Introduction This Planning Rationale has been prepared in support of a Zoning By-law Amendment and Official Plan Amendment for lands located at 101 Norman Street in the City of Ottawa. The purpose of the Planning Rationale is to assess the appropriateness of the proposed development and the requested Amendments within the context of the surrounding community, the City s regulatory and policy framework, and technical studies conducted with respect to the proposed development. Overview of Subject Property The subject property is located on the north side of Norman Street and is comprised of the properties municipally known as 93, 95, 97, 99, 103, and 105 Norman Street. The properties form a contiguous frontage along the street, terminating at the O-Train corridor at the west side. Collectively, the properties have approximately 72 metres of frontage along Norman Street and combine for a total area of 2,268 m 2. The lots are all rectangular in shape, and form a larger rectangle when combined as one lot. The legal descriptions of the lots are found below: Municipal Legal Description Address 93 PLAN 38 LOT 1503 NORMAN N 95 PLAN 38 LOT 1503 W1 LOT 1504 97 PLAN 38 LOT 1505 PT LOT 1504; NORMAN N 99 PLAN 38 LOT 1506 103 PLAN 38 E PT LOT 1507 NORMAN; N 105 PLAN 38 W PT LOT 1507 NORMAN; N The properties are currently occupied with single-detached dwellings and light industrial uses. Site Context The subject property is located at the western edge of the Little Italy neighbourhood of Ottawa. The community is centred on Preston Street, or Corso Italia, which is located 30 metres east of the property and features an eclectic mix of uses including restaurants, shops, cafes and bars. The area also contains several federal government employment centres, including office towers along Carling Avenue south of the subject property and a Public Works complex to the east between Rochester and Booth Streets. The property fronts onto Norman Street, which extends from Booth Street in the east to the O-Train corridor in the west. The block of Norman Street on which the subject property is located is approximately 100 metres in length, with exclusively single-detached residential uses on the south side of the street. The dead end at the western end of the street eliminates the possibility of through traffic, limiting vehicular traffic on the street to local users. Figure 1: Area Context. The surrounding neighbourhood west and east of Preston Street can presently be characterized as predominantly low-profile residential, with a number of remnant industrial uses and parking lots located interior to the community. The residential community is limited to one block west and east of Preston Street, as the O-Train corridor physically separates the community from the community further west. To the east of Preston Street, the low-rise residential community extends to Rochester Street with the federal government occupying the lands east of Rochester. Beyond the immediate surrounding neighbourhood, several public open spaces are situated in close proximity to the subject property. Commissioner s Park, Dow s Lake and the Dow s Lake Pavilion are located on the south side of Carling Avenue, approximately 300 metres south of the subject property. This connection to Dow s Lake also provides a connection to the downtown area via the Rideau Canal pathway to the east and the Central Experimental Farm to the west. South of Dow s Lake is the Carleton University campus as well as a system of large parks including Brewer Park, Vincent Massey Park, Hog s Back Park, and Mooney s Bay Park, all situated along the Rideau River. Across the O-Train trench to the west of the subject property lies Ev Tremblay Park, which features a hockey rink, tennis courts, wading pool, and soccer pitch. Immediately adjacent to the park to the south is a proposed high-rise building by Ashcroft Homes, on the former Humane Society site. A presentation will be made at Planning Committee in November 2012 for the rezoning, which is proposing a 27- & 33-storey high-rise apartment building. Several schools are within close proximity to the subject property. To the west is St. Mary Catholic School and the private Heritage Academy. North and northeast of the subject property is the Adult High School, St. Anthony Catholic School, and Cambridge Street Community Public School. 1
A map illustrating the existing content in the area is provided below. West: Immediately west of the subject property is the O-Train corridor, which runs north-south from Bayview Station to Greenboro Station. West of the corridor is a residential community with a variety of building types. Access to this community is gained via Beech Street or Carling Avenue, both of which cross the O-Train trench. Road & Transportation Network The subject property is situated at the end of a two-way local street with a dead-end to the west. Approximately 30 metres east of the property is Preston Street, which is classified as an Arterial Road on Schedule E Urban Road Network in the Official Plan. Arterial Roads are intended to accommodate large volumes of traffic over the longest distances. Preston Street is a two-lane Arterial with on-street parking located on both sides of the street. The property is also located approximately 350 metres south of Highway 417. The property is well-situated within the City s public transportation network, and is well served by existing transit services. Bus route # 85 runs north-south along Preston Street, while routes 6, 101, 102 run east-west along Carling Avenue. In addition to existing bus service, the site is in close proximity to the O-Train corridor (illustrated below). Figure 2: Area Amenities. Adjacent Uses North: The abutting properties to the north of the subject property are occupied by single-detached dwellings that front onto the south side of Beech Street. On the north side of Beech Street is a 3-storey condominium building at 95 Beech Street, with its associated surface parking. South: South of the subject property is two (2) blocks of predominantly low-profile residential uses. Beginning on Adeline Street, the uses change to light industrial, auto-oriented commercial, surface parking, and a high-density residential tower south to Carling Avenue. East: Immediately east of the subject property is a two-storey commercial building that fronts onto Preston Street. The Preston Street / Corso Italia Traditional Mainstreet lies east of the property, running in a north-south direction, and features a range of commercial and residential uses. Figure 3: Road and Transportation Network. The Carling O-Train Station is located approximately 300 metres southwest of the subject property at Carling Avenue. While the station currently functions as a stop along the north-south O-Train corridor, it is anticipated to play a larger role in the transit network as the planned changes to the system are implemented. When the O-Train line is converted to Light-Rail Transit and surface rail infrastructure (as contemplated) is added to Carling Avenue, this station will function as the nexus of two major transit lines. Although the exact location of the station has yet to be determined, it will remain in close proximity to the subject property. The subject property is also approximately 2
550 metres from the planned Gladstone Station, to be introduced when the O-Train line is converted to accommodate Light Rail. Development Activity in Area Several development applications have been filed and approved for properties in proximity to the site. An inventory of this development activity in the area is provided below. The approved development proposal for 100 Champagne Avenue South by Domicile Developments will replace a non-conforming commercial/industrial building with a 12-storey high-rise apartment building and four (4) townhouses. The apartment building and townhouses will share one (1) common parking garage creating a singlestorey podium. Vehicular access will be provided from Champagne Avenue South. The six (6) townhouse units will be three (3) storeys in height with pedestrian access from Hickory Street. The townhouses will be linked by the podium to the apartment building. Parking for these units will be provided in an at-grade garage located at the rear of the units. Private amenity space for the townhouses will be located above grade on the roof of the podium. In close proximity to the Domicile site, Mastercraft Starwood has received approval for a development of two (2) residential condominium buildings with a two (2) to three (3) storey podium consisting of townhouse units and commercial space at grade, all built as one (1) comprehensive development. A total of 324 units are proposed on the site- 301 residential condominium units and 23 townhouse units. The townhouses will front onto Hickory Street and the O-train corridor, and will form part of the podium to the two (2) condominium towers. A 20-storey apartment building will be located at the southwest corner of the site and a 16-storey apartment building will be located at the northeast of the site. Figure 4: Carling O-Train Station. Preston Street is identified as an On-Road Cycling Route as per Schedule C Primary Urban Cycling Transportation Network of the Official Plan. The pathway along the east side of the O-Train corridor is classified as a Major Recreational Pathway on Schedule I Major Recreational Pathways and Scenic-Entry Routes of the Official Plan. Merrion Square Norfolk, by Domicile Developments, is a residential development currently under construction on the block bound by Loretta Avenue to the east, Breezehill Avenue to the west, Hickory Street to the north and Carling Avenue to the south. The development will consist of six (6) blocks of townhouses and two (2) condominium towers one eight- (8) storey and one ten- (10) storey. Arnon has submitted a Minor Variance application for 855 Carling Avenue, southwest of the site. The application seeks to raise the maximum permitted building height to 84 metres, or approximately 28 storeys. The application seeks to increase the permitted heights of approximately 15 and 19 storeys. The City has received an application from Ashcroft Homes proposing to redevelop the former Ottawa Humane Society site at 101 Champagne Avenue. The proposal, which is to be considered at a November Planning Committee meeting, is for two (2) high-rise residential towers in the 27-33 storey range. With respect to development east of the O-Train corridor and in closer proximity to the subject property, Starwood Group is proposing a 30-storey mixed-use commercial and residential building at 490-500 Preston Street. Proposed Development The proposed residential development features 159 apartment units in an 18-storey tower on top of a 4-storey podium. All dwelling units are proposed to be condominiumized, the residents of which will residents will have access to the underground parking garage. Figure 5: Cycling and Recreation Map. 3
The 159 dwelling units will be divided between one (1) bedroom (approximately 60%) and two (2) bedroom (approximately 40%) units. One (1) bedroom units range from 46-70 m 2 (500-750 sq. ft.), while two (2) bedroom units range from 79-95 m 2 (850-1,020 sq. ft.). The 4-storey podium contains primarily one (1) bedroom units. Three (3) floors of underground parking will be provided for all residents at a rate of 0.9 spaces per unit, totaling 121 spaces. Visitor parking will also be included in the underground levels at a rate of 0.2 spaces per dwelling unit, totaling 32 spaces. The underground levels will also accommodate 163 bicycle parking spaces. Vehicular access to the underground parking garage is located on the southeast side of the development, with access from Norman Street. The garage is accessed by means of a two (2) way ramp that connects to level P1, with additional ramps below to access levels P2 and P3. Pedestrian access to the lobby is also from Norman Street, along the south side of the building. Indoor amenity space will be provided on the ground floor adjacent to the lobby. Additionally, outdoor amenity space will be provided on the roof of the podium. The architecture of the proposed building is attractive, and incorporates a mix of materials to reinforce the character of the existing built form. Lighter colours were selected for the tower to add interest and reduce visual impacts. The building enjoys a close relationship to the street, contributing to an active frontage along Norman Street. Each podium unit contains an outdoor balcony facing onto Norman Street, further strengthening the development s relationship to the pedestrian realm. The podium is four (4) storeys in height, framing the street with a continuous building frontage and providing a transition from the high-rise tower to the low- to medium-rise built form on Preston Street to the east. The proposed development includes a redesign of the existing pedestrian and recreational pathway system. Improvement of the multi-use pathway along the east edge of the O-Train corridor is included in the proposal, providing access to the city-wide pathway network and increasing opportunities for active transportation and recreation. Additionally, the underground parking garage services the entire proposed development, resulting in the removal of multiple curb cuts that are currently present on the subject property. The uninterrupted sidewalk, along with the built form of the proposed development, will contribute to a safer and more pleasant pedestrian experience along the street. Trees and other soft landscaping are proposed in the front yard along Norman Street, further improving the pedestrian realm. The graphic below illustrates the pedestrian linkages in the area surrounding the subject property. Norman Street accommodates sidewalks on the north and south sides, linking the proposed development to Preston Street in the east. Preston Street is intended to be a pedestrian-friendly street, with active uses and landscaping facilities at grade to create an enjoyable walking experience. Sidewalk connections continue along Beech Street to the north. Immediately adjacent to the subject property at the western end of Norman Street is a multi-use pathway running parallel to the O-Train corridor. The pathway connects to a broader pathway network and provides access by active modes of transportation to destinations throughout the city. Figures 6 & 7: Perspective Renderings of Proposal. 4
Requires planning authorities to identify and promote opportunities for intensification and redevelopment especially on brownfield and under-utilized sites. The proposed development meets the policy directions established in the PPS. It is located within the urban area where infrastructure, services, and amenities exist, and in an area of the City that is targeted for intensification and redevelopment. City of Ottawa Official Plan (2003, Consolidated 2011) The applicable sections and policies of the Official Plan are summarized below. Section 2.2.2- Managing Growth within the Urban Area The Official Plan projects that about 90 per cent of the growth in population, jobs, and housing will be accommodated in areas designated within the urban boundary in the Plan where services are already available or can be easily provided. Concentrating growth within the designated urban area allows for a more efficient pattern and density of development that in turn support transit, cycling, and walking as viable alternatives to private automobiles. As a result, the policy direction of this Plan is to promote an efficient land-use pattern within the urban area through intensification of locations that are strategically aligned with the rapid transit network and by establishing minimum intensification and density targets. More specifically, the Official Plan identifies lands designated Mixed-Use Centres (among others) as target areas for intensification and establishes minimum density targets. The subject lands are located within the Bayview-Preston Mixed-Use Centre, which has a minimum density target of 200 people and jobs per gross hectare by the year 2031. The policies require that all new development within the boundary of the designation subject to a minimum density target will be required to meet the target. The proposed development will contribute to meeting the City s established targets for this area and further its strategic and policy objectives. Figure 8: Pedestrian Linkages Around the Subject Property. Policy Framework This section provides an overview of key land use policies that affect the property, and demonstrates how the proposed development conforms to the land use objectives applicable to the site. Provincial Policy Statement (2005) The Provincial Policy Statement (PPS) directs that land use planning shall be carried out in a manner that: Promotes efficient, financially responsible development patterns that contribute to long-term sustainability across on a province-wide basis, as well as in local communities ; Optimizes the use of existing infrastructure and public service facilities; Promotes a compact built form which supports the use of alternative transportation modes and public transit and placing opportunities for intensification and redevelopment first; and Section 2.5.1 Compatibility & Community Design The purpose of compatibility and design policies is to help the City manage growth in a way that enhances a community. These policies are particularly relevant to infill projects within established areas. Infill development must be sensitive to, and compatible with, the existing community fabric. Development must work within its physical environment but does not need to be the same as existing development. This approach is needed to help the City achieve other goals such as intensification and compact forms of development. The proposed development draws upon characteristics of the community to fit well in its context and to work well among its surrounding functions. The proposed development increases the residential density of the neighbourhood, while the design of the 4-storey multiple-attached dwellings is sensitive to the low-rise built form along Norman Street. The proposed development meets the following applicable objectives in Section 2.5.1 of the Official Plan: Enhancing the sense of community by creating and maintaining places with their own distinct identity: The design of the building is sensitive to its existing context along a low-profile residential street, by locating street-fronting townhouses along Norman Street in the centre of the block. 5
Simultaneously, the built form of the entire project is cognizant of its role in a vibrant mixed-use area that is sustained through high-density development. The proposed high-rise apartment tower introduces the necessary residential density to the area, while being situated at the end of Norman Street, away from the low-medium profile built form along Preston Street and the surrounding residential neighbourhood. Define quality public and private spaces through development: The proposed development will improve the continuity of street frontage on Norman Street, replacing the existing surface parking lots that occupy some properties with active residential uses. The quality of the pedestrian environment will be enhanced through the elimination of curb cuts, the close relationship of the proposed development to the sidewalk, and the improvement of the multi-use recreational pathway along the O-Train corridor. The high-rise tower proposed for the west end of the property will mark the end of the street and indicate the edge of the neighbourhood adjacent to the O-Train corridor. It will also form part of the backdrop of the view from Ev Tremblay Park across the O-Train trench to the west, in tandem with the proposed Ashcroft development on the former Humane Society site. Creating places that are safe, accessible and are easy to get to, and move through: Pedestrians will gain access to the proposed development directly from Norman Street, with safe and visible entrances. The building design sufficiently separates pedestrian access from automobile access to ensure safe, modeseparated movements onto the site, with crosswalks and pavement treatment used to emphasize areas meant for pedestrian circulation. The density of the proposed development will help the city to achieve a more compact urban form and achieve the City s objective of increasing density in proximity to transit to ensure its success. The range of unit types proposed, including one (1) and two (2) bedroom condominiums, contributes to the range of housing options available in the community to cater to a diverse population. Maximizing energy-efficiency and promoting sustainable design to reduce resource consumption, energy use, and the carbon footprint of the built environment: The proposed development reduces the carbon footprint by providing for compact, vertical living, which has a smaller ecological impact. The development will be designed and constructed to meet new Ontario Building Code standards, which emphasize energy efficiency through the use of energy efficient windows/doors, higher insulation requirements for ceilings, walls, foundation walls and basements and high efficiency furnaces, among others. Overall, the proposed development meets the intent of the design objectives while offering a compact form of development that will assist the City in meeting its intensification targets in a community in transition. Section 3.6 Urban Land Use Designations The site is designated Mixed-Use Centre on Schedule B: Urban Policy Plan in the City of Ottawa Official Plan. More eyes will be overlooking Ev Tremblay Park and the proposed multi-use pathway, representing a passive safety measure for park and pathway users. The development is located within walking distance to the nearby O-Train station, major bus routes that pass through the area, cycling routes, and the pedestrian pathway along the LRT corridor, and is close to many community services and amenities, including Preston Street and Dows Lake. Ensure that new development respects the character of the existing area: The planned function for the area is for high-profile, high-density development. Recent development activity in the community reflects this intention with applications for development ranging from 12 to 33 storeys. The design of the proposed development is sensitive to the existing character of Norman Street, by including a low-rise podium intended to integrate with the surrounding low-rise built form. Consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice: Figure 9: Extract from Official Plan Schedule B: Urban Policy. 6
Section 3.6.2 Mixed-Use Centres Lands designated Mixed-Use Centres are strategically located on the rapid-transit network and adjacent to major roads, constituting a critical element in the City s growth management strategy intended to achieve compact and mixed-use development. Given their importance in the City s overall growth strategy, the Official Plan establishes minimum density targets of people and jobs per hectare to ensure that Mixed-Use Centres fulfill their planned function. Mixed-Use Centres are highly accessible, offering premium transit, walking, cycling and automobile routes. They are intended to accommodate a broad range of transit-supportive uses such as offices, secondary and post-secondary schools, hotels, hospitals, large institutional buildings, community recreation and leisure centres, daycare centres, retail uses, entertainment uses, services, and high- and medium-density residential uses, with the highest density development to occur within 400 m of a rapid-transit station. Based on the policy direction for this area, the surrounding properties that redevelop over time are intended to do so at a medium to high density. In addition, the Bayview-Preston Mixed-Use Centre has been assigned a minimum density target of 200 people and jobs per hectare by 2031. Considering the planned function for the subject property and the surrounding area, this site is well-suited to accommodate high-profile development. The proposed development conforms to the policies of the Official Plan, in particular to the policies relating to Mixed-Use Centres, as follows: The site is located less than 300 metres from the Carling Avenue O-Train rapid transit station and less than 600 metres from the planned Gladstone Station. The proposal replaces auto-oriented uses, such as an autobody shop and surface parking, with active residential uses at a higher density than what is currently present on the site. The Mixed-Use Centre designation requires development at a medium to high density that is transitsupportive and includes residential and mixed-use development. Uses existing infrastructure without the need for major upgrades. The high-profile residential development proposed for the site will support the City s transit system and will further promote the use of alternative modes of transportation given the proximity to employment, major open space, and amenities available along Preston Street. The proposed development contributes to the creation of complete communities. Compact, mixed-use development promotes sustainability by reducing travel distances, making transit service more desirable, reducing overall land consumption, and maximizing the use of existing infrastructure. The proposal aligns with the major recurrent theme in the Official Plan, which is the promotion of well-designed infill development in support of intensification. The building height is appropriate given the site s proximity to transit service, the limited adverse impact on adjacent uses, and its planned function. Several plans for development are underway in the immediate area of the site that reflect the planned function for the surrounding area. Section 4.11 Compatibility The criteria in Section 4.11 provide a means to objectively evaluate compatible infill. The section provides criteria to weigh the proposal against its context. It is our opinion that the proposed design is appropriate, as follows: Traffic A Traffic Study was prepared and submitted in support of the proposal, which raised no concerns regarding traffic issues. In addition to the conclusions found in the traffic study, the site s proximity to transit and walking distance to employment, availability of amenities along Preston Street and major open space are all expected to reduce the amount of traffic generated. Vehicular Access The underground parking garage will be accessed via Norman Street, a local street with low traffic volume. The proposed driveway will minimize automobile movement disruption, improve traffic flows, and contribute to a safer pedestrian environment by eliminating several curb cuts that are currently present on the property. Noise and headlight glare impacts will generally be absorbed internally. Parking Requirements The underground parking garage will accommodate the parking for all of the proposed uses and will exceed the Bylaw with respect to meeting vehicular parking requirements. Given the site s proximity to transit, it is also subject to a maximum resident and visitor parking rate. The proposed number of parking spaces is well below the permitted maximum number. The proposed development seeks to balance the need to provide sufficient parking to ensure there is no spillover parking with over-parking the site and discouraging the use of alternative transportation. Outdoor Amenity Area The proposed development will maintain a full 7.5-metre setback to the north from the rear yards of the adjacent residences. In addition, all active outdoor amenity area is planned on the roof of the 4-storey podium, resulting in a significant setback to the adjacent residences. While the tower element will introduce some privacy considerations to the existing low-rise interface, it should be recognized that the area is in a state of transition to meet the broader objectives of the municipality of encouraging compact, more intensive, mixed-use transit-oriented development. Loading Areas, Service Areas and Outdoor Storage Services and storage, including waste removal storage for the proposed development, will be contained internally and designed to minimize disruption to adjacent properties. Lighting Building and lighting design will be designed to minimize glare and reduce spill-over onto adjacent properties. Noise and Air Quality No noise impacts have been identified. The proposed residential buildings are not considered significant noise generators. Rooftop mechanical equipment must be designed to be sensitive to adjacent uses. Sunlight A sun-shadowing study has been prepared and included in the submission package. The proposed development will have some sun-shadowing impacts on the surrounding properties, but given the small footprint of the tower and the site s location within an urban area planned for medium- to high-profile development, the impacts are considered 7
acceptable. The small footprint of the tower ensures that the shadow created by the building moves quickly across the affected properties. Supporting Neighbourhood Services The proposed development is located within walking distance to a wide range of community services such as parks, institutional uses and a variety of commercial/service uses along Preston Street and in the immediate surrounding area. The proposed development will contribute to the critical density required to support these services and bring others into the community. Locations for High-Rise Buildings Applications to develop high-rise buildings may be considered based on the application of policies 7 through 9 of Section 4.11 of the consolidated Official Plan (2011). Policy 7 includes definitions of building profiles, defining lowprofile as 1 to 4 storeys, medium-rise as 5 to 9 storeys and high-rise as 10 storeys and greater. In addition, Policies 8 and 9 state that high-profile buildings can be considered on lands: a) Designated Mixed-Use Centres; b) Within areas characterized by high-rise buildings that have access to an arterial road, or; c) Within 600 m of a rapid transit station, d) Where a community design plan, secondary plan or other similar Council-approved planning documents identifies locations suitable for the creation of a community focus on a strategic corner lot, or at a gateway location or on a terminating site to strategic view, or a site that frames important open space, or at a location where there are significant opportunities to support transit at a transit stop or station by providing a pedestrian and transit-oriented mix of uses and activities. d) Within areas where a built form transition as described in policy 12 below is appropriate. As per Policy 12, appropriate transition can be achieved by incorporating the following design measures: a) Incremental changes in building height (e.g. angular planes or stepping building profile up or down); b) Massing (e.g. inserting ground-oriented housing adjacent to the street as part of a high-profile development); c) Character (e.g. scale and rhythm, exterior treatment, use of colour and complementary building finishes); d) Architecture design (e.g. the use of angular, cornice lines); and e) Building setbacks. Figure 10: Extract from Official Plan Schedule D: Rapid Transit Network. The proposed development meets the criteria for consideration of a high-profile building at this location in that: The Official Plan policies state that high-profile buildings can be considered in a number of land use designations including on lands designated Mixed-Use Centre; High-profile buildings can also be considered on lands located within 600 m of rapid transit. The subject property is located within 300 m of the existing O-Train station and the future Light Rail Transit. The development will contribute to the critical density required to ensure that transit in this area will be successful; The site is located at the end of a street that terminates at the O-Train corridor. The high-rise building will mark this transition point at the edge of the community; and The proposed development incorporates a 4-storey podium along Norman Street to ensure that the development transitions appropriately to the low-profile development that lines Preston Street to the east. The proposed development meets the intent of Official Plan policies, including the urban area growth objectives, the Mixed-Use Centre land use designation, compatibility criteria, and those establishing appropriate locations for highrise buildings. 8
Preston-Champagne Secondary Plan The Ottawa Official Plan (the Primary Plan ) was adopted in 2003. At the time of adoption, a number of the Secondary Plans were rolled into the Primary Plan but were not adjusted to reflect the policy thrusts of the Parent Plan. As a result, a number of the older Secondary Plans are out-of-date and do not conform to the policies of the Primary Plan. The newer policies introduced during the five year review through OPA 76 bring the policies further out of alignment with the Secondary Plan for the Preston-Champagne area. intensification while the Secondary Plan designation minimizes density and development potential. It is for this reason that an Official Plan Amendment application has been included with the Zoning By-law Amendment application for the subject property. The site is subject to a Hazard Evaluation, and is identified as Low-Medium Hazard Rating on Schedule M of the Secondary Plan. The appropriate studies will be prepared to ensure that the site can be developed safely. The property is located in the Southeast Quadrant of the planning area, defined as south of the Queensway (Highway 417) and east of the O-Train corridor. In the Vision section of the plan, this area is envisioned to contain medium-high profile employment uses along the south and northeast perimeter of the Quadrant, which will transition to low- and medium-profile residential uses and neighbourhood commercial uses on Preston Street. The existing housing stock is to be protected in the interior neighbourhoods. The site is designated in this Secondary Plan as Residential Low-Profile. One (1) objective of the Secondary Plan is to protect and enhance existing residential areas and promote sensitive infill development of older industrial sites. Responding to this objective, the Residential Low-Profile designation is intended to permit predominantly low-profile residential uses to preserve its character. Schedule L is shown below: Figure 12: Extract from Preston-Champagne Secondary Plan Schedule M. Draft Carling-Bayview Light Rail Transit (LRT) Corridor Community Design Plan (CDP) A Community Design Plan (CDP) for the Carling Bayview transit corridor was initiated in 2005. The study was reinitiated in 2010 with the approval of the new Transportation Master Plan. The study area of this CDP is bounded by the Ottawa River in the north and Prince of Wales Drive in the south. The east and west boundaries are streets and property boundaries that roughly follow the two (2) 600-metre lines parallel to the LRT right-of-way. The site is located within the proposed study area boundary. Figure 11: Extract from Preston-Champagne Secondary Plan Schedule L. The Official Plan policies are based on the concept of sustainable design and intensification. Mixed-Use Centres are the primary means of intensification, located in areas near rapid transit stations. By contrast, the Preston- Champagne Secondary Plan was developed in the early 1990s and fails to anticipate the impact or importance of transit in relation to intensification and the concept of sustainable development. The policies that apply to the subject property in the Official Plan and the Secondary Plan are in conflict, with the Primary Plan encouraging The City of Ottawa has recently engaged Urban Strategies to assist with the preparation of the Carling-Bayview CDP. The firm s involvement is intended to expedite the preparation of the CDP and provide City staff with additional recommendations of policies and directions for the plan. Commencing on September 13, 2012, Urban Strategies held consultations and charettes with stakeholders in the CDP area. Although a final recommendation for the subject lands has not been prepared at the time of this report, preliminary feedback to FoTenn and Tamarack from Urban Strategies indicated that high-rise development would be appropriate at the subject location, particularly adjacent to the O-Train corridor. Urban Strategies felt that it would 9
be appropriate for buildings along the east side of the O-Train corridor to transition from building heights west of the corridor. As it is still in the preliminary stages of development, the Carling-Bayview Community Design Plan is not applicable to this application. However, preliminary feedback from most recent meetings with Urban Strategies suggest that the proposed development design would fulfill the urban design vision for these lands by locating an 18-storey tower to transition between the 33-storey building envisioned for 101 Champagne Avenue and the 4-storey heights to the east. Other Policy Considerations The City of Ottawa has several Design Guidelines for land uses and areas. There are two (2) sets of Design Guidelines that apply to the site. Urban Design Guidelines for Transit-Oriented Development The Urban Design Guidelines for Transit-Oriented Development were approved by Council in 2007. The purpose of the guidelines is to assess, promote and achieve appropriate Transit-Oriented Development. The guidelines are to be applied to all development within a 600-metre walking distance of a transit station or stop, and are to provide direction in the review of development applications including Zoning By-law Amendments. Transit-oriented development is described as moderate- to high-density transit-supportive land uses located within easy walk of a rapid transit station that is oriented and designed to facilitate transit use. It provides a framework for the physical layout, massing, functioning, and relationships of infill buildings. These guidelines help to implement policies of the Official Plan and facilitate the approval process. The proposal meets the following design guidelines: Provide transit supportive uses within 600 m of a rapid transit station that establish high residential/employee densities and attract pedestrian and cycling traffic, such as apartments, offices, and post-secondary institutions. Locate buildings along the street to encourage ease of walking between the building and public transit. Locate the highest density and mixed uses as close as possible to the transit station. Orient buildings towards transit stations and provide direct pedestrian access that minimizes conflict with vehicles. Create highly visible landmarks through distinctive design features that can be easily identified (such as high rises). Design pedestrian connections that are convenient, safe and continuous and that lead directly to transit. Provide convenient bicycle parking that is accessible and close to building entrances, protected from the weather, and does not impede the movement of pedestrians. Urban Design Guidelines for High-Rise Housing The Urban Design Guidelines for High-Rise Housing are meant to guide the review of development applications by the City to ensure that appropriate high-rise development is achieved. A high-rise building is identified in the Official Plan as a building that is 10 storeys or more in height. The objectives of the design guidelines are as follows: Address the compatibility and relationship between high-rise buildings and their existing or planned context; Integrate development with public transit, city services and infrastructure; Create human-scaled, pedestrian-friendly streets and attractive public spaces; Promote high-rise buildings that contribute to views of the skyline and enhance orientation and the image of the city; Promote development that responds to the physical environment and microclimate through design. The design guidelines are organized into categories, and following are some key design guidelines for high-rise housing applicable to the proposed development: Context Create a sense of transition between high-rise buildings and existing adjacent lower-profile areas through the location and orientation of the building base or podium and the tower. Locate high-rise development to preserve and enhance important views and vistas. Do not block or detract from views to landmarks, historic buildings, monuments, public art, parks, gardens and rivers. Orient, size and locate high-rise towers to minimize the extent or duration of the shadowing on adjacent sites, streets and open spaces. Locate landmark buildings at prominent intersections, or along an important roadways, or headquarters of civic, cultural functions, or near major transit stations. Enhance community gateways. Design corner sites with open space and pedestrian amenities. Built Form Design the lower portion of the buildings to support human-scaled streetscapes, open spaces and quality pedestrian environments. Ensure that the pedestrian entrance is at-grade and directly accessible, clear, prominent, weather-protected with a canopy or recessed, and directly linked to the sidewalk. Create sufficient separation between towers to allow for adequate light, solar exposure, views and privacy for people in the building, as well as people on the street. Design the top of the building and/or the top of its podium to include opportunity for communal outdoor amenity space, mechanical equipment and contributes to sky views. Build higher floor-to-floor height on the first few floors to accommodate a range of uses. Locate active uses along the street façade. Ensure that buildings have architecturally detailed facades with no blank or featureless walls. Design compact floor plates to maximize views. Orient buildings to avoid close balcony-to-balcony facing between buildings. Pedestrians & the Public Realm Provide a setback of landscaping with trees, shrubs, walls and fences where residential units are at grade to define the pedestrian space, provide a sense of privacy for residents, and enhance the character of the street. 10
Open Space & Amenities Provide required outdoor amenity space for residents as both communal and private areas. Integrate useable private outdoor amenity space, such as balconies, into the architecture of the building, and ensure that the size and proportion of private amenity space creates a useable area. Environmental Considerations Orient the building towards the sun for maximum day-lighting benefits. Maximize landscaped areas and trees on the street. Site Circulation & Parking Provide amenities at building entrances that accommodate arrival and departure by different travel modes. Amenities include benches, lighting, waste containers, bike racks, bus stops, vehicle lay-bys, and seating in lobby areas with views to the street and drop-off areas. Locate garage entry points internal to the block or at less prominent locations on the block and recess the doors. Do not allow garage entrances to interfere with pedestrian flow or to be too prominent on the streetscape. Service & Utilities Integrate within the design of the building enclosure, conceal from view and acoustically dampen mechanical and electrical equipment, elevator housing, and heat, ventilation and cooling (HVAC) systems. The proposed development responds positively to the vast majority of the Transit-Oriented Urban Design Guidelines and the Urban Design Guidelines for High-Rise Housing. form. The Official Plan anticipates and encourages higher-density development through its policies for Mixed-Use Centres, which can be difficult to achieve on properties with small lot areas. This development proposal is a unique opportunity to contribute to the Mixed-Use Centre s density targets outside of the Traditional and Arterial Mainstreet designations. While the development will have some sun-shadowing impacts on nearby properties, the design of the high-rise tower mitigates the impacts. The slender shape of the tower ensures that shadows move quickly across the affected properties. Additionally, the Official Plan policies encourage intensification and medium- to high-density development for the area, with the development of other tall buildings anticipated. For areas with high-density built form, a certain degree of shadowing impacts is inevitable, and good design can lessen the extent of the impacts. City of Ottawa Comprehensive Zoning By-law 2008-250 The site is zoned Residential Fourth Density Subzone T [R4T]. The purpose of the zone is to accommodate a mix of residential building types, ranging from detached to low-rise apartment dwelling. A low-rise apartment dwelling means a residential building of up to four (4) storeys. As the proposed development includes a high-rise apartment dwelling, which is defined as a building ten (10) storeys or more, the proposal does not conform to the existing zoning and a Zoning By-law Amendment is required. Requested Zoning By-law Amendment The major Zoning Amendment requested for the site would rezone the lands from Residential Fourth Density Subzone T (R4T) to Residential Fifth Density Subzone B, subject to a height Schedule [R5B Sxxx]. Urban Design Review Panel Pre-Consultation In September 2011, a presentation was made to the City of Ottawa Urban Design Review Panel on behalf of the previous Owner of the subject property, BKM Developments. The proposed design was similar to the present application, with a high-rise apartment tower on the west of the property on top of a low-rise podium along Norman Street. In October 2011, the Panel released its recommendations. The recommendations centred primarily on the scale of the proposed high-rise building. While the Panel considered the scale of the proposed podium appropriate, it was concerned about compatibility with the neighbourhood, setting a precedent for other high-profile development in the area, and possible shadowing impacts of the apartment tower. As described in this rationale, the proposal is designed to be sensitive to its surroundings. The siting of the high-rise apartment tower on the west side of the subject property marks the edge of the residential community and contributes to the framing of Ev Tremblay Park on the west side of the O-Train corridor, and works to transition from the higher-profile buildings that have been approved and are contemplated to the west. Eastward, the 4-storey podium transitions down from the high-rise tower to the low- to medium-rise development along Preston Street. Furthermore, the area is designated Mixed-Use Centre on Schedule B Urban Policy in the Official Plan. The proposal responds to the existing built form in the area through scale and transition, but is simultaneously cognizant of the higher-density planned function for the area. Several precedents have already been set for the area, as listed in the Development Activity in Area section of this rationale. Numerous high-rise developments are proposed for the area, including on streets with fine-grained built Figure 13: Zoning Schedule Extract. 11
The following table lists the key zoning provisions that apply to the site. Areas of non-compliance have been identified in red in the table below. Zoning Stats Table Zoning- R5B Sxxx Required/Permitted Proposed Minimum lot width 22.5 m 76.29 Minimum lot area 675 m 2 2330.5 m 2 Front yard and corner side yard 3 m 4.5 Minimum interior side yard Minimum rear yard Maximum building height Within 21 metres from front line: 1.5 m Further from 21 metres: 6 m Within 21 metres from front line: 1.5 m Further from 21 metres: 6 m Varies (Height Schedule) The tables above are not intended to be an exhaustive or comprehensive list of all potential areas of noncompliance with the Zoning By-law. Other zoning provisions may require varying as this application is reviewed. Summary Conclusions It is our professional land use planning opinion that the requested Zoning By-law Amendment and Official Plan Amendment represents good planning. It is appropriate for the subject property, and is in the public interest for the following reasons: 0.8 m 7.5 m Varies (to 54 metres) development would contribute to the critical density required to support the planned transit system and the services and amenities along Preston Street and in the surrounding area. The proposal complies with the City s compatibility criteria established in the Official Plan (Sections 2.5.1 and 4.11), including provisions relating to parking requirements, vehicular access on site, outdoor amenity areas, and supporting neighbourhood services. The site is located in an area subject to minimum density targets due to the land use designation and proximity to transit. The proposed development contributes to meeting the minimum density objectives. Preliminary discussions with Urban Strategies concerning the direction of the forthcoming Carling-Bayview Community Design Plan indicate that the proposal conforms to the urban design vision for the area. Specifically, the proposed 18-storey tower is positioned appropriately to transition between the 33-storey tower envisioned for 101 Champagne Avenue and the 4-storey heights to the east of the subject property. The design of the building will contribute to the development of a continuous street frontage. As an area in transition, filling the gap in the streetscape is vitally important. This project will frame the edge of Norman Street, contributing to a pedestrian-friendly environment. The use of hard and soft landscaping in the front of the building and the design of the entranceway will contribute to the aesthetic amenity along the street while delineating the private and public realms of the streetscape. The proposed development will introduce a landmark building to the area, marking the edge of the residential community along the O-Train corridor, working in tandem with others to frame the south and east park edge. The development conforms with the objectives and guidelines established in the City s Design Guidelines for Transit-Oriented Development and for High-Rise Housing, including those relating to building orientation, landscaped open space and pedestrian accessibility. The proposed development is supported by all technical studies submitted as part of this application. The development proposal is consistent with the intent of the Provincial Policy Statement policies with respect to infill development, particularly allowing development in established urban areas where services and infrastructure are readily available. It is located in an area of the city that is targeted for intensification and redevelopment. The proposed development conforms to Official Plan goals, objectives, and policies for managing growth within the urban area. The proposed development conforms to the Official Plan policies for Mixed-Use Centres, particularly with respect to mixed-use infill development that is compact, transit-oriented, defines the street edge, and provides an enhanced pedestrian environment. The site is located within 300 m of an existing transit station and within 600 metres of a future transit station that are planned to accommodate light rail rapid transit, and the planned function of the overall area is for medium- to high-density development. The proposed 4-storey podium contributes to a built form transition from the high-rise apartment tower to the medium-rise development along Preston Street to the east. The Prepared by: Jaime Posen, M.Pl Urban Planner FoTenn Consultants Reviewed by: Brian Casagrande, MCIP RPP Manager, Development Planning FoTenn Consultants 12