment has been strategic
in its appeal to both residents and tourists, who are drawn to this multi-functional dynamic space
conducive to explorations of history, art and culture. Moreover, it has spurred new development of
mixed-use housing in the immediate vicinity of the site.
Evidence of Arts and culture integration emerges as a strong theme in this case study, from the inception of the
IPS’ themes Distillery’s redevelopment plan to its current operations and future expansions. The Distillery also
seems to have a powerful connection with the surrounding community as the district has always
been embraced as a national treasure and thus a permanent fixture in the identity of citizens. IPS
should therefore mimic the Distillery’s success in forming a relationship between neighbouring
residents and visiting patrons as a means of stimulating income on-site. IPS also needs to develop
a strategy for elevating the Camp 30 legacy as a culturally relevant piece of Canadian identity
through education campaigns or other appropriate means in order to support its proposed
designation as a heritage site. The Jury Lands will benefit greatly from an action plan that proposes
a ‘multidimensional experience’ like the Distillery where people can explore the site’s intriguing
history in addition to another use whether that is residential, retail or commercial.

Case Study Evergreen Brick Works
Historical The Brick Works is a former quarry and industrial site located at 550 Bayview Avenue, on the
description floodplain valley of the Don River. It was created in 1889 by brothers John, William and George
and local Taylor who profited significantly from the high quality clay bricks produced on-site. By the 1980s,
context the company offered to sell the Brick Works site to the municipal government for conservation
purposes. Extended discussions amongst public officials resulted in the rezoning of the site to
residential. The Toronto and Region Conservation Authority (TRCA) expropriated the land in 1987
for a cost, then leased the space and sold the equipment on-site (Evergreen, 2009).
Heritage It is at the centre of Toronto’s industrial and architectural heritage and includes one of the five
Designation most important geological sites in North America. The area was converted to a park in order
Status to emphasize its industrial, geographical and natural features. The quarry was converted to a
marshland park while the North Slope was declared an archaeologically significant site.
Heritage In 1994, the TRCA launched a full-scale restoration process in conjunction with the City of
Preservation Toronto’s Culture Department who currently manages the property and its buildings. The
Strategy goal of the process was to transform the deteriorating site into a vibrant space rich in nature,
culture and community. Evergreen has estimated the redevelopment of the Brick Works as a
$55,000,000 project, and has therefore relied on the federal and provincial government to
provide significant funding (approximately 50%). Some buildings have been restored for reuse
while others remained closed due to the lack of funding required for the preservation of some
of its original structures. Evergreen worked closely with Heritage Preservation Services and
Ontario Heritage Trust to ensure that all relevant legislation, by-laws and policies were respected.
Heritage impact assessments, natural heritage studies and conservation studies were conducted to
evaluate the impact of the redevelopment process on the condition of the surrounding natural and
historical resources. Adaptive reuse was a chief objective in this process and as a result more than
95% of the original structures were incorporated, while new buildings were constructed from
environmentally-sensitive materials and according to Leadership in Energy and Environmental
Design (LEED) standards (Evergreen, 2009).
Evidence of The themes are realized through the stakeholders’ efforts to preserve the site’s heritage, address
IPS’ themes present societal and ecological demands while also endorsing more sustainable growth management
practices. Upon completion in 2010, the site will engage residents of Toronto and visitors as an
education centre by using gardening centres, heritage tours, organic food markets and restaurants
to build a relationship with the natural environment. IPS’ heritage preservation plan must therefore
address missing elements within Clarington’s current and future community plans in order to
strategically incorporate them into the redevelopment process as legitimate and viable components.

Case Study Angus Shops, Montréal, Québec
Historical In 1902, Canadian Pacific Railways (CPR) opened Angus Shops as a servicing facility for trains and
description locomotives, with approximately 12,000 employees on-site. CPR began to close all its maintenance
and local shops in the 1970s. The closure elicited a development proposal for a 100 acre residential and
context commercial structure on the eastern portion of the site. However, fierce opposition from local
merchants prevented any further consideration of this project.
Heritage No formal designation; community significance

Designation
Status
Heritage In 1983, the land was sold to a non-profit agency, the Société des Terrains Angus (STA), jointly
Preservation administered by the City of Montréal and the Government of Québec. This non-profit agency then
Strategy initiated a redevelopment plan to convert the Angus Shops Industrial complex into a residential
community based on the feedback from the community members. Community organizations
rallied together, as the Rosemont Housing Committee, demanding that the site be used for
affordable housing. The developers achieved a scale and architectural design that was respectful
of the traditional Montréal city block and complementary to both market and social housing. The
Angus Shops project is one of several large-scale redevelopment projects across Canada that used
similar funding schemes to create affordable housing opportunities for low- and moderate-income
households on old industrial sites in urban areas.
Evidence of The Angus Shops project shows how strategic planning and citizen engagement in community
IPS’ themes development can facilitate great social impact. The theme of community-building and citizen
power is evident in this case as the Rosemont Housing Committee advocated for a large-scale
mixed-income and ethnically diverse redevelopment project. Their involvement in the process
undoubtedly altered the social composition of the neighbourhood as well as the economic structure
of the project. Angus Shops’ inclusive housing types opened the door for funding from various
government levels for the affordable housing component as well as restructuring of local municipal
regulations and initiatives. IPS should strive to include the citizens of Clarington in appropriate
decision-making processes such as the use of any community spaces on-site, therefore validating
their roles as ‘community-builders’.

Case Study Hecla Block, Edmonton, Alberta
Historical The Hecla Block is located in the Boyle /McCauley neighbourhood of Edmonton at 10141 95th
description Street. The block was built by John Johnson in 1914, part of the city’s first generation of apartment
and local buildings. The neighbourhood struggles with systemic issues relating to crime and inadequate
context services and infrastructure, which has been reflected in the poor standard of land use planning in
the area. The housing stock is of substandard quality resulting in increased vacancies. The lack of
cohesiveness between the built form and surrounding land uses and services has led to perpetual
traffic congestion on local roads, higher incidences of crime, poverty and unemployment. In
addition to its implicit planning issues, Boyle/McCauley has a great concentration of special needs
individuals, low-income families and transients whose social and economic needs are not being met
(Miller, 2009).
Heritage The Hecla Block was devastated by a fire in 1994 but remains an important landmark in the area
Designation due to the historical significance of its architecture. The Edwardian Classicism style is expressed in
Status its ornate cornice, parapet, red texture brick, buff stone trim, curved entrance canopy and flat arch
window heads (Miller, 2009). The city’s heritage program financially supported restoration of the
Hecla Block with a grant of $135,000 while declaring it a Municipal Historical Resource in 1999
(Herzog, 2004).
Heritage Frank Bowen, a local real estate agent, has initiated the process of redevelopment and restoration
Preservation for the Hecla Block. The developers involved intend to utilize financial incentives available for
Strategy the exterior rehabilitation of old buildings considered ‘municipal historic resources’. Bowen has
commissioned local architect David Murray to solve the physical and code-related deficiencies
for converting the building to 14 home-office suites. A new roof has been installed and interior
stabilization work has been done with exterior rehabilitation to be done at a later date (Miller,
2009). Adaptive reuse of the Hecla Block will provide residents and neighbouring communities
with a legitimate connection to rich historical assets that exist in Boyle/McCauley (Miller, 2009).
This legacy can be strengthened by increasing vibrancy in the neighbourhood with pedestrian
pathways, open spaces and multifunctional spaces as opposed to preserving the structure as a
dormant space paying tribute to the past. For the Hecla Block, the most significant benefit of this
redevelopment will be the relief of social burdens that previously plagued the community.
Evidence of Relevant themes include the restoration of forgotten or neglected relics by shaping modern
IPS’ themes developments or adaptive reuses to harmonize with the existing urban form. The design and layout
(physical attributes) of the Hecla Block exacerbated social challenges rather than mitigating them,
leading to an unhealthy living environment. This case highlights the value of preservation planning
and adaptive reuse as a means of intervention, capable of transforming a physical manifestation of
social disparity into something more positive.

Case Study Grand Traverse Commons, Traverse City, Michigan, USA
Historical Traverse City is located on the shores of Grand Traverse Bay and is one of the fastest growing
description regions in the state of Michigan (The Minervini Group, 2009). This 63-acre national heritage site
and local sits on one of the Midwest’s most sought-after locations with approximately 480 acres of preserved
context parkland (Geocities, 2006). Northern Michigan Asylum (its original name) opened in the western
portion of the City in November 1885. The hospital closed in the 1989 as part of a national
movement towards de-institutionalization of persons with mental health issues.
Heritage Historic assets located on-site include the original asylum building (Building 50), cottages,
Designation farm buildings and an arboretum (An Ancestry.com community, n.d.). Despite national register
Status designation, this former state hospital complex faced serious threats of demolition (Miller, 2000).
Heritage The Kirkbride building is now known as Building 50, the largest structure on-site which has
Preservation been saved from several demolition attempts and incorporated into the existing redevelopment
Strategy referred to as ‘The Village’ or ‘Grand Traverse Commons’ (An Ancestry.com community, n.d.). The
historic buildings on-site are no longer in danger of demolition due to the collective efforts of the
Committee to Preserve Building 50, the Minervini Group, the Grand Traverse Pavilions, Rolling
Centuries and the Grand Traverse Commons Redevelopment Corporation. These groups include
local residents, developers currently managing the site’s redevelopment process as well as public
officials who value the cultural significance of these buildings. This group is directed by experienced
historic renovator Ray Minervini, who created and secured a Redevelopment Agreement for the
site which complied with the City’s District Plan (Land Information, Access Association, 2006).
Feasibility studies, marketing research and environmental analyses were conducted to assess the
viability of this project.
Evidence of This case study demonstrates how the partnering of local organizations can create a support
IPS’ themes network capable of accomplishing great feats. Residents in Traverse City organized themselves
into citizen panels (informal groups involved in community planning) in order to demonstrate
their support for the adaptive reuse of The Village by the Minervini Group. The developer’s role in
initiating the process should be noted because it greatly influenced the level of public engagement
that took place during the legal negotiations. This case study shows the impact of citizen
engagement in expediting development projects at the local scale when the initiative is perceived to
be feasible and a fundamental part of local identity.

Case Study Bushells Warehouse Redevelopment/Rocks Heritage District, New South Wales,
Australia
Historical The 494 sq. m. site is bound by George Street, Bushells Place, Hickson Road and Metcalf Bond
description Stores. The No.88 warehouse at 1886 George Street and the interconnected No.86 warehouse
and local at 1912 Geogre Street are closely associated with the commercial activities of the Rocks, and in
context particular the Bushells Tea company. The Rocks is located at the foot of Sydney Harbour Bridge and
on the western shores of Sydney Cove. No.88 was the first to be built in 1886 by Virgoe Son and
Chapman, who were prominent importers and merchants. In 1904, Bushells Ltd., entrepreneurs
in the commercial tea business leased the building. The two buildings, No. 86 and No. 88, were
interconnected to accommodate the single occupant - Bushells (New South Wales Government:
Heritage Branch, n.d).
Heritage The Bushells Warehouse sites are of State heritage significance due to their aesthetic and historical
Designation values. The buildings (No. 88 and 86) are also of State heritage significance for their contribution
Status to the economic prosperity of the Rocks area, which is on its own a State Heritage site. No.88
has a late Victorian Free Classical style while No.86 has a Federation Warehouse style (Australian
Heritage Places Inventory, 2009). Together these buildings are an important landmark and enhance
the streetscape quality, providing the community with a strong identity and character.
Heritage After Bushells vacated the premises, the buildings were used as storage facilities for the
Preservation Departments of Education, Labour and Industry in 1924. From 1948 to 1951, the buildings were
Strategy renovated to house the offices and libraries of the Department of Public Health. From 1976 to
1977, a new plaza was created at the corner of George Street and Hickson Road, with the help
of a donation from the Bushells Group of Companies to commemorate its long association with
The Rocks. During 1984 to 1985, the site was redeveloped to modify the building for commercial
offices as well as various retail facilities like shops, cafes and galleries. Both buildings were
structurally enforced during the redevelopment process in order to preserve the original structure
as well as facilitate the addition of new units without any liabilities (New South Wales Government:
Heritage Branch, n.d).
Evidence of This case study shows how adaptive reuse can evolve alongside the community to serve a variety of
IPS’ themes purposes, whether institutional, commercial or retail while still asserting its historical importance.
The Warehouse site and its buildings are symbolic of New South Wales’ economic accomplishments
in trade and commerce on both a local and regional scale. The Rocks has been designated a heritage
district and has developed a detailed heritage interpretation strategy aimed at drawing out the
stories told in the on-site Rocks Discovery Museum, and bringing them to life in the streets,
buildings and places of the Rocks (Godden Mackay Logan Heritage Consultants, 2006). The aim
of heritage interpretation is to engage with visitors, residents and workers in the district (Sydney
Harbour Foreshore Authority, 2009). Different strategies used in the Rocks include: guided and
self-guided walks, talks, drama, displays, signs and more. A footpath inlay has also been designed to
guide visitors around the district.

Appendix E: Potential Community Partners
Artscape
Artscape is a not-for-profit, urban development organization that revitalizes buildings, neighbourhoods, and cities through
the arts. Artscape projects provide affordable space for creativity while generating positive cultural, economic, social, and
environmental impact. While Artscape’s real estate development activities are focused in Toronto, it also shares knowledge
with communities across Canada and around the world. Artscape has transformed a portfolio of underutilized buildings
across Toronto into dynamic community assets (Artscape, 2009). Thus it may be a valuable resource in terms of advice on
transforming old buildings, as well as how to transform the workshop building into a local rental space for arts and crafts
work.
Bowmanville Rotary Club

The Bowmanville Club has been a part of the local community since 1924. This club has raised funds to help the local
community and international projects. It has provided financial assistance for hospital equipment purchases, worked with the
Easter Seal Society, supported families with children of special needs, and helped with senior programs and care among other
things (The Rotary Club of Bowmanville, 2009). The recent Rotary International Centennial project beautified the gardens at
the Visual Arts Centre and purchased an educational trailer on behalf of the Fire Station. The Rotary Club may not represent
a funding source but this established community-based organization would be a valuable network for promoting the Jury
Lands redevelopment project.
Clarington Architectural Conservancy (ACO)

This group is actively involved in discussions around the redevelopment of the Jury Lands site and was represented at the
community charrette in early November 2009. An organizational mandate of the ACO is to help communities preserve
buildings and structures of architectural merit and places of natural beauty and interest. The ACO may provide resources and
guidance in preservation and adaptive reuse of the buildings on-site (The Architectural Conservancy of Ontario, 2009).
Durham College
Durham College is located in north Oshawa at 2000 Simcoe Street North. IPS has identified one program in particular that
is complementary to the redevelopment of the Jury Lands site. This 2-year program in Hospitality Management – Hotel,
Restaurant and Tourism is slated to start in 2010 (pending approval) (Durham College, 2009). IPS recommends JLM Inc.
approach Durham College about partnering opportunities specifically related to the running of an on-site boutique hotel,
catering services and the Camp 30 museum. Student interns could contribute to the operations of these on-site tourism
activities while providing a valuable and unique hands-on learning experience.
Kiwanis Club of Oshawa-Durham A.M.

The Kiwanis House, part of the original Boys Training School, was named after a donation from the local Kiwanis Club.
This global organization of volunteers is dedicated to changing the world, one child and one community at a time. Although
the focus of the Kiwanians is work with children, they are very involved in building playgrounds as well as funding and
supporting childcare centres. Additionally, every April 10 is Kiwanis One Day; the entire Kiwanis family comes together for
one day of hands on community service (Kiwanis International, 2007). Due to this organization’s history with the site, there
may be an opportunity for support involving a playground or daycare. It may also be possible to obtain volunteers for a site
clean up day in April 2010.
Lions Club
The Bowmanville Lion’s Club has been active in serving the community since 1935; donations have been made to those in
need and to many worthy projects within the community. This organization holds numerous fundraising events throughout
the year including a community BBQ and they also provide services for Scouts, Cubs, Beavers and Cadets among other

groups (Bowmanville Lions Club, 2009). It may be possible to obtain a contribution of funding or volunteer labour for the
redevelopment of the Jury Lands. Additionally, this long-standing community group may provide guidance and resources in
undertaking a fundraising campaign for a museum or other components of the site redevelopment. In the future, the Jury
Lands may serve as a location for community events and thus could be an appropriate site for one of their annual community
events.
Masons: Jerusalem Lodge No. 31 Bowmanville

Another Bowmanville group that is active in serving the community, the Masons use their resources for the benefit of the
community at large. Although they focus on poverty relief and educational advancement, they support other initiatives
beneficial to the community as a whole (Jerusalem Lodge No. 31, 2007).
Royal Canadian Legion: Bowmanville Branch

Legion branches across the province are actively involved in fundraising and supporting other community-based
organizations. Additionally they support and run various youth programs focusing on recreation/sports and leadership
(Royal Canadian Legion, 2009). Due to the Jury Land’s unique history, and its recreational opportunities, it may be possible
to partner with the Bowmanville Legion branch to run youth programming on-site. This would be one way of integrating the
site with the surrounding community.
Valleys 2000
This non-profit community based volunteer organization was formed in 1999 and is dedicated to the rehabilitation and
environmental enhancement of trail systems in the Bowmanville valleys. Their mandate is: to provide passive recreation
for persons of all ages and activity levels while protecting and enhancing the fish and wildlife habitats. They have received
funding for their efforts in the past from the provincial government, the Bowmanville Lions Club and the Ontario Trillium
Foundation (Valleys 2000, 2009). The group would be a great resource for the extension of the current Soper Creek Trail, as
it coordinates local volunteer efforts of labour, equipment and materials for trail development in the area.
Visual Arts Centre of Clarington

The Visual Arts Centre of Clarington (VAC) is a not-for-profit charitable organization involved with arts education,
exhibition and promotion located in Bowmanville. The VAC has been providing quality exhibition and educational
programming to the community for 35 years and is housed in the historic Cream of Barley mill on Soper Creek (Visual Arts
Centre, 2009a). The VAC may be a valuable partner considering their interest in nurturing the cultural development of the
community

Appendix F: Museum Background Research
Tourism Statistics, Number of Visitors
In 2006:
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(Ministry of Tourism, 2006)
Comparable Cost Examples
The Royal Canadian Regiment Museum in London, Ontario

This museum is housed in a wing of historic Wolseley Hall, a designated national historic site. The museum is conducting a
capital campaign to raise money for building renovations (update and expansions). According to an request for proposal put
out earlier this year, the estimated cost of construction for this project is $1,300,000 (Defence Construction Canada, 2009).
The museum’s website also states that in 2007 the province of Ontario Ministry of Culture contributed $240,000 towards the
capital campaign (Royal Canadian Regiment, 2009).
The Orillia Museum of Art and History in Orillia Ontario

Located in Downtown Orillia, this museum is housed in the Sir Sam Steele Memorial Building, built in 1894 (Orillia
Museum of Art and History, 2009). The building is in need of renovation and additions; as a result the museum recently asked
City Council for $475,000 towards the total cost of the renovation project, estimated at $1.89 million. The remainder of the
museum renovation costs will be covered by government grants and a fundraising campaign (Whalen, 2009).
Both of the above examples serve to show that although costs of renovations will be substantial, government grants are
available to cover part of the capital costs of such a project and a fundraising campaign would most likely be necessary.

Appendix G: Agricultural Land

Appendix H: Funding Proposals
Initiative Potential Funding Funding Available Eligibility

Source
Restoration of designated Benjamin Moore & Co. and Up to $4000 cash and up to $750 in Registered charities with volunteers from the community
heritage buildings Community Foundations of paint
Canada
more information: Nancy F. Johnson Tel: 519-827-1395 Email: nfjohnson@gto.net
Canadian Heritage - Cultural up to 50% of eligible project costs for Not-for-profit corporations that have been active for at
Spaces Canada expansion/construction or least two years
renovation, specialized equipment
purchases or feasibility studies
more information: http://www.pch.gc.ca/pgm/fcec-capf/index-eng.cfm
Parks Canada - National up to $425,000 towards the Owners or leasees of property within a national historic
Historic Sites of Canada restoration of components of a site of Canada including incorporated not-for-profit
Cost-Sharing Program national historic site organizations, and provincial, regional or municipal
governments
more information: http://www.pc.gc.ca/progs/lhn-nhs/ppf-csp/index_e.asp
Extension and Ontario Ministry of Health $440,000 available in grants For trails with natural or treated surfaces, bicycle routes,
maintenance of the Soper Promotion - Trails for Life annually over five years waterway routes and more.
Creek trail into the Jury
Lands
more information: http://www.mhp.gov.on.ca/english/sportandrec/recreation/trailsstrategy/default.asp
Parks Canada and Nature up to $5000 Not-for-profit organizations providing educational
Canada programs related to the environment that take place in
National Historic Sites with large natural areas.
more information: Email: dlaur@naturecanada.ca http://www.pc.gc.ca/eng/docs/v-g/ep-pp/index.aspx
Jury Lands / Camp 30 Department of Canadian varies For projects that tell the story of Canada's cultural and
Museum Heritage - Museums natural diverse heritage presented by incorporated not-
Assistance Program for-profit museums or heritage services organizations.
more information: http://www.pch.gc.ca/pgm/pam-map/index-eng.cfm
Canadian Museums Nine grants of up to $1000 each For artefact restoration and preservation projects
Association - Preserving budgeted for between $500 and $1000. Applicant must
Canadian Treasures be registered members of CMA with an annual operating
budget of less than $250,000 and at least one paid staff
member.
more information: Robert Levesque: rlevesque@museums.ca
Community Events Department of Canadian up to $10,000 for promotion, Not-for-profit organizations
(Canada Day celebration) Heritage - Celebrate Canada entertainment, supplies, equipment
and communications related to
events celebrating Canada Day
more information: http://www.pch.gc.ca/special/canada/invittn/103-eng.cfm#h3

Appendix I: Development Reports
The following are some of the reports that would be required in order to redevelop the site as the Jury Lands:

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The following section describes three of the above studies that correspond to the themes of history and cultural heritage,
community and natural environment identified by IPS as fundamental to the development of an optimal preservation plan for
the Jury Lands.
Heritage Impact Assessment
This assessment seeks to minimize the adverse effects of development proposals on the heritage features of the property. This
study is conducted, at an early stage of the process, by a qualified heritage specialist on behalf of a private property owner or
public sector agency when there is a proposal to:
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historically valuable
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Heritage impact assessments will provide a description of the proposal and explanation of the background for the study.
The following information would be included: location, historical context, cultural value as reflected in the architectural
features as well as building condition and typology. Public sector agencies may require applicants to undergo a more rigorous
assessment depending on the designation and/or perceived heritage value embedded in the property (City of Waterloo
Development Services, n.d.).
Connection to IPS’ themes: The Jury Lands site possesses unique architectural and historical significance therefore requiring
a thorough analysis of how any development, whether adaptive reuse or new, will impact its cultural heritage. The developer
or JLM Inc. will be required to hire a specialist to evaluate the site plan and recommend any preservation measures.
Arborist Report
A tree inventory, undertaken by an arborist, will locate and identify trees and describe their condition while making
preliminary tree protection and preservation recommendations. This information will influence the configuration of new
buildings as well as their design and location since a detailed tree preservation plan is required to ensure their protection
during demolition and construction. The arborist report would also include evaluation methods used to catalogue on-

site trees, date and time of inspections, details surrounding transplanting if necessary as well as recommendations for site
maintenance and management (Town of Richmond Hill, 2007).
Connection to IPS themes: The site is in close proximity to the Soper Creek and its floodplain, both of which are
considerably significant environmental features, protected by municipal legislation from development. Protection of the
natural environment is crucial in preservation planning, especially within a rural setting, since these resources are treasured
aspects of the physical landscape as well as potential sources for local economic development.
Community services and facilities report
This report contains specific information regarding population demographics as well as existing community services
and facilities in the area surrounding the property to be developed. This study of social infrastructure, undertaken by the
applicant’s consultant, is required for developments with Official Plan or zoning by-law amendments, new residential
neighbourhoods and other components that ultimately influence the capacity of community services and facilities (City of
Toronto, 2007).
Connection to IPS themes: This preservation plan was formulated subsequent to community data gathering, in an effort
to familiarize IPS with demographic trends, local preferences and outstanding needs within Clarington. It is from this
understanding of local context that IPS has based its recommendations and action plan. The Jury Lands proposal serves
as a means of accommodating current and future growth within this community by identifying and fulfilling any need for
community services and facilities.

Appendix J: Field Research
Sheila Hall- Clarington Board of Trade
September 24th , 2009

IPS gathered information about Clarington’s current economic development goals from a short discussion while on the initial
site visit. Clarington Board of Trade is focused on helping the community retain and attract technologically skilled graduates
from University of Ontario Institute of Technology in Oshawa. There is a general lack of arts and cultural facilities in
Bowmanville to help attract these graduates. A theater space was mentioned as a facility that is completely lacking in the area.
Site Visit
September 24th, 2009

On his date IPS visited the Camp 30 site for a tour guided by Faye Langmaid.
Visit to Clarington Museum and Archives
Oct 3rd, 2009

During this meeting IPS conducted historical research utilizing the materials available at the archives.
Kelvin Whalen – Kaitlin Group
October 19th, 2009

From this meeting IPS gathered information on the Kaitlin Group’s retirement facility, the Kingsway Arms, and the outcomes
related to such a development. IPS also gained a more in depth understanding of the Kaitlin Group’s proposed community
development plan and the current concerns relating to liability and vandalism.
E-Mail correspondence with Joseph Caruana from Clarington Community Services
October 22nd, 2009

From this meeting IPS received information on user numbers and demand for recreation facilities in Bowmanville.
Phone correspondence with Sally Barrie from Clarington Community Care
October 22nd, 2009

From this meeting IPS received information on the level of demand for long-term care facilities in Clarington as well as their
application and selection processes.
David Crome and various community members-Camp 30 Summit
November 3rd, 2009

This all-day summit and charrette allowed IPS to explore some of the following ideas expressed by community members
regarding site redevelopment. Such ideas included: an on-site military museum, outdoor BBQ stations, promotion of local
food through a100 mile diet program and botanical or memorial gardens. IPS gathered specific information about the costs
of extending the Soper Valley Trail from the Planning Director, David Crome.

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Jury Lands Community

Integrated Planning Solutions

Jury Lands Community Development Plan

Part 2.0: Planning and Policy 9

Part 3: Strategic Framework 19

Part 4: Community Development Plan 21

Part 5: Heritage Designation 27

Part 6: Property Management 31

Jury Lands Community Development Plan

Part 8: Community Engagement 37

Part 9: Opportunities for Adaptive Reuse 39

Part 10: Financing Options 45

Part 11: Moving Forward 49

Jury Lands Community Development Plan

In order to achieve the vision IPS has proposed a heritage

Jury Lands Community Development Plan I

Completed a vision statement, identified themes and completed a detailed list

“The Jury Lands”

II Jury Lands Community Development Plan

Jury Lands Community Development Plan 1

2 Jury Lands Community Development Plan

Micro Environmental Resources Overview Note:

Jury Lands Community Development Plan 3

4 Jury Lands Community Development Plan

Jury Lands Community Development Plan 5

Prairie style architecture is commonly marked by strong geometric qualities, with

6 Jury Lands Community Development Plan

Jury Lands Community Development Plan 7

Jury Lands Community Development Plan 9

10 Jury Lands Community Development Plan

2.2 Regional and Municipal Legislation and Plans

Jury Lands Community Development Plan 11

Major Open Spaces

Future Urban Residential Area

Environmental Protection Area

12 Jury Lands Community Development Plan

Figure 8: Clarington Population Breakdown

Source: Statistics Canada, 2009

Jury Lands Community Development Plan 13

Clarington’s community profile also gives a detailed breakdown of the average

Figure 9: Building Typology as a Percent of Total Housing

Source: Statistics Canada, 2009

14 Jury Lands Community Development Plan

to be a strong labour force present in Clarington it is important to note that more

Source: Statistics Canada, 2009

Jury Lands Community Development Plan 15

Figure 12: Mode of Travel to and from Work

Source: Statistics Canada, 2009

2.4 SWOT Analysis

16 Jury Lands Community Development Plan

Jury Lands Community Development Plan 17

18 Jury Lands Community Development Plan

3.2 Themes 3.3 Goals and Objectives

Jury Lands Community Development Plan 19

Discuss potential adaptive reuses

Develop projects and programming Establish a management organization to

Promote and preserve the Jury Lands

Develop programming in conjunction

Involve the community in the

Achieve the most appropriate level Research the significance of the

Create a proposal for redevelopment Present a number of possible directions

20 Jury Lands Community Development Plan

Jury Lands Community Development Plan 21

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