1 Report to Rapport au: Planning Committee / Comité de l'urbanisme August 25, 2015 / 25 août 2015 and Council / et au Conseil September 9, 2015 / 9 septembre 2015 Submitted on July 22, 2015 Soumis le 22 juillet 2015 Submitted by Soumis par: John L. Moser, Acting Deputy City Manager / Directeur municipale adjoint par intérim, Planning and Infrastructure / Urbanisme et Infrastructure Contact Person / Personne ressource: Lee Ann Snedden, Acting Chief / Chef par intérim, Development Review Services / Services d Examen des projets d'aménagement, Planning and Growth Management / Urbanisme et Gestion de la croissance (613) 580-2424, 25779, LeeAnn.Snedden@ottawa.ca Report Author / Auteur du rapport: Melissa Jort-Conway, Planner II / Urbaniste II, Development Review Urban Services Unit / Unité examen des demandes d aménagement services urbains (613) 580-2424, 16187, Melissa.Jort-Conway@ottawa.ca Ward: RIDEAU-VANIER (12) File Number: ACS2015-PAI-PGM-0142 SUBJECT: Official Plan and Zoning By-law Amendment 11 Colonel By Drive OBJET: Modifications au Plan Officiel et au Réglement de zonage 11, promenade Colonel By
2 REPORT RECOMMENDATIONS That Planning Committee recommend Council: 1. Approve an amendment to the Angular Plane Height Limits as set out within the Official Plan, as detailed in Document 2; and 2. Approve an amendment to Zoning By-law 2008-250 to replace Schedule 56 which implements the Angular Plane Height Limits as set out in the Official Plan as detailed in Documents 3 and 4. Both of which are to permit a proposed 378 square metre addition to the Westin Hotel. RECOMMANDATIONS DU RAPPORT Que le Comité de l urbanisme recommande au Conseil : 1. D approuver une modification aux limites de hauteur du plan angulaire prévues au Plan officiel, comme le précise le document 2; 2. D approuver une modification au Règlement de zonage 2008-250 afin de remplacer l annexe 56, qui assure la mise en œuvre des limites de hauteur du plan angulaire prévues au Plan officiel, comme le précisent les documents 3 et 4. Les deux modifications visent à permettre la construction d un rajout projeté de 378 mètres carrés à l hôtel Westin. BACKGROUND Learn more about link to Development Application process - Zoning Amendment For all the supporting documents related to this application visit the link to Development Application Search Tool. Site location 11 Colonel By Drive. Owner SCG Aquarius Ottawa Hotel Inc.
3 Applicant Kathleen Willis Consulting Ltd. Architect HOK Architects Corporation. Description of site and surroundings The site is located along the east side of Colonel By Drive, between Rideau Street to the north and Daly Avenue to the south, as shown on Document 1. The site is situated within a larger 4.4 hectare property which is bordered by Colonel By Drive to the west, Nicholas Street to the east, Rideau Street to the north and the Mackenzie King Bridge to the south. The property is occupied by the Westin Hotel, the Rideau Centre and an office building known as the Transportation Building, which is located at the southeast corner of Rideau Street and Colonel By Drive. The Westin Hotel comprises 25 storeys and measures 140.8 metres above sea level at its highest point. The hotel contains 501 guestrooms, two restaurants, and a 4,000 square metre convention and meeting space. The hotel is connected to the Ottawa Convention Centre and the Rideau Centre. Access to the hotel is by way of a one-way covered passenger pick up and drop off area accessed from Daly Avenue and exiting onto Colonel By Drive. The hotel is serviced by transit, sidewalk and cycling networks, as well as an underground parking garage, which is shared with the Rideau Centre. Adjacent uses include the former Ottawa Conference Centre to the west, the Federal offices of National Defence to the south and the Arts Court Building and Novotel Hotel to the east. Summary of requested Official Plan and Zoning By-law amendments A proposed addition to the 22 nd floor at the Westin Hotel incorporating a new banquet facility is planned to coincide with Canada s 150 th anniversary in 2017. The facility is proposed to be built on a terrace at the northwest corner of the hotel formed by the roof of the current 21 st storey. The highest part of the existing building is 25 storeys as mentioned above. The site falls within the area of height control relative to the Parliament Buildings, as indicated on Annex 8A of the Official Plan. The proposed 378 square metre addition triggers an Official Plan Amendment as the text of the Official Plan states that no part of a building may exceed the angular plane height limits as set out in Annex 8B without an
4 Official Plan Amendment to Annex 8B and a thorough analysis of the impact of any projection or protrusion. An amendment to the Zoning By-law 2008-250 is also required to permit the proposed addition. The Zoning By-law sets out building height regulations which are applicable to the site. Specifically, the addition does not comply with the height limits required as set out in Schedule 56. DISCUSSION Public consultation Notification and public consultation was undertaken in accordance with the Public Notification and Consultation Policy approved by City Council for Development Applications. Two respondents were in favour of the proposal and one was opposed. Comments were received from the National Capital Commission (NCC) during the circulation period. NCC Staff supported the proposed addition, however stated that the final and formal authority to approve the addition through a Federal Design Approval process was with the NCC Board of Directors. On June 25/26, 2015, the NCC Board of Directors gave their unanimous approval of the proposed addition. For this proposal s consultation details, see Document 5 of this report. Official Plan designation The property is located within the Central Area designation as shown on Schedule B of the City s Official Plan. Other applicable policies and guidelines The Westin Hotel is located within the Rideau / Congress Centre area of the Central Area Secondary Plan. This area is described as offering visitors and residents of Ottawa opportunities for tourism, conventions, arts and culture, shopping and entertainment with a range of building profiles. This area also contains a significant cluster of low profile heritage buildings east of the Rideau Canal, in the vicinity of Daly Avenue and Nicholas Street. Public views of Parliament Hill, the Canal, the heritage buildings, as well as the Arts Court block are to be maintained as seen from the Rideau Centre rooftop terrace and/or the Mackenzie King Bridge.
5 Transit-Oriented Development Guidelines The Westin Hotel is situated in close proximity to a proposed light rail station that can be accessed from within the Rideau Centre. The guidelines for transit oriented development speak to new development that offers amenities to well used sites, such as the Westin Hotel. The addition also enhances an established landmark feature, and respects the guidelines regarding step backs. The terraced profile of the hotel will be maintained with the new addition. Urban Design Review Panel Although the site is located within a Design Priority area, this proposal was not subject to consultation with the Urban Design Review Panel (UDRP) due to the small size of the addition. Planning Rationale Planning Act and Provincial Policy Statement (PPS) Section 2 of the Planning Act outlines those land use matters that are of Provincial interest, to which all City planning decisions shall have regard. The Provincial interests that apply to this site include accommodating an appropriate mix of uses, including employment and other uses to meet long term needs and promoting intensification and redevelopment where this can be accommodated given the existing building stock, and existing and planned infrastructure and public facilities. The Planning Act requires that all city planning decisions be consistent with the PPS as issued under the Act. The recommended Official Plan and Zoning By-law amendments are consistent with the Provincial interests outlined in the Planning Act. Although being on a smaller scale, the hotel addition represents a form of intensification, which is appropriate given the context of the area of the Westin Hotel, and its prominence within the city both for contributing to the economic development of the city, but also for making efficient use of land and taking advantage of planned transportation infrastructure as a key land use consideration in the land use planning process. Official Plan Policies The City s Official Plan designates the property as Central Area. The Central Area permits a diverse range of land uses with a focus on tourism, business, retail, entertainment and culture. The Central Area represents the heart of the city and is the
6 symbolic heart of the nation. As such, the Official Plan policies for this area are intended to protect its distinct identity and heritage character, enhance diversity and attractiveness, promote multi-modal transportation systems and protect residential neighbourhoods in and near to downtown. The Westin Hotel site is situated within the height protected area relative to the Parliament Buildings, shown on Annex 8A. The majority of the hotel is within the area of Background Height Control, which protects the views of Parliament when viewed from afar. Height limits are also established on Annex 8B as an angular plane rising from the ridgeline of the Centre Block of Parliament. The proposed Official Plan Amendment will add a site specific policy that would permit an increase in height above the current angular plane height limits. Colonel By Drive is designated as an Arterial Road from Rideau Street to Daly Avenue. South of Daly Avenue, Colonel By Drive becomes a Federally owned road. The section of Colonel By Drive in front of the Westin Hotel is designated an on-road cycling route which is connected to the pedestrian and cycling route along the east side of the Rideau Canal. Central Area Secondary Plan The area of the Westin Hotel is located within the Character Area known as the Rideau / Congress Centre area. The vision for this area is that it serve as the centre for visitor activity and special events, welcoming area residents and tourists and convention delegates. Buildings are intended to follow a range of profiles from high profile hotels and offices to the low profile cluster of heritage buildings near Daly Avenue and Nicholas Street. Policies are intended to support a mix of uses geared towards visitors, protect and respect the heritage character of the cluster of heritage buildings east of the Rideau Canal, promote the expansion of the Ottawa Convention Centre and Rideau Centre, protect views and ensure a high quality of urban design for new development. The plan also sets out a vision for underground transit service, which is now under construction. The proposed banquet and meeting facility conforms to the relevant policies of the Official Plan and the Central Area Secondary Plan. The Westin Hotel is a high profile meeting place for major events in the city and is situated in close proximity to the City s planned Light Rapid Transit line. The development will enhance visitors experience of downtown Ottawa without impacting on the protected views of the existing landmarks in the area. In this regard, for this proposal, a detailed views analysis was undertaken of the Key Views listed in Annex 8A as shown in Document 6. The proposed addition
7 represents a negligible change to the Ottawa city skyline and is not expected to have a negative impact on the silhouette of the Parliament Buildings nor have an impact upon the protected views. The Secondary Plan also requires that the significant cluster of heritage buildings east of the Rideau Canal be protected for their heritage character, context and collective relationship while maximizing their public exposure. These buildings include the City Registry, the Albion Hotel, and the Carleton County Courthouse, Registry and Gaol buildings. Heritage Services staff reviewed the proposed Official Plan and Zoning Bylaw amendments in the context of the existing heritage buildings in proximity to the site and have no concerns. Proposed Official Plan Amendment Section 3.6.6 of the Official Plan sets out policies describing special areas of height control relative to the Parliament Buildings, and which are illustrated in Annex 8A and 8B of the Official Plan, and shown in Document 7. The taller portion of the Westin Hotel is located within the area of background height control described in Annex 8A. Buildings within these areas should not detract from the visual prominence of the Parliament Buildings when viewed from key viewpoints within the Central Area. Annex 8B sets out specific maximum building heights as an angular plane rising from the ridgeline of the Centre Block of Parliament. The Westin Hotel is located within the angular height control plane shown in Annex 8B. The area of the proposed addition to the Westin Hotel is currently limited to a height of between 125.4 and 127 metres above sea level (ASL). The height of this portion of the building in its current state slightly exceeds the lower height limit being 126.1 metres ASL. The proposed banquet and meeting facility will have a finished height of approximately 131.4 metres ASL and the associated stair lobby will rise to approximately 134.1 metres ASL on the rear face of the building. In keeping with the policies of Section 3.6.6, an Official Plan Amendment is required when any part of a building is proposed to exceed the angular plane height limits as shown on Annex 8B and a thorough analysis of the impact of the projection is required. Upon review of the views analysis submitted with the application, as shown on Document 6, this proposed height increase is not expected to have a negative impact on the view planes. Proposed Zoning The current zoning of the Westin Hotel and the Rideau Centre is Mixed-Use Downtown with an exception and a number of applicable zoning schedules (MD[1425] S55, S56,
8 S57 and S64). The MD Zone is designed to support the Central Area as designated within the Official Plan by: Facilitating more intense, compatible development; ensuring that pedestrian-oriented environment is maintained at street level; protecting the visual integrity and symbolic primacy of the Parliament Buildings; and having regard to the heritage structures of the Central Area. The MD Zone also upholds the Character Areas in the Central Area, which includes the Rideau / Congress Centre Area in the area of the site. Exception [1425] addresses the built form of the Rideau Centre parking garage fronting on Nicholas Street, which is not applicable to the proposed zoning by-law amendment. Schedules 55, 56, 57 and 64 describe the building height regulations that apply to the entire Westin Hotel and Rideau Centre complex. Schedule 56 is the focus of the proposed amendment to permit an increase in the permitted building heights for an addition to the northern section of the hotel. The proposed Zoning By-law Amendment is to modify Schedule 56 to increase the permitted heights in the area of the proposed banquet and meeting facility from 125.4 metres ASL to 131.4 metres ASL and the area of an adjoining stair lobby to rise from 127 metres ASL to 134.1 metres ASL. It should be noted that the Westin Hotel was originally constructed in 1981-1982 and at that time the site was zoned with a height limit of 141 metres ASL. A minor variance was granted in 1981 to permit the protrusion of mechanical equipment to 142.43 metres above sea level. That portion of the hotel building which projects above the prescribed height set out in Schedule 56 is therefore considered to be legally non-complying. The proposed addition will not exceed the overall building height that was permitted by the height variance. It is noted that Schedule 56 was finalized on the property in June 1998. The Department supports the proposed changes to the height limits set out in Schedule 56. The addition makes efficient use of the existing hotel structure, takes advantage of its downtown location in proximity to other uses and amenities and does not impose any adverse impacts upon the functionality of the site or negatively impact the surrounding area. The addition will add to the vitality of the area and provide a new vantage point from which to showcase downtown views. RURAL IMPLICATIONS There are no rural implications associated with this report. COMMENTS BY THE WARD COUNCILLOR Councillor Fleury is aware of the application.
9 LEGAL IMPLICATIONS In the event that the recommendations are adopted and the matter appealed to the Ontario Municipal Board, it is anticipated that a two to three day hearing would result. It is expected that such hearing could be conducted within staff resources. Should the applications be refused reasons must be provided. Were the refusal appealed to the Board, it would be necessary to retain external witnesses. The scope of the evidence necessary would be dependent upon the reasons for the refusal. RISK MANAGEMENT IMPLICATIONS There are no risk management implications associated with this report. FINANCIAL IMPLICATIONS Potential financial implications are noted in the above Legal Implications section. In the event that external resources are retained, funds are not available within existing resources and the expense would impact Planning and Growth Management s operating status ACCESSIBILITY IMPACTS The proposed building addition will be constructed in accordance with the Ontario Building Code and accessibility requirements will be addressed at the time of detailed design and construction. There are no accessibility impacts. TERM OF COUNCIL PRIORITIES This project addresses the following Term of Council Priorities 2015-2018: C2 Enable the achievement of our short and long term success C3 Provide a compelling vibrant destination EP1 Promote Ottawa EP2 Support growth of local economy HC4 Support Arts, Heritage, and Culture
10 APPLICATION PROCESS TIMELINE STATUS The application was not processed by the On Time Decision Date established for the processing of Zoning By-law amendments due to the timelines associated with the review by external agencies. SUPPORTING DOCUMENTATION Document 1 Location Map Document 2 Proposed Official Plan Amendment Document 3 Details of Recommended Zoning Document 4 Proposed Amendment to Schedule 56 Document 5 Consultation Details Document 6 Views Analysis Document 7 Illustrations and Renderings Document 8 Overview Data Sheet CONCLUSION The department is satisfied that the proposed amendment to the Official Plan and Zoning By-law to permit the proposed addition is in keeping with the policy intent of both the Primary Official Plan and the Central Area Secondary Plan. The proposed encroachment into the angular plane height limit represents a minimal change to the existing built form of the hotel, does not exceed the building s overall height and does not detract from the building s orthogonal shape. The proposal contributes to the overall amenity and vibrancy of the Central Area and will offer a new vantage point from which to showcase downtown Ottawa, the Parliament Buildings and other national symbols. It is therefore the Department s position that the proposal represents good planning and is in the public interest. DISPOSITION City Clerk and Solicitor Department, Legislative Services, to notify the owner, applicant, Ottawa Scene Canada Signs, 1565 Chatelain Avenue, Ottawa, ON K1Z 8B5, Scott Templeton, Program Manager, Assessment, Financial Services Branch (Mail Code: 26-76) of City Council s decision.
11 Planning and Growth Management Department to prepare the implementing By-laws, forward to Legal Services and undertake the statutory notification. Legal Services Department to forward the implementing By-laws to City Council.
12 Document 1 Location Map For an interactive Zoning map of Ottawa visit geoottawa This is a location map, which identifies the subject property.
13 Document 2 Proposed Official Plan Amendment Official Plan Amendment No. XXX Modification du Plan Directeur To the Official Plan of the City of Ottawa Land use Utilisation du sol
14 INDEX THE STATEMENT OF COMPONENTS PART A THE PREAMBLE does not constitute part of the Amendment Purpose Location Basis PART B THE AMENDMENT consisting of the following text constitutes Amendment No. XXX to the Official Plan of the City of Ottawa. Introduction Details of the Amendment Implementation and Interpretation
15 PART A THE PREAMBLE Purpose The purpose of this amendment is to add a site specific policy to the Central Area policies of the Official Plan to permit an increase in height up to 134.1 metres above sea level for a proposed addition to the Westin Hotel. Location The site is located along the east side of Colonel By Drive, between Rideau Street to the north and Daly Avenue to the south. The site is situated within a larger 4.4 hectare property which is bordered by Colonel By Drive to the west, Nicholas Street to the east, Rideau Street to the north and the Mackenzie King Bridge to the south. Basis Background The property is occupied by the Westin Hotel, the Rideau Centre and an office building known as the Transportation Building, which is located at the southwest corner of Rideau Street and Colonel By Drive. The Westin Hotel, constructed in 1981-1982 is 25 storeys in height, or 140.8 metres above sea level at its highest point. The applicant is proposing to construct a 378 square metre addition on the 22 nd floor of the hotel, which will include a multi-purpose banquet and meeting facility. The addition will be built on a terrace at the northwest corner of the hotel formed by the roof of the current 21 st storey. The Westin Hotel is situated within the height protected area relative to the Parliament Buildings as outlined in Annex 8A and 8B of the Official Plan. The taller portion of the Westin Hotel is located within the area of background height control described in Annex 8A. In addition, Annex 8B sets out maximum building heights as an angular plane rising from the ridgeline of the Center Block of Parliament. The maximum height limits as set out in Annex 8B are the focus of the proposed Official Plan Amendment. Rationale The site is designated Central Area within the City s Official Plan. The Central Area permits a diverse range of uses with a focus on tourism, business, retail and entertainment and culture. Official Plan policies for this area are intended to protect the distinct identity and heritage character, enhance diversity and attractiveness, promote
16 multi-modal transportation systems and protect residential neighbourhoods in and near to downtown. The property is also located within the Character Area known as the Rideau / Congress Centre area within the Central Area Secondary Plan. The proposed banquet and meeting facility conforms to the relevant policies of the Official Plan and Central Area Secondary Plan. The intent of the height regulations set out within the Central Area policies is to protect the visual prominence of the Parliament Buildings from other buildings when seen from key viewpoints in the Central Area. As the proposed addition will exceed the existing angular plane height limits set out in Annex 8B, an Official Plan Amendment is required. The area of the proposed building addition is currently limited to a height of between 125.4 and 127 metres above sea level (ASL). The height of the building in its current state within this area slightly exceeds the lower limit at a height of 126.1 metres ASL. The proposed addition will have a finished height of approximately 131.4 metres ASL and the associated stair lobby proposed on the rear face of the building will rise to approximately 134.1 metres ASL. The increase in height is appropriate given the hotel s existing high profile built form and considering that the proposed addition is small with a minimal impact upon the view planes. The new addition will make efficient use of the existing hotel structure and offers a new vantage point to showcase downtown Ottawa.
17 PART B THE AMENDMENT 1. Introduction All of this part of this document entitled Part B The Amendment consisting of the following text and the attached Schedule(s) constitutes Amendment No. XX to the Official Plan for the City of Ottawa. 2. Details of the Amendment Section 3.6.6 of the City of Ottawa Official Plan Volume 1 is hereby amended by adding the following as a new policy under a new heading - Exceptions: Exceptions 3.6.6 (12) Despite the provisions of Section 3.6.6 Policy 2 (e) ii relating to the angular plane building height limits as shown on Annex 8B, within an area measuring 378 square metres at the north west portion of the block on Annex 8B which covers the lands known municipally as 11 Colonel By Drive, may be up to 134.1 metres above sea level in height. 3. Implementation and Interpretation Implementation and interpretation of this Amendment shall be in accordance with the policies of the Official Plan for the City of Ottawa.
18 SCHEDULE A Location of Site Specific Policies
19 Document 3 Details of Recommended Zoning The proposed change to the City of Ottawa Zoning By-law 2008-250 for a portion of 11 Colonel By Drive, as shown in Document 1, is by replacing Schedule 56 in Part 17 Schedules, with the schedule shown in Document 4.
Document 4 Proposed Schedule 56 20
21 Document 5 Consultation Details Notification and Consultation Process Notification and public consultation was undertaken in accordance with the Public Notification and Public Consultation Policy approved by City Council for Zoning By-law amendments. Three comments were received as a result of the notification process; two in support and one opposed to the proposal. Public Comments: 1. The proposed addition would be very positive for the City. The proposed space would be an excellent venue for events held by organizations within the National Capital Region and would serve to attract more events to Ottawa. 2. The proposed increase in height should not interfere with important lines of sight in the area or compromise any heritage value of the structure. Community Organization Comments and Responses Heritage Ottawa is opposed to the proposed hotel addition, as they feel it would detract from the experiential qualities of the Ceremonial Route, Confederation Boulevard, and of national landmarks and of significant municipal heritage. Do not add onto something which is already in breach of the City s View Protection By-laws. Response: The proposed addition at the roof top will provide an attractive and vibrant assembly space within the downtown core. The addition will not detract from the existing protected views of Parliament Hill, the Rideau Canal and the significant heritage buildings east of the site. Technical Agency Comments National Capital Commission Comments were received from the National Capital Commission (NCC) during the circulation period. NCC Staff supported the proposed addition, however stated that the final and formal authority to approve the addition through a Federal Design Approval process was with the NCC Board of Directors. On June 25/26, 2015, the NCC Board of Directors gave their unanimous approval of the proposed addition.
22 Document 6 Views Analysis The representative, selected viewpoints used in the analysis are outlined in Annex 8A of the Official Plan. The text descriptions of the point locations were used along with points shown on Annex 8A to locate the prescribed viewpoints.
23
24 Document 7 Illustrations and Renderings Plan View showing extent and height of new addition and stair access West Elevation showing extent and height of new banquet and meeting facility and stair lobby
25 West Elevation (Rendering) East Elevation (Rendering)
26 Three dimensional view of proposed addition from the northwest Annex 8A Central Area Key Views and View Sequences of the Parliament Buildings and Other National Symbols
27 Annex 8B Central Area Maximum Building Heights / Angular Planes