Date: May 8, Chair and Members Planning and Housing Standing Committee

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1 Date: May 8, 2013 To: Re: Chair and Members Planning and Housing Standing Committee Council Directive #: S /3 St. John s Municipal Plan Amendment Number 96, 2011 St. John s Development Regulations Amendment Number 514, 2011; and, Planning File #: B.17-C.5 ( ) 1 CLIFT S/BAIRD S COVE (Ward 2) Proposed Site Redevelopment: 3-Storey Hotel Extension to Parking Garage Philip Pratt Architect, for SONCO Group Inc. On December 28, 2012 Philip Pratt Architect, on behalf of SONCO Group Inc., applied for Approval-in- Principle to redevelop the site of the Atlantic Place Parking Garage on Harbour Drive by renovating the existing structure and constructing a 3 storey extension on top of the existing 8 storey building. The building extension would have a Gross Floor Area of 6503 m² (70,000 ft²) and be occupied by a hotel. The applicant advises that a relatively small number (50) of the existing 720 parking spaces would be directly lost to the redevelopment, leaving an abundance of parking spaces which would continue to be available for public rental use. Several amendments to the St. John s Municipal Plan and the St. John s Development Regulations will be required in order to accommodate the proposed development. Staff support these amendments and recommend that Council consider them for approval. BACKGROUND The subject property has a lot area of 3494 m²; is situated in the Commercial Downtown (CD) District; zoned Commercial Central Retail (CCR); and is located in Planning Area 1 (the Downtown). It adjoins the Heritage Area Overlay District and the Heritage Area 1 Overlay Zone and is not in a designated area of the Downtown which contemplates the granting of development bonuses (increased building height or Floor Area Ratio). It is a level site that has frontage on three streets - Water Street, Clift s/baird s Cove and Harbour Drive that was developed about four decades ago to complement the adjacent Atlantic Place commercial development. On its west side is Atlantic Place (Commercial Atlantic Place District/Zone). On its north is a range of traditional, 3-storey brick commercial buildings which have frontage along Water Street (CD District/CCR Zone). On the east the opposite side of Clift s/baird s Cove is the former London, New York and Paris building, a traditional, 3-storey, brick commercial building (CD District/CCR Zone).

2 Page 2 On April 11, 2011 the City of St. John's initiated the process to amend the City of St. John s Municipal Plan and the City of St. John s Development Regulations. The effect of the site-specific amendments would be to restrict the use of the AP Parking Garage site to its historic and existing use as a parking garage; and, to limit its height to its existing height of eight (8) storeys. In accordance with the requirements of the Urban and Rural Planning Act, 2000 and Section 5.5 of the City of St. John s Development Regulations, notices were posted on the City s website and in The Telegram newspaper and distributed to owners of property within a minimum radius of 150 metres of the subject property. In addition, City staff wrote the owner of the A.P. Parking Garage advising of Council s intention to undertake amendments to limit the future use of the property to a parking garage. The owners of the A.P. Parking Garage and their representatives (including their planning consultant) met with City officials, at SONCO s request, to discuss the proposed amendments to the Municipal Plan and Development Regulations with the objective of attempting to determine if there were other options of achieving the City s objectives of retaining the large parking inventory at the parking garage rather than the through the City s proposed planning amendments. To allow the parties sufficient time to complete their discussions, Council agreed in late 2011: To defer temporarily a decision on the proposed amendments to the St. John s Municipal Plan and the St. John s Development Regulations respecting the A.P. Parking Garage. That when the discussions between the Sonoco Group Inc. s legal representatives and planning consultants and City staff on possible alternative options to retain the parking inventory at the garage are concluded, the issue will be brought back to Council for discussion and direction. This present application by SONCO is part of its response to the City s earlier notice of intent to amend the Municipal Plan and Development Regulations. It s objective is to balance the needs of the City with those of the property owner by securing a large number of parking spaces for public rental, while allowing for the opportunity to generate additional income for the owner by the addition of three floors of hotel space atop the existing eight levels of largely public parking spaces. DISCUSSION Planning Considerations 1. The subject property is situated in the CD District and is in the CCR Zone. The maximum allowable Building Height in the CD District is 15 metres; the maximum allowable building height in the CCR Zone is 4 storeys (not exceeding 15 metres). The subject property is not in a designated Bonus Area (an area allowing greater than normal Building Height and FAR) as identified by Municipal Plan Map III-2 and Development Regulations Map F. To accommodate the proposed development, Council would have to agree to make several specific amendments to the Municipal Plan and the Development Regulations and subject this application to a Land Use Impact Assessment (LUIA)/Land Use Assessment Report (LUAR); this would have to consider the concept of Downtown Balance. 2. Based on the recommendation in the Downtown Parking Study, the proposed hotel development would require a minimum of 1 parking space:4 sleeping rooms + 1 parking space:7 m² of assembly space. The exact number of hotel sleeping rooms units is unspecified and cannot be determined from the submission, though the applicant s consultant advises that the number of hotel rooms/suites will not exceed 150; and that there will be no assembly (banquet/conference/meeting) areas as part of the development project. It is anticipated that creating three new floors with a GFA of 6503 m² on top of

3 Page 3 the existing building and introducing a new hotel use will draw about 50 spaces from the existing supply of 720 onsite parking spaces, leaving about 670 spaces for public rental use. 3. The subject property is in Planning Area 1 (The Downtown) and its development is affected by the PA1 Development Plan. The objectives and policies of the Planning Area 1 Development Plan support maintaining and developing the Heritage Area, which the subject property adjoins, by protecting the architectural scale of the Downtown and harmoniously integrating new development; and ensuring that an adequate supply of parking spaces is available to maintain each of the land use functions in the Downtown. The applicant s proposal would be consistent with the City s objectives and policies with regard to the Downtown. Engineering Considerations The Department of Engineering advises that as this is a vertical development being proposed, there is no impact on municipal infrastructure; and it does not foresee any issues with the exception of Traffic Division concerns about the proposed access along Harbour Drive obstructing the westward flow of pedestrians and vehicles. CONCLUSION and RECOMMENDATION An overall objective of the Municipal Plan is to encourage compact urban form by accommodating mixeduse development and development with higher densities, thus achieving better use of municipal infrastructure and more efficient service delivery. This development would seem consistent with the Municipal Plan and make good use of this commercial site by securing a sufficient supply of public parking spaces and providing needed a complementary commercial service - a hotel. If Council decides it is prepared to amend the St. John s Municipal Plan and St. John s Development Regulations in support of this proposed development, it is recommended that staff be authorized to prepare a revision to the proposed St. John s Municipal Plan Amendment Number 96, 2011 and proposed St. John s Development Regulations Amendment Number 514, 2011 which pertain to the subject property; and that notices be posted in accordance with the requirements of Section 5.5 of the Development Regulations before the proposed amendments and this development proposal are referred to a public meeting chaired by a member of Council for initial consideration and subsequent to referral to at a Regular Meeting of Council for consideration by Council. At a later stage, a Public Hearing chaired by an independent commissioner appointed by Council will be required. This is provided for the consideration of the Planning and Housing Committee. Ken O Brien, MCIP Director of Planning (Acting) Paul Boundridge, MCIP Planning Coordinator Att: Location Plan Rendering elevation Updated letter from PP/SONCO

4 Date: June 4, 2013 To: Re: Ken O Brien, MCIP Director of Planning (Acting) Council Directives #: S /3 and R /19 St. John s Municipal Plan Amendment Number 96, 2011 St. John s Development Regulations Amendment Number 514, 2011; and, Planning File #: B.17-C.5 ( ) 1 CLIFT S/BAIRD S COVE (Ward 2) Proposed Site Redevelopment: 3-Storey Hotel Extension to Parking Garage Philip Pratt Architect, for SONCO Group Inc. This is an addendum to the May 8, 2013 report to the Planning and Housing Standing Committee concerning the December 28, 2012 application by Philip Pratt Architect, on behalf of SONCO Group Inc., for Approval-in- Principle to redevelop the site of the Atlantic Place Parking Garage on Harbour Drive by renovating the existing structure and constructing a 3 storey extension on top of the existing 8 storey building. The building extension would have a Gross Floor Area of 6503 m² (70,000 ft²) and be occupied by a hotel. A relatively small number (50) of the existing 720 parking spaces would be directly lost to the redevelopment, leaving a majority of parking spaces available for public rental use. In the May 8, 2013 report it was noted that to accommodate the proposed development, amendments to the St. John s Municipal Plan and the St. John s Development Regulations will be required. It was also noted that the application by SONCO Group Inc. was in response to a process initiated by the City of St. John's in 2011 to introduce site-specific amendments to the Municipal Plan and the Development Regulations; the effect of which would be to restrict the use of the AP Parking Garage site to its historic and existing use as a parking garage; and, to limit its height to its existing height of eight (8) storeys. SONCO s application is part of its response to the City s earlier notice of intent to amend the Municipal Plan and Development Regulations. Its objective is to balance the needs of the City with those of the property owner by securing a large number of parking spaces for public rental, while allowing for the opportunity to generate additional income for the owner by the addition of three floors of hotel space atop the existing eight levels of largely public parking spaces. The amendments proposed include placing the subject property in a Development Bonus Area in which additional building height could be allowed by Council, subject to a Land Use Impact Assessment/Land Use Assessment Report (LUIA/LUAR) which would take into consideration the concept of Downtown Balance, as described in the Municipal Plan. It is the opinion of staff and the Planning and Housing Standing Committee, and Council agrees, that because of the scale and circumstances of the development proposal and amendments, the applicant s submission and the May 8, 2013 staff report shall constitute the LUIA/LUAR. Staff support these amendments and recommend that Council consider them for approval. Paul Boundridge, MCIP Planning Coordinator /sf I:\PBOUND\2013\MEMO - Ken O'Brien, June 2013.doc

5 RESOLUTION ST. JOHN S MUNICIPAL PLAN AMENDMENT NUMBER 96, 2013 WHEREAS the City of St. John s wishes to ensure the future use of the A.P. Parking Garage at Civic Number 1 Clift s-baird s Cove is maintained to its historic and current principal use as a parking garage and to allow development of a 3 storey hotel or a residential development atop the existing 8 storey structure. BE IT THEREFORE RESOLVED that the City of St. John s hereby adopts the following text and map amendments to the St. John s Municipal Plan under the provisions of the Urban and Rural Planning Act, 2000: 1. Create a new Land Use District in Part III, Section 3 ( Commercial ) of the St. John s Municipal Plan to read as follows: A.P. Parking Garage District 1. Permitted Zones In this District, which applies only to the existing A.P. Parking Garage site located at Civic Number 1 Clift s- Baird s Cove [Parcel ID # 34257], the City may allow a zone in which a parking garage for public use is the only permitted use. The City may also allow other uses it deems appropriate as discretionary uses. 2. Building Height and Bulk In this District, the maximum building height is limited to 11 Storeys and the maximum Floor Area Ratio is limited to Amend Map III-1 ( General Land Use Map ) of the St. John s Municipal Plan by redesignating the property at Civic Number 1 Clift s-baird s Cove [Parcel ID # 34257]from the Commercial Downtown District to the A.P. Parking Garage District as shown on Map III-1B attached. 3. Amend Map III-2 ( Downtown Building Control Map ) of the St. John s Municipal Plan by adding the property at Civic Number 1 Clift s-baird s Cove [Parcel ID # 34257] as an Area allowing a building height not exceeding 11 Storeys and a Floor Area Ratio not exceeding 2.25 as shown on Map III-2 attached.

6 BE IT FURTHER RESOLVED that the City of St. John s requests the Minister of Municipal Affairs to register the proposed amendment in accordance with the requirements of the Urban and Rural Planning Act, IN WITNESS THEREOF the Seal of the City of St. John s has been hereunto affixed and this Resolution has been signed by the Mayor and the City Clerk on Behalf of Council this day of, Mayor I hereby certify that this Amendment has been prepared in accordance with the Urban and Rural Planning Act, City Clerk MCIP

7 CD INST 179 CD CD CD CD CD I 236 ST.JOHN'S HARBOUR 238 CAP CD CD CITY OF ST. JOHN'S MUNICIPAL PLAN Amendment No. 96, 2013 [Map III-1B] SCALE: 1:1500 CITY OF ST. JOHN'S DEPARTMENT OF PLANNING I hereby certify that this amendment has been prepared in accordance with the Urban and Rural Planning Act. AREA PROPOSED TO BE REDESIGNATED FROM COMMERCIAL DOWNTOWN (CD) LAND USE DISTRICT TO A.P. PARKING GARAGE LAND USE DISTRICT 1 CLIFT'S BAIRD'S COVE (A.P. Parking Garage) M.C.I.P. signature and seal Mayor City Clerk Council Adoption Provincial Registration

8 RESOLUTION ST. JOHN S DEVELOPMENT REGULATIONS AMENDMENT NUMBER 514, 2013 WHEREAS the City of St. John s seeks to ensure that the future use of the A.P. Parking Garage at Civic Number 1 Clift s-baird s Cove (Parcel ID #34257) is maintained as its historic and current principal use as a parking garage and to have the power to allow development of a 3 storey hotel or residential development atop the existing 8 storey parking garage. BE IT THEREFORE RESOLVED that the City of St. John s hereby adopts the following text and map amendments to the St. John s Development Regulations under the provisions of the Urban and Rural Planning Act, 2000: 1. Create a new Zone in Section 10 of the St. John s Development Regulations to read as follows: A.P. Parking Garage Zone This Zone only applies to the existing A.P. Parking Garage site located at Civic Number 1 Clift s-baird s Cove (Parcel ID #34257) Permitted Uses (a) Parking Garage Discretionary Uses (a) (b) (c) Hotel located on the 9 th and/or higher Storeys of a Building Dwelling Units located on the 9 th and/or higher Storeys of a Building Office/Reception uses accessory to or normally associated with a Hotel on any Storey (subject to a Hotel being developed on the 9 th and/or higher Storeys of a Building) Zone Requirements (a) (b) Building Height (maximum): 11 storeys Publicly Available Rental Parking Spaces (minimum): 670: (i) Discretionary Uses that may be approved in the Zone are subject to the proviso that any such approved Discretionary Use shall be developed, undertaken, maintained, and used

9 in such a manner that Publicly Available Rental Parking Spaces on the 1 st through 8 th Storeys of the Building shall not number less than 670; (ii) For the purpose of the A.P. Parking Garage Zone, Publicly Available Rental Parking Spaces shall mean parking spaces that are available to the general public for rental on an hourly, daily, or monthly basis. The foregoing shall not include any parking spaces that are otherwise required by the Regulations in relation to any other Discretionary Uses that may be approved in the Zone (c) Floor Area Ratio (maximum) Rezone the existing A.P. Parking site at Civic Number 1 Clift s-baird s Cove (Parcel ID# 34257) from the Commercial Central Retail (CCR) Zone to the A.P. Parking Garage Zone as shown on Map Z-1B attached. 3. Amend Map F ( Downtown Building Control Map ) of the St. John s Development Regulations by adding the property at Civic Number 1 Clift s-baird s Cove (Parcel ID # 34257) as an Area allowing a building height not exceeding 11 Storeys and a Floor Area Ratio not exceeding BE IT FURTHER RESOLVED that the City of St. John s requests the Minister of Municipal Affairs to register the proposed amendment in accordance with the requirements of the Urban and Rural Planning Act, IN WITNESS THEREOF the Seal of the City of St. John s has been hereunto affixed and this Resolution has been signed by the Mayor and the City Clerk on behalf of Council this day of, Mayor I hereby certify that this Amendment has been prepared in accordance with the Urban and Rural Planning Act, City Clerk MCIP

10 5 4 CCM INST CCR CCM CCM CCR 214 CCR IG CCM 236 ST.JOHN'S HARBOUR 238 CAP CCR CCR CITY OF ST. JOHN'S DEVELOPMENT REGULATIONS Amendment No. 514, 2013 [Map Z-1B] SCALE: 1:1500 CITY OF ST. JOHN'S DEPARTMENT OF PLANNING I hereby certify that this amendment has been prepared in accordance with the Urban and Rural Planning Act. AREA PROPOSED TO BE REZONED FROM COMMERCIAL CENTRAL RETAIL (CCR) LAND USE ZONE TO A. P. PARKING GARAGE LAND USE ZONE 1 CLIFT'S BAIRD'S COVE (A.P. Parking Garage) M.C.I.P. signature and seal Mayor City Clerk Council Adoption Provincial Registration

11 Sonco Group Inc. Hidden in Plain View The potential for AP Parking Garage St.John s, NL Schematic Design Dec. 27, 2012 Philip Pratt Architect The APP HOTEL 12/27/ philipprattarchitect@gmail.com

12 Sonco Group Inc. The Opportunity What we are calling the APP HOTEL (AP Parking) is a unique rooftop infill opportunity in the heart of downtown St.John s. There will be up to 70,000sf. of prime hotel or residential space with unbeatable harbor and cityscape views. Over 700 built in parking spaces in the existing garage will be maintained, and the improvements will add public value and contribute to the quality of the downtown. Because of its location it will have no impact on public views. 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 2

13 Sonco Group Inc. Looking West As it is now Looking East Typical Parking Floor An 8 level, steel and concrete open structure, accommodates over 700 parking spaces. Pedestrian entrances, elevators and stairways are located at the west end, and can connect directly to Atlantic Place. 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 3

14 Sonco Group Inc. The Potential L3 L2 L1 Parking Lobby The structure will accommodate up to 3 additional floors that will be ideally suited for hotel or residential uses. The plan shows a typical floor and structural grid. The new addition will be no higher than Atlantic Place. Hotel Lobby 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 4

15 Sonco Group Inc. Possible Layouts Option A Up to 36 hotel rooms per floor, average size, 13x36 (468sf) L3 36 Hotel Rooms/Floor Option B Up to 47 hotel rooms per floor, average size, 13x20 (260sf) L2 18 Apartments/Floor 47 Hotel Rooms/Floor Option C Up to 18 apartments per floor, average size, 26x36 (936sf) L1 The average size is based on Level 2 as drawn. Level 1 is a bit larger, level 3 a bit smaller. Other variations including 2 storey units are possible. 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 5

16 Sonco Group Inc. A Boutique Hotel Up to 150 rooms. A lively main entrance foyer. Located on Harbour Drive Utilizes and improves existing core. 2 level atrium to Water Street level. Upgraded entrance from Water St. Dedicated lay by on Harbour Drive. A modular prefabricated structure. The Preferred Option 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 6

17 Sonco Group Inc. Massing It will, for several reasons, be desirable to step the 3 floors. One approach which could be based on modular prefabrication, would also step individual groups of units. This will provide visual interest, a sense of privacy, and good balcony spaces. 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 7

18 Sonco Group Inc. Improved Imagery (work in progress) Objectives A new and distinct identity. Better relation to the downtown context. Approach A modular stepped form. Bold but judicious use of color. Screening. Imagery 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 8

19 Sonco Group Inc. Screening Functional Building protection. Security Aesthetic Muted appearance. Day / night variation. 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 9

20 Sonco Group Inc. On balance, we believe that this is a good project for the owner and the City. It adds value for both. Improves the overall image of the garage in its context. Animates the area with more activity. Protects the parking. As an infill there is very little extra stress on infrastructure. Summary 12/27/2012 The APP HOTEL philipprattarchitect@gmail.com 10