DRAFT FEASIBILITY REPORT 1486, 1490 and 1494 Clementine Prepared by: Lloyd Phillips & Associates Ltd. For: Ottawa Salus LPA File No. 1008 Lloyd Phillips & Associates June 9, 2010 Feasibility Report Page 1
1 Introduction Ottawa Salus has retained Lloyd Phillips & Associates Ltd to prepare a land use planning overview of the properties located at 1486, 1490 and1494 Clementine Boulevard. Ottawa Salus has acquired this property under contract, and the purpose of this land use planning overview report is to review the property and its setting, review the planning policies and zoning regulations that affect the development of the properties. In addition, the report will also discuss any potential issues or concerns that may have the ability to cause problems or delays. Ottawa Salus is considering using the property for an assisted housing development of approximately 40 units. This report presents the observations and recommendations of the land use planning. 2 Overview of Community Setting and the Site The property, 1486-1494 Clementine Blvd, is located approximately 5.8 km south of downtown Ottawa in the Heron Park neighbourhood that is bounded by Bank Street and Heron Road. This neighbourhood is framed by Bank Street on the east, Heron Road on the south, and the ravines of Sawmill Creek on the north and west. The Transitway and the VIA Rail line run along the north side of the Sawmill Creek ravines. Beyond the rail line and creek is the Billings Bridge Plaza and the Transitway Station, and to the west is the federal government employment complex on Data Centre Road. There is also a Transitway Station and an O- Train station near Heron Road. This neighbourhood is characterized primarily by low- rise residential housing that is estimated to be generally over 50 years old. More recent development of mid- rise and high- rise forms has emerged in the blocks bounded by Bank Street, Ohio Street, and Rockingham Avenue. Bank Street at Belanger and Kilborn is primarily a commercial street with a variety of retail stores, restaurants and services. Bank Street is the main north south arterial road and connects directly to Ottawa's downtown core. Heron Road, along the south edge of the community, has connections east, via Walkley Road, to Highway 417, and west, via Baseline Road to Highway 416. This community has a very high level of accessibility. The street contains a generous mix of old residential dwellings and newer apartment developments. There was a dwelling on 1486 Clementine but it was demolished in 2009. There are no dwellings on either 1490 or 1494 Clementine but it appears that at one time both did have residential dwellings on them. For the remainder of this report 1486, 1490 and 1494 Clementine will be referred to as properties A, B and C respectively. Please note that air photos show the buildings on 1486 Clementine that are now demolished. Feasibility Report Page 2
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The properties at 1486, 1490, and 1494 Clementine are described as follows: Legal Description Plan 149, Lot 9 PIN 041460079 1486 Clementine 1490 Clementine 1494 Clementine TOTAL SITE Plan 149, Lot 8 PIN 0414600800 Plan 149, Lot 7 PIN 041460081 Area 5,523.50 sq. Ft 5,520 sq ft. 0.0600 sq ft. 11,043.56 sq ft. Depth 110.47 ft 110.40 ft 110.40 ft 125 ft Width 50 ft 50 ft 25 ft ~110.40 ft Existing Conditions Vacant Vacant Vacant Vacant The three properties combined will be referred to as the "Site" for the remainder of this report. The Site is generally level and is bordered by mature trees and hedges. The adjacent land uses are: North: two and three- storey residential; West: two and three- storey residential; South: two- storey residential, and; East: Three- storey residential on the east side of Clementine Blvd. Feasibility Report Page 6
1486 Clementine (Building now demolished) 1490 Clementine Feasibility Report Page 7
1494 Clementine Feasibility Report Page 8
3 Ottawa Zoning By-law 2008-250 The zoning of the entire site is R4Q - Residential fourth density, subzone Q. The purpose of the Residential fourth density zone is to: (1) allow a wide mix of residential building forms ranging from detached to low rise apartment dwellings, in some cases limited to four units, and in no case more than four storeys, in areas designated as General Urban Area in the Official Plan; (2) allow a number of other residential uses to provide additional housing choices within the fourth density residential areas; (3) permit ancillary uses to the principal residential use to allow residents to work at home; (4) regulate development in a manner is compatible with existing land use patterns so that the mixed building form, residential character of a neighbourhood is maintained or enhanced: and (5) permit different development standards, identified in the Z subzone, primarily for areas designated as Developing Communities, which promote efficient land use and compact form while showcasing newer design approaches. The permitted uses in the R4Q zone are: low- rise apartment dwelling, bed and breakfast, community garden, converted dwelling, detached dwelling, diplomatic mission, duplex dwelling, group home, home- based business, home- based daycare, linked- detached dwelling, multiple attached dwelling, park, planned unit development, retirement home converted, retirement home, rooming house converted, rooming house, secondary dwelling unit, semi- detached dwelling, stacked dwelling, three- unit dwelling. Subzone Q: I Sub- Zone II Prohib-ited Uses III Principal Dwelling Types IV V Mini-mum Minimum Lot Width Lot Area (m) (m2) VI Maximum Building Height (m) VII Minimum Front Yard Setback (m) VIII Minimum Corner Side Yard Setback (m) IX Mini-mum Rear Yard Setback (m) X Minimum Interior Side Yard Setback (m) XI Endnotes (see Table 162B) Q None Planned unit development na 1, 400 as per dwelling type 6 4.5 varies 1 varies 1 1 Apartment dwelling, low rise, Stacked 15 450 11 6 4.5 varies 3 varies 3 3 Three Unit 12 360 11 6 4.5 varies 4 varies 7 4,7 Detached, Duplex, Linkeddetached 12 360 8 6 4.5 varies 4 varies 7 Feasibility Report Page 9
Semidetached 6 180 8 6 4.5 varies 4 1.2 4 Multiple Attached 6 180 11 6 4.5 varies 4 1.2 4 3.1 Minimum Required Parking, Section 101 Section 101 of the Zoning By- law - Minimum Parking Space Rates - outlines what the required parking will be based on location within the City, separation distance from a Rapid Transit Station, and the type of development or use. According to this table, 0.5 spaces per unit is required for this proposed development. At minimum, at least 20 parking spaces would be required for this development. Feasibility Report Page 10
4 City of Ottawa Official Plan The entire property is designated as General Urban Area, but it surrounded by other significant designations, such as Arterial Mainstreet (Bank Street), Mixed Use Centre (in pink), Major Open Space (dark green), Urban Natural Features (light green). Some of the provisions for General Urban Area are included. "3.6 Urban Designations The General Urban Area designation permits the development of a full range and choice of housing types to meet the needs of all ages, incomes and life circumstances, in combination with conveniently located employment, retail, service, cultural, leisure, entertainment and institutional uses. This will facilitate the development of complete and sustainable communities. A broad scale of uses is found within this designation, from ground- oriented single- purpose to multi- storey mixed- use; from corner store to shopping centre. While the City is supportive of the establishment of a broad mix of uses in Ottawa's neighbourhoods, this is not meant to imply that all uses will be permitted everywhere within areas that are designated General Urban Area. The zoning by- law will continue to regulate the location, scale and type of land use in accordance with the provisions of this Plan. Within neighbourhoods, the zoning by- law will allow Feasibility Report Page 11
those uses that provide for the local, everyday needs of the residents, including shopping, schools, recreation and services. Uses that also serve wider parts of the city will be located at the edges of neighbourhoods on roads where the needs of these land uses (such as transit, car and truck access, and parking) can be more easily met and impacts controlled. Subject to the policies below, the City supports infill development and other intensification within the General Urban Area in a manner that enhances and complements the desirable characteristics and ensures the long- term vitality of the many existing communities that make up the city" 3. "When considering a proposal for residential intensification through infill or redevelopment in the General Urban Area, the City will: a. Recognize the importance of new development relating to existing community character so that it enhances and builds upon desirable established patterns and built form; b. Apply the policies of Section 2.5.1 and Section 4.11; c. Consider its contribution to the maintenance and achievement of a balance of housing types and tenures to provide a full range of housing for a variety of demographic profiles throughout the General Urban Area; d. Assess ground- oriented multiple housing forms, such as duplex, triplex and fourplex, as one means of intensifying within established low- rise residential communities." The Official Plan also discusses policies with regards to intensification, these policies are included below: "Within the General Urban Area, opportunities for intensification exist and will be supported, although such opportunities are generally at a much smaller scale than in the land- use designations described above. Policies 1. All intensification of land uses will occur in accordance with the criteria set out in Section 2.5.1. Where the zoning by- law permits the intensity of use, the focus will be on the design and the extent to which the design can contribute to compatibility. Where a zoning by- law amendment is required, the appropriateness of the scale of development will be evaluated along with the design and its compatibility. 4. To promote compact, mixed- use development, the City will: a. Investigate financial incentives for residential development within mixed- use projects; b. Strategically review the use of municipally- owned lands, except land zoned for environmental or leisure uses, to facilitate compact and mixed- use development; Feasibility Report Page 12
c. Consider how to reduce the amount of land used for parking, through such measures as reductions in parking standards and the creation of municipal parking structures; d. Partner with others in building commercial and residential development over transit stations, municipal parking structures, and municipal offices and facilities; e. Negotiate an increase in building density in exchange for developing municipal facilities, transit stations, and public cultural facilities... 9. For all housing forms, the City will support alternative municipal infrastructure and development standards (such as reduced road right- of- way width, utility trenching requirements and reduced parking standards in areas serviced by public transit) in the context of a subdivision application. [Ministerial Modification 2, November 10, 2003] " These policies indicate that certain requirements can be negotiated including a reduction in parking standards. This is done in order to allow for intensification on certain lots where parking space may not always be sufficiently available. 4.1 Affordable Housing Policies In Section 2.1, the City of Ottawa Official Plan states that the City will provide opportunities to increase the supply of affordable housing throughout the rural and urban areas. Furthermore Section 2.5.2 - Affordable Housing discusses the ways in which the City supports affordable housing and precisely how it can assist developments for affordable housing projects. The provisions of this section are provided below, please refer to the underlined sections: "Policies 1. Affordable housing is defined as housing, either ownership or rental, for which a low or moderate income household pays no more than 30% of its gross annual income. Income levels and target rents and prices will be determined by the City on an annual basis. [Amendment 10, August 25, 2004] 2. The City will encourage the production of affordable housing in new residential development and redevelopment to meet an annual target of: a. 25% of all new rental housing is to be affordable to households up to the 30th income percentile; and b. 25% of all new ownership housing is to be affordable to households up to the 40th income percentile. [Amendment 10, August 25, 2004] 3. The City will encourage and promote the achievement of the targets by providing a toolkit of planning incentives and direct supports, including but not limited to: density bonusing; density transfer; deferral or waiving of fees and charges; alternative development standards; land; and more flexible zoning. Where the support includes municipal investment, it will be associated with mechanisms to ensure the long- term affordability of the units. [Amendment 10, August 25, 2004] Feasibility Report Page 13
4. The City will prepare a Municipal Housing Statement which will be updated every five years and monitored annually, to: a. Establish targets for the distribution of affordable housing between low- income and moderate- income households; b. Establish targets for the distribution of affordable housing by tenure and size of unit; c. Ensure the distribution of a variety of affordable housing in all areas of Ottawa. 5. Within the context of the Municipal Housing Statement, the City will investigate means to increase the supply of affordable housing by: a. Engaging the private sector and non- profit and cooperative housing providers in meeting the affordable housing target for low- income and moderate- income households; b. Developing strategies to build affordable housing, such as the use of municipal property, development of air rights at transit stations, and financial incentives such as grants, property tax relief, and exemption from development charges and fees; c. Proposing mechanisms to ensure that housing provided through such incentives remains affordable over the long term; d. Seeking the necessary legislative authority to require cash- in- lieu of affordable housing, when reviewing development applications. 6. In accordanc the development of affordable housing. 7. The processing of development applications from non- profit housing corporations and housing cooperatives, for housing intended for persons of low- or moderate- incomes, will be given priority by the City. 8. The City will further promote the development of affordable housing through such means as infill construction, conversions of non- residential space, and adaptive re- use of buildings. 9. The City will implement alternative development standards for affordable housing development such as reduced parking standards in areas serviced by transit. 10. Secondary dwelling units in detached and semi- detached dwellings, and duplex buildings are permitted in all parts of the city in accordance with Section 3.1. [Amendment 10, August 25, 2004]" Feasibility Report Page 14
4.2 Official Plan Amendment 76 In 2009, the City of Ottawa completed a major review and update of the Official Plan. The update was enacted with Official Plan Amendment # 76 (OPA 76). This OPA is currently under appeal but it represents City Council's most recent policy directions. The following are some excerpts: "Definition of intensification: a. The definition of residential intensification has been quoted from the PPS and is the definition that will be used from this point forward. [NEW]. The definition has been altered somewhat to recognize that it can apply to a property, building or area. b. A definition has been introduced for employment intensification recognizing that this is an area where there is a great deal of potential for intensification. Target Areas for Intensification c. The target areas for intensification are not new but emphasis is placed on the link between target areas and the rapid transit network. Setting Intensification and Density Targets d. An intensification target has been introduced. It is defined as the proportion of new urban dwelling units that are provided through intensification (rather than development in greenfields). e. Minimum density targets are set for some key areas in Figure 2.3, expressed as people and jobs per gross hectare. These targets will be implemented through individual development applications and their ability to achieve the target. Provided a target for Riverside South Community Core. Revised the density target for Billings Bridge. f. Minimum residential targets will be prepared outside of the Plan (in the Residential Lands Strategy). g. A new policy has been added to speak to the relationship between intensification and Heritage Conservation Districts. h. All targets will be monitored and reported on annually. Implementation of Intensification and Density Targets i. Existing zoning by- laws, community design plans, secondary plans will be reviewed to ensure that the targets can be met and development applications will be reviewed in light of the targets. Any necessary amendments will be carried out in consultation with the neighbourhood involved. j. The City will commit itself to supporting intensification in target areas through a commitment to good design in the public realm, setting priorities for municipal works, implementing a capacity management strategy and other efforts. k. As a priority, the City will lead discussions to look at all the technical, regulatory and design matters that will allow the intensification strategy to be successful. Intensification Outside of Target Areas l. Most of this section is not new. However, the target densities for greenfields have been increased primarily through an increase in proposed densities for single- detached lots. Previously single- detached were not referred to separately. m. Reference to complementary development/redevelopment occurring within the interior of stable, low- rise residential neighbourhoods has been added." Feasibility Report Page 15
The policies developed in this Official Plan Amendment are designed to further encourage intensification and ensure that other policies (such as those in the Zoning By- law) will also support intensification. Intensification Outside of Target Areas 13. The City also supports intensification throughout the urban area, including areas designated General Urban Area. The City will promote opportunities for intensification in the following cases, provided that all other policies in the Plan are Item Section Details of Amendment met: a. Lands within 600 metres of future or existing rapid- transit stations with potential to develop as compact, mixed- use and pedestrian- friendly cores; 14. The interior portions of stable, low- rise residential neighbourhoods will continue to be characterized by low- rise buildings (as defined in Section 4.11, policy 8). The City supports intensification in the General Urban Area where it will enhance and complement its desirable characteristics and long- term renewal. Generally, new development, including redevelopment, proposed within the interior of established neighbourhoods will be designed to complement the area's pattern of built form and open spaces." Feasibility Report Page 16
5 Proposed Development The proposed development is for a ~40 unit affordable housing apartment building. All units are to be bachelor style apartments and will be contained in a three- storey apartment building. The concept plans is prepared by CSV Architects are presented below. The total gross floor area of the proposed building is 550 m2 (5,920.15 sq ft) and the height of the building is to be 11.0 m (36.09 ft) in accordance with the Zoning By- law. The plans and information provided by the Architect indicate the following: Setbacks: Parking: Provided: Visitor Rate: Provided: Front Yard: 6.0 m ( Ft) Rear Yard: 7.5 m Interior Side Yard: 1.5 m For first 21 m and 7.5 m required beyond this Residential Rate 0.5 spaces/dwelling = 20 required for 40 units None 0 spaces for first 12 units, 0.2 spaces per unit for remaining units = 7 required 2 spaces Bicycle Parking = 24 spaces required Amenity Spaces = 6m2/dwelling unit = 288 m2 required. Exterior amenity space provided = 635 m2 Interior amenity space provided = 68 m2 Total provided amenity space = 703 m2 Feasibility Report Page 17
LPA File No. 1008 Lloyd Phillips & Associates June 9, 2010 Feasibility Report Page 18
6 Observations on Proposed Development and Planning Considerations Site Setting The proposed development is compatible with the general character of recent multi- unit residential development in the Heron park neighbourhood. It is also compatible with the residential development immediately surrounding the site Site Characteristics The site configuration and frontage are workable for the proposed development. If surface parking was intended to meet the parking deficiency then the site does not have sufficient land to accommodate this. Zoning The zoning permits the proposed low- rise apartment use and the proposed development conforms to all of the zoning requirements, except parking. Official Plan The City of Ottawa Official Plan supports residential intensification and the reduction of parking standards where there is a high- level of accessibility to rapid transit facilities. There is a strong policy basis to support a request to reduce the parking requirement. 6.1 Potential Issues or Concerns One of the issues indicated was a lack of adequate parking spaces. According to section 101 (4) of the zoning by- law a lot within 600 metres of a rapid transit station may have a reduced parking requirement than that listed in Table 101. I Land Use USES RELATED - RESIDENTIAL (b) Apartment (i) within 600 Building, Mid High metres of a Rise and Low Rise rapid transit station (see Sections II Area A on Schedule 1 and MC Zone at Pasture (Central Area) 1. West of the Rideau Canal- none 2. East of the Minimum Number of Parking Spaces Required III Area B on Schedule 1 other than MC Zone at (Inner City Area) 0.5 per dwelling unit IV Area C on Schedule 1 (Suburban Area) V Area D on Schedule 1 (Rural Area) LPA File No. 1008 Lloyd Phillips & Associates June 9, 2010 Feasibility Report Page 19
101(4) and 101(5)) (ii) other cases Rideau Canal- 0.25 per dwelling unit 0.5 per dwelling unit 1.2 per dwelling unit (also see Section 101(10)) 1 per dwelling unit As seen in the map below, the subject property appears to be located within 600 m of the rapid transit station Billings Bridge. Approximate location of subject property Feasibility Report Page 20
7 Conclusions and Recommendations The proposed assisted- living development conforms to the Official Plan and supports its policies regarding intensification, efficient use of land and infrastructure, and policies that support an increase in affordable housing. The location of this development just south of Ottawa's downtown core allows it to be a superior candidate for both intensification and for affordable housing. The development is mostly consistent with the provisions of the Ottawa Zoning By- law. The low- rise apartment residential use is permitted within the zoning. Additionally, all the zoning setbacks, including the maximum permitted height are respected with the proposed development. The section of the Zoning By- law where the proposed development is not in concurrence with is Section 101 which lists minimum parking requirements. Section 101 of the Zoning By- law places requires 0.5 spaces per unit and requires parking for this development would to be a minimum of 26 spaces. With a lack of adequate space to provide for the required parking there are three possible solutions. The first would be to apply for a reduction in parking which could be justified for two reasons, 1) the development is in proximity to a Rapid Transit Station and 2) it is an affordable housing project and the City has provisions indicating that parking requirements can be reduced for affordable housing developments. Secondly is to apply for a minor variance to permit reduced parking standards. However, this process would involve an application to Committee of Adjustment and a hearing of the case where the public is permitted to express concerns they may have. The third option is submit a cash- in- lieu for parking application. A cash- in- lieu application would be a much simpler process, would be less time- consuming and would likely be cheaper. The risk of this process is the cost of each deleted space as determined by the City. In conclusion, this project is supported by the provisions of both the Official Plan and the Zoning By- law, except for the require parking rate. That being said the issue of parking should not a major issue and should be easily dealt with. It is recommended that should the project go forward that the reduction in parking be obtained via the cash- in- lieu of parking space. Feasibility Report Page 21