STAFF REPORT Applicant: Dalron Construction Limited Location: PIN 02124-0103, Part 1, Plan SR-713 in Lot 2, Concession 5, Township of McKim (1096 Dublin Street, Sudbury) Official Plan and Zoning By-law: A. Official Plan Living Area 1 The subject land is designated as Living Area 1, which permits a range of residential uses and neighbourhood-based institutional uses such as a retirement home. Medium and high density housing should be located on sites in close proximity to Arterial Roads, public transit, main employment and commercial areas, open space areas, and community/recreational services. Such uses shall be located in areas with adequate servicing capacity and a road system that can accommodate growth. Sites should be of a suitable size to provide adequate landscaping and amenity features. Local institutional uses that are compatible with the residential function of neighbourhoods are allowed in all Living Area designations subject to rezoning. In reviewing applications for rezoning in Living Areas, the following criteria under Section 3.2.1 of the Official Plan are to be considered: a. the site is suitable in terms of size and shape to accommodate the proposed density and building form; b. the proposed development is compatible with the surrounding neighbourhood in terms of scale, massing, height, siting, setbacks, and the location of parking and amenity areas; c. adequate on-site parking, lighting, landscaping and amenity areas are provided; and, d. the impact of traffic on local streets is minimal. Residential intensification Section 3.3 of the Plan addresses residential intensification in settlement areas. Opportunities for intensification will be supported on lands: a. that are no longer viable for the purpose for which they were intended, such as older industrial areas; b. where the present use is maintained but the addition of residential uses can be accomplished in a complementary manner; c. that are vacant and/or underutilized within previously developed areas; and, d. in fully-serviced Living Areas that could accommodate infill developments.
Any changes to the land use structure through intensification will be assessed so that the concerns of the community and the need to provide opportunities for residential intensification are balanced. Priority will be placed on meeting housing targets by means of intensification within existing established urban areas. In particular, intensification will be encouraged on major Arterial Roads in close proximity to Employment Areas and public transit. Surplus institutional buildings Under Section 4.4, rezoning applications related to the conversion of surplus institutional buildings and the rezoning of vacant lands held by institutions shall be considered based on the following criteria: a. the need for such lands or buildings for other public uses, and their long-term value to the community; b. the compatibility of the proposed uses with surrounding land uses and the intent of the policies in this Official Plan with respect to the proposed uses; and, c. for conversion to residential uses, the appropriateness of the proposed density. Flood plain designation A small northerly portion of the property adjacent to Junction Creek is designated as Parks and Open Space in recognition of a designated flood plain, as illustrated on the attached flood risk map. Private lands with natural hazards are generally not suitable for development. The policies of Section 10.2, Flooding Hazards are applied. Conformity with the Official Plan is based on a review of the above noted considerations. B. Zoning By-law The property is currently zoned I, Institutional under Zoning By-law 2010-100Z, which permits institutional uses as follows: Children s home, a day care centre, a place of worship, a hospital, a private club, a non-profit or charitable institution, a group home type 1, a group home type 2, a special needs facility, a recreation and community centre, an arena, a public museum, a public library, a public business, a public fire hall, a public or private school other than a trade school, or any public use other than a public utility. For the information of the Committee, a retirement home is defined as a type of special needs facility and is therefore permitted by the existing zoning. The addition of multiple dwelling units (apartments) requires a rezoning. Site Description & Surrounding Land Uses: The subject property comprises the former St. Raphael School at 1096 Dublin Street in New Sudbury. The area is fully serviced by municipal water and sanitary sewer. Dublin Street is designated as a Local Road and is constructed to an urban standard with a sidewalk on the north side. Public transit is available on Lasalle Boulevard to the north and Hawthorne Drive to the south. Total site area is 3.65 ha, with approximately 65 metres of frontage on Dublin Street. The site is occupied by a 4 000 m 2 former elementary school built in 1965 that was declared surplus and sold in 2016. Building height varies from one to two storeys. The 9.1-metre setback in the southerly interior side yard abutting Part 1, Plan 53R-3835 is legal non-complying.
The subject property abuts Junction Creek to the north. A northerly portion of the property at the base of the slope is a designated flood plain and falls within the regulation limits of the Nickel District Conservation Authority. The flood elevation is illustrated on the attached flood risk map. An asphalt pathway provides access to a pedestrian bridge and the Junction Creek Waterway Park Trail on the north side of the watercourse, as well as residential neighbourhoods further to the north. Dublin Street is comprised of low density housing, predominantly single detached dwellings, which directly abut to the south and east. Semi-detached dwellings abut to the west on Cana Court and on Arthur Street, which are zoned R2-2. A 14-storey apartment building with 112 units also abuts to the west (Bonik Apartments). Application: To amend By-law 2010-100Z being the City of Greater Sudbury Zoning By-law from "I", Institutional to R4, High Density Residential. Proposal: Application for rezoning in order to permit the residential conversion of a former school and the construction of a new building with a maximum height of six storeys to accommodate the following: A maximum 120 multiple dwelling units (apartments), or an equivalent number of retirement home guest rooms, or a combination of the two uses; and, Related accessory uses to a retirement home including medical offices and personal service shops to a maximum net floor area of 850 m 2. A letter from the applicant outlining various development scenarios is attached for review. Departmental/Agency Circulation: Development Engineering advises that a test manhole will be required at the site plan stage. Traffic and Transportation Section indicate that the existing road network has sufficient capacity to accommodate the proposed development based on projected vehicle trips during the afternoon peak hour, which is less than the vehicle trips during the end of school day peak hour for the former school. Leisure Services have advised that the pedestrian bridge over Junction Creek is no longer required as the school site is now private property. It is recommended that the bridge be removed or transferred to the new owner of the school property if the owner wishes to retain access to the Junction Creek Waterway Park Trail. Nickel District Conservation Authority provided a flood risk map and confirmed that the northerly portion of the property is located within a designated flood plain. Any development in this area will require a direct application to NDCA. For the information of the applicant, a geotechnical report will be required due to the presence of unstable soils. Additional studies to the satisfaction of NDCA may be required at the site plan stage.
Neighbourhood Consultation: The statutory notice of the public hearing was provided by newspaper along with a courtesy mail-out to property owners and tenants within a minimum of 120 metres of the property. The applicant was advised of the City s policy recommending that applicants consult with their neighbours, ward councillor and key stakeholders to inform area residents on the application prior to the public hearing. A neighbourhood meeting (open house) was conducted on September 6, 2017 from 6 to 8 pm at the Towne Place Suites hotel on the Kingsway. As of the date of this report, several written submissions and phone calls have been received by Planning Services concerning this file. A petition in opposition to the application has also been received. Planning Considerations: Adaptive reuse can be utilized to repurpose surplus institutional buildings without the need for demolition. Depending on the nature of the use, adaptive reuse projects can also address housing needs and residential intensification targets. It is a form of redevelopment that is generally supportable provided the proposed land use is appropriate and development can occur in a complementary manner. In this case, the owner is proposing the construction of a new building in addition to the conversion of the former school. The owner is requesting a mix of retirement home guest rooms and apartment dwelling units in order to respond to market demand. Land use compatibility Planning staff are satisfied that land use compatibility is maintained based on the following observations: Given the neighbourhood setting, a residential conversion of the former school is the preferred redevelopment scenario compared to commercial and light industrial uses, which have been proposed and approved on other school sites. Subject to the required geotechnical studies, the proposed six-storey multiple dwelling is appropriately sited in the northwest corner of the property, abutting an existing high density development in the form of a 14-storey apartment building. The large site allows the new building to be set back some distance from existing low density housing with no negative impacts related to shadowing, sight lines and privacy. An existing wooded area along the northerly section of the property will remain undeveloped, providing screening and buffering for dwellings located north of Junction Creek. There is no impact on the Junction Creek Waterway Park Trail. The proposed parking lot on the southwesterly portion of the site is set back more than 12 metres at its closest point from abutting dwellings on Dublin Street and more than 15 metres from dwellings on Cana Court. These distances exceed the minimum requirement for a planting strip of 1.8 to 3 metres in depth where R4 sites abut R1-5 and R2-2 zones.
Planting strips to achieve buffering and screening are required along the southerly and easterly interior side lot lines abutting single detached dwellings at 1090 and 1112 Dublin Street at the main entrance to the site. This represents an improvement over the existing non-complying situation. This requirement would be implemented at the site plan stage. The rezoning sketch illustrates 180 parking spaces, which is the minimum amount of parking required under the highest development scenario (120 multiple dwelling units). Staff are satisfied that parking requirements can be accommodated on-site. Loading and refuse storage areas are appropriately located at the rear of the building. Site-specific zoning provisions can be utilized to maintain minimum setbacks and establish maximum building heights for the existing building and any new buildings. The project is subject to site plan control in order to ensure appropriate development of the land. In order to maintain land use compatibility, the following site-specific zoning provisions are recommended: Uses shall be restricted to a multiple dwelling, a retirement home, or a combination of the two uses; The intensity of use shall be restricted by permitting a maximum 120 dwelling units or 150 guest rooms or a combination of the two uses, using a conversion factor of 1 dwelling unit being equivalent to 1.25 guest rooms; The maximum building height of the existing building shall not exceed two (2) storeys; A minimum setback of 80 metres from the southerly interior side lot line abutting Lots 8 to 11, Plan M-382 shall be applied to any new buildings; The maximum building height for any new buildings shall be restricted to six (6) storeys; A planting strip with a minimum depth of 1.8 metres shall be provided along the southerly interior side lot line abutting Part 1, Plan 53R-3835 (1090 Dublin Street), leaving sufficient width for driveway and pedestrian access; A natural vegetative buffer shall be maintained 10 metres from the southerly, westerly and easterly interior side lot lines abutting properties on Cana Court and Dublin Street. Density Official Plan policy requires that the proposed density be appropriate within the context of the specific location. The total area of the site is approximately 3.65 ha. Under the highest development scenario, two (2) buildings containing a maximum 120 dwelling units results in a residential density of 33 units per hectare. This is less than the maximum density of 36 units per hectare permitted in low density neighbourhoods under the Official Plan (singles, semis and duplexes). The density should be considered in relation to the proposed R4 zoning, which typically allows up to 150 units per hectare. In comparison, the abutting Bonik Apartment site has a residential density of 110 du/ha, significantly higher than what is being proposed for the school site.
The applicant has proposed a residential density (i.e., number of units) that is appropriately scaled to a low density residential area. It is recommended that the density be restricted by limiting the number of dwelling units and/or guest rooms through site-specific zoning provisions. Traffic impacts Roads and Transportation Section advise that the existing road network has sufficient capacity to accommodate the proposed development based on projected vehicle trips during the afternoon peak hour, which is less than the vehicle trips during the end of school day peak hour for the former school. Given that traffic generation under the highest development scenario would be less during peak hours than the former school use, Roads and Transportation Section do not have any concerns related to local traffic impacts and as such did not require a Traffic Impact Study. The owner provided a traffic analysis comparing the change in land use, which is attached for review. Related accessory uses to a retirement home The owner is requesting up to 850 m 2 of medical, health or personal services that would be accessory to a proposed retirement home. Such uses typically include a medical office, convenience store and personal service shops, such as a hair salon. Staff recommend that related accessory uses to a retirement home be strictly defined and limited in floor area. Based on similar retirement developments that require a limited amount of commercial use to serve residents of the complex. Staff recommend that the following uses be permitted as site-specific accessory uses to a retirement home: i) A medical office with a maximum gross floor area of 400 m 2 ; ii) Not more than one personal service shop and one convenience store, not exceeding 150 m 2 in total net floor area, accessory to, completely enclosed within and accessible only from inside the retirement home. Pedestrian linkage to the Junction Creek trail Leisure Services advised that the bridge over Junction Creek, which links the former school site to the Junction Creek Waterway Park Trail, is no longer required as the subject lands are now in private ownership. Leisure Services has offered the bridge to the new owner if a pedestrian linkage is to be maintained for residents of the complex. As of the date of this report, the owner is considering acceptance of the bridge. It is acknowledged that the asphalt path along the northerly slope towards the creek is quite steep, and may not be appropriate for seniors. If the bridge is not transferred, Leisure Services advised that it will be removed. Flood Plain No development is permitted within the designated flood plain on the northerly portion of the site. Any development on adjacent lands that fall within the regulated area of the Nickel District Conservation Authority will require a direct application to NDCA. Additional studies may be required at the site plan stage, including a geotechnical report.
Other planning considerations The redevelopment would expand the range of housing options in the community, which is particularly important with an aging demographic. Alternative forms of housing also allow seniors to downscale and remain in their community of choice. The proposal is consistent with the 2014 Provincial Policy Statement, most notably the following provisions: Section 1.1.1.b: accommodating an appropriate range and mix of residential uses to meet long-term needs; Section 1.1.1.f: improving accessibility for persons with disabilities and the elderly by removing and/or preventing land use barriers which restrict their full participation in society; Section 1.1.3.3: identifying and promoting opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites, and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs; Section 1.1.3.5: establishing and implementing minimum targets for intensification and redevelopment within built-up areas; Section 1.1.3.7: New development taking place in designated growth areas should occur adjacent to the existing built-up area and shall have a compact form, mix of uses and densities that allow for the efficient use of land, infrastructure and public service facilities; and, Section 1.4.3: Planning authorities shall provide for an appropriate range of housing types and densities to meet projected requirements of current and future residents of the regional market area. Summary Planning Services is satisfied that the proposed residential conversion of the former school is appropriate within the context of the area, and that additional intensification in the form of a new building can be accommodated on the site subject to minimum setback requirements. The residential density has been scaled appropriately given the location in an established neighbourhood where low density residential uses are predominant. Road and Transportation staff have indicated that traffic generation during peak periods will be less compared to the former school use. Site-specific zoning provisions can be utilized to limit the scale and intensity of use. If approved, the redevelopment will also be subject to site plan control, which will finalize the details respecting parking, grading, drainage, lighting and landscaping along with other matters. The application conforms to Official Plan policies and is deemed to be consistent with the 2014 Provincial Policy Statement. The proposal represents good land use planning and is recommended for approval subject to the conditions outlined in the Resolution section of this report.