261 265 271 275 281 & 400 LAURIER AVENUE E A S T FRIEL STREET SEPTEMBER 2 0 1 3 PLANNING RATIONALE OFFICIAL PLAN AMENDMENT & ZONING BY-LAW AMENDMENT
PREPARED BY: PREPARED FOR: VINER ASSETS INC. 223 MCLEOD ST. OTTAWA, ON K2P 0Z8 859 MAPLECREST AVE. OTTAWA, ON K2A 2Z7 613-730-5709
Table of Contents 1 Introduction...2 1.1 Proposal Summary...2 1.2 Vision Statement...2 1.3 Best Practices... 3 1.4 Community Benefits... 3 2 Community Context... 5 2.1 Description of Subject Property... 5 2.2 Site Context... 5 2.3 Community Amenities... 9 2.4 Transportation Network... 11 3 Heritage... 12 3.1 Heritage Context... 12 3.2 Heritage Approach... 13 4 Proposed Development... 14 5 Policy Framework... 21 5.1 Provincial Policy Statement (2005)... 21 5.2 City of Ottawa Official Plan (2003, Consolidated 2011)... 22 5.3 Sandy Hill Secondary Plan... 30 5.4 Urban Design Guidelines... 32 6 Regulatory Framework... 33 7 Section 37 Considerations... 35 8 Supporting Studies... 37 8.1 Transportation Brief... 37 8.2 Assessment of Adequacy of Public Servicing... 37 8.3 Geotechnical Investigation... 37 8.4 Noise Assessment... 37 8.5 Phase I Environmental Site Assessment (ESA)... 37 9 Conclusion... 38
Student Housing Development Viner Assets Inc. September 2013 2 1 Introduction FOTENN Consultants Inc. has been retained by Viner Assets Inc. to prepare a Planning Rationale in support of an Official Plan Amendment, Zoning By-law Amendment and Site Plan Control applications for the lands municipally known as 261, 265, 271, 275, and 281 Laurier Avenue East and 400 Friel Street ( Subject Property ). The intent of this rationale is to assess the proposed development against the applicable policy and regulatory framework and determine if the development is appropriate for the site and compatible with adjacent development and the surrounding community. 1.1 Proposal Summary Viner Assets Inc. proposes to construct a mid-rise mixed-use building (9 storeys in height) with purpose-built student residence units, with retail (1,217 m 2 ), a fitness centre (260 m 2 ) and student amenity area (433 m 2 ) on the ground level. The ground floor retail space is intended for street-oriented retail activity (e.g., coffee shop, restaurant, personal service uses, retail food store) which would serve the needs of residents and the local community. Figure 1: Proposed development The project will contain 180 suite-style units spread over eight (8) floors, with each unit featuring studio and two-bedroom configurations and shared bathroom, kitchen, and living space. The proposal features one (1) level of underground parking with 62 parking spaces to accommodate vehicles for resident, visitor, and retail parking, as well as 3 spaces at grade. Secure storage for 100 bicycles is proposed on the ground floor. 1.2 Vision Statement The Sandy Hill neighbourhood is currently facing intensified pressure for housing to accommodate the increasing number of students enrolling at the University of Ottawa.
Student Housing Development Viner Assets Inc. September 2013 3 Consequently, many single-detached dwellings in the Sandy Hill neighbourhood are being converted into rooming units to meet the increased demand. This proposal is intended to alleviate the demand for student housing, contributing to the preservation of family-oriented character of the Sandy Hill neighbourhood. Post-secondary institutions have the potential to contribute to the vitality, culture, and economic success of cities such as Ottawa. However, inadequate housing facilities discourage talented students from accepting offers of enrollment, undermining the competitiveness of these schools. By providing a purpose-built housing facility within walking distance of the University of Ottawa, the proposed development offers an alternative purpose-designed, safe, secure, professionally-managed, convenient student housing option to future generations of first- and upper-year students, enhancing the enrollment attractiveness for the institution. Experience around the world demonstrates that robust housing alternatives enable post secondary institutions to better attract and retain the brightest students, contributing to the university s goals of being a leading centre of research and innovation for the city and the nation. 1.3 Best Practices The proposal derives its inspiration from several excellent examples of purpose-built offcampus housing student facilities in other North American cities. Such housing facilities respond to new trends in student housing that provide for a more complete living experience for students than in earlier generations. In addition to bedrooms, these new facilities contain laundry facilities, kitchens for student use, social space, and vending machines, with many featuring fitness rooms and ATM machines. Larger complexes may also include classrooms, a dining hall, computer centre, or other amenities. Sizes of recent projects in the U.S.A. range from 50,000 square feet (4,645m 2 ) to 250,000 square feet (23,225m 2 ), with resident populations of 200 to 500 students. These extensive purpose-built facilities are emerging in a climate of increased student enrolments and limited financial wherewithal at post-secondary institutions, which are often challenged with constrained land resources on which to construct new housing. In the absence of sufficient resources at the institutional level, private investors and landowners have begun to provide student residences to relieve housing pressure in surrounding communities. As colleges and universities rely on adequate housing supply to attract and retain students, these private residences are recognized as serving a critical community need. 1.4 Community Benefits The Sandy Hill community, the University of Ottawa, and the City generally will derive several benefits from the proposed development. Its principal benefit is to alleviate the housing pressure in the area, which is a recent source of tension in the community. The introduction of new dwelling units intended for students will help to slow the conversion of existing single-detached dwellings to rooming houses, a side effect of which is contributing to the loss of family character in the neighbourhood. The City of Ottawa has recently introduced a temporary moratorium on creating new converted rooming houses in response to concerns toward this trend in Sandy Hill and Old Ottawa South. Additionally, the building will be professionally managed, addressing a common complaint about poor property maintenance in the area.
Student Housing Development Viner Assets Inc. September 2013 4 The proposal contains several amenity features targeted to students, including a fitness facility, study rooms, and common areas. In addition to being convenient, these facilities will reduce demand for similar spaces on campus, allowing the University of Ottawa to reallocate resources accordingly. The subject property is located approximately 600 metres from the Laurier Transitway station, and approximately one-and-a-half (1.5) blocks from the north-east boundary of University of Ottawa campus. Its close proximity to these key locations and the low rate of car ownership among students will reduce vehicular traffic and demand for parking spaces significantly. As the Delcan Transportation Brief concludes, the traffic generated by the project is limited and will not cause adverse impacts on the surrounding community, as its location and design serves to promote use of walking, cycling, and transit modes. As such, the proposal supports City of Ottawa policies, goals, and objectives with respect to redevelopment, intensification, and modal share. In addition, as students tend to move in and out solely during a one-week period at the beginning and end of academic semesters, the fully-furnished apartments will reduce the amount of disruption associated with moving. In particular, the community will experience less vehicular traffic and discarding of personal items, mattresses, and other furnishings by individual residents, compared to other forms of multi-unit housing. The facility will be professionally managed by a specialized student housing property manager, which will address student life issues such as crisis management and emergency response capability, supervision, security, safety, and infrastructure services such as recycling, waste management, fire safety, maintenance, and on-duty management. The ground floor retail space, envisioned to accommodate uses such as a retail food store, represents an additional benefit to the surrounding community. Currently, the only food stores servicing the local residents are located north on Rideau Street, approximately 450 metres north of the subject property. These stores also serve the majority of the Sandy Hill neighbourhood, which may be as far as 1.2 kilometres to the south. The introduction of an additional food store in this location in the community would provide a more convenient alternative for local residents. In keeping with the intent of the City s intensification policy, the proposed development takes advantage of existing infrastructure, including roads, water and sewer, police and fire protection, and other facilities. The users of the commercial and residential uses will animate the intersection, enabling the community to experience and share in the vibrancy and energy of a campus district and student life. Additionally, the building s location and design present an opportunity to mark the intersection as a gateway to the campus district around the University of Ottawa.
Student Housing Development Viner Assets Inc. September 2013 5 2 Community Context 2.1 Description of Subject Property The subject property is comprised of six building addresses, three of which are attached. It is legally described as LOTS 21, 22, 23, & 24; NORTH LAURIER AVENUE; REGISTERED PLAN 6; CITY OF OTTAWA. Taken together, the component properties are rectangular in shape, with 80.71 metres of frontage along Laurier Avenue East and 52.67 metres of frontage along Friel Street. The total property area is 4,266 m 2 (0.43 ha). Two (2) rights-of-way (instrument CR437355) are present on the subject property. One runs approximately 30 metres west-east from Friel Street to the interior of Lot 23. The other runs north-south approximately 140 metres, straddling Lots 21 and 22. Subject Property Figure 2: Subject property location 2.2 Site Context The subject property is located in the Sandy Hill neighbourhood of Ottawa, which is comprised of the land east of the Rideau Canal, west of the Rideau River, south of Rideau Street, and north of Highway 417. The western part of Sandy Hill is the main campus of the University of Ottawa, a large, fast-growing university with an enrollment of approximately 42,000 students. Downtown Ottawa, including Parliament Hill and other national sites, is located within walking distance west of Sandy Hill. Sandy Hill is an established residential neighbourhood containing a wide range of housing types and densities. Parts of the neighbourhood form the Sandy Hill and Sandy Hill West Heritage Conservation Districts (HCDs), which were established to preserve the
Student Housing Development Viner Assets Inc. September 2013 6 character of these areas. Outside of the HCDs, many other buildings hold heritage value, and are subject to varying degrees of protection. The demographic makeup of the neighbourhood is diverse, and many dwellings in the neighbourhood are rented by students as a consequence of their proximity to the University of Ottawa. The subject property is located on the north side of Laurier Avenue East, west of Friel Street. The site is currently developed with four (4) low-rise residential buildings (271, 275 and 281 may be considered one building, as they share a roof and adjoining walls). Together, the buildings contain 62 residential apartments containing approximately 130 occupants, predominantly students. As illustrated in the images below, 400 Friel Street is developed with a 3-storey brick apartment building. 261 Laurier Avenue East is developed with a 3-storey brick apartment building. The building at 281 Laurier Avenue East contains a large wrap-around veranda along portions of the south and east facades, with two 3-storey apartments (271 and 275 Laurier Avenue East) attached to the west side of the building. The property at 265 Laurier Avenue East consists of a 2-storey detached residential dwelling converted to apartment units. Subject Property Figure 3: Property in local context At the rear of the buildings, a surface parking lot containing approximately 30 parking spaces serves the buildings on the property and those immediately adjacent. Access to the parking lot is via Friel Street, with ingress and egress located immediately north of Laurier Avenue East. The remainder of the block is developed with a range of residential dwelling types. Immediately west of the subject property, including along Nelson Street, are a series of single-detached dwellings. The north portion of the block is developed with low- to midrise apartment dwellings. The built form in the community surrounding the subject
Student Housing Development Viner Assets Inc. September 2013 7 property is similar, with a range of low- and mid-rise residential dwellings, with some small-scale commercial uses at grade. Directly across the street to the east is a former retirement home that was recently converted to an apartment dwelling to accommodate students and young professionals. Several mid-rise buildings populate the surrounding area. Immediately south of the subject property at 280 Laurier Avenue East is a 6-storey apartment building, while northwest of the subject property at 286 Wilbrod Street is a 6-and-a-half-storey apartment building. Approximately 70 metres to the west at 290 Nelson Street is a 9- storey apartment tower ( The Summit ). Approximately 100 metres to the southwest of the property at 305 Nelson Street is a 9-storey apartment tower. Figure 4: Existing buildings on the subject property
Student Housing Development Viner Assets Inc. September 2013 8 Figure 5: An example of at-grade retail below a student residence at the University of Ottawa (Hyman Soloway Residence, 157 Laurier Avenue East) Figure 6: Aerial images of existing conditions
Student Housing Development Viner Assets Inc. September 2013 9 Figure 7: Streetscapes of existing conditions 2.3 Community Amenities The subject property is located in an established residential neighbourhood containing a range of amenities. The following amenities are located within one (1) kilometre of the subject property: Parks Schools Commercial Areas Sir Wilfred Laurier Park Community Facilities École Francojeunesse Byward Market Arts Court Strathcona Park Viscount Alexander P. S. Rideau Centre Sandy Hill Park St. Clement School Rideau Street St. Germain Park Macdonald Gardens Park Lisgar Collegiate Institute Ottawa Torah Institute High School Besserer Park York Street P. S. Jules Morin Park / Anglesea Park Riverain Park Robinson Field École Ste-Anne École de la Salle Public Library (Rideau Branch) Champagne Bath Pool Sandy Hill Community Centre
Figure 8: Amenities map Student Housing Development Viner Assets Inc. September 2013 10
Student Housing Development Viner Assets Inc. September 2013 11 2.4 Transportation Network The majority of the subject property falls within 600 metres of the Laurier Transitway station, which is located at the intersection of Waller Street and Laurier Avenue East. The 600-metre radius represents an appropriate walking distance, indicating the ability for users of the site to access transit facilities. Additionally, the University of Ottawa campus is located approximately 300 metres west of the subject property, with the Byward Market located approximately 600 metres to the northwest. The proximity of the site to these destinations will encourage active forms of transportation and decrease reliance on private automobiles. In addition to bus routes that run along the Transitway, local bus routes 5 and 16 run along Laurier Avenue East. The subject property fronts onto Laurier Avenue East, a major collector road that links Sandy Hill to downtown Ottawa. Major collector roads are defined as roads that serve neighbourhood travel between collector roads and arterial roads and may provide access to adjacent lands. Friel Street, on the east side of the property, is a low-volume local road. Highway 417, which crosses Ottawa on an east-west axis, is located approximately 1.2 kilometres to the south. Both Laurier Avenue East and Friel Street accommodate several forms of transportation, including automobiles, transit, pedestrians, and bicycles. Figure 9: Subject property in relation to the University of Ottawa and Transitway stations
Student Housing Development Viner Assets Inc. September 2013 12 3 Heritage 3.1 Heritage Context The Sandy Hill neighbourhood contains two (2) Heritage Conservation Districts, designated under Part V of the Ontario Heritage Act. The subject property is not located in either Heritage Conservation District. The Sandy Hill Heritage Conservation District is a collection of short blocks containing heritage resources, one of which runs on both sides of Sweetland Avenue south of Laurier Avenue East. The Sandy Hill West Heritage Conservation District extends north of Laurier Avenue East between Waller Street and King Edward Avenue. The property at 245 Laurier Avenue East at the intersection of Nelson Street is designated under Part IV of the Ontario Heritage Act. Subject Property Figure 10: Subject property in relation to Sandy Hill Heritage Conservation Districts No buildings on the subject property are designed under Part IV of the Ontario Heritage Act. However, City Heritage Staff has confirmed that the buildings on the subject property are designated Categories 2 or 3 on the Heritage Reference List. Category 2 buildings are deemed to be of significant heritage value, and are considered candidates for designation under Part IV of the Act. Category 3 resources generally contribute to overall heritage character of an area, but when outside of a Heritage Conservation District, Category 3 resources are generally considered to be of less importance and may not warrant designation. The specific categorizations are as follows:
Student Housing Development Viner Assets Inc. September 2013 13 Building Address Heritage Reference List Category 261 Laurier Avenue East Category 2 265 Laurier Avenue East Category 2 271 Laurier Avenue East Category 3 275 Laurier Avenue East Category 3 281 Laurier Avenue East Category 3 400 Friel Street Category 3 Figure 11: Proposed development, reflecting the existing street rhythm 3.2 Heritage Approach The proposed development has been designed to be sensitive to the heritage context on and surrounding the subject property. A Cultural Heritage Impact Statement (CHIS) prepared by Commonwealth Resource Management accompanies the applications. It evaluates the impact of the proposed development, particularly on Courtney House at 245 Laurier Avenue East, a designated building under Part IV of the Ontario Heritage Act. Barry J. Hobin and Associates Architects are guided by the recommendations of Commonwealth Resource Management to ensure the proposed design responds sensitively to the surrounding heritage context. The design is intended to blend with the existing character and rhythm along Laurier Avenue East. The south and east elevations of the proposed development complement the height, massing, and materiality of the existing buildings, and offer a scale that is similar at street-level views. An E-shaped design is employed for the Laurier Avenue
Student Housing Development Viner Assets Inc. September 2013 14 East façade, which is based loosely on the massing of the Strathcona Apartments at 404 Laurier Avenue East, a building designated under Part IV of the Ontario Heritage Act. Vertical and horizontal architectural elements have been placed along the façade to break up the building mass and emphasize the first three (3) storeys of the building. The footprint allows for open spaces for pedestrians, while minimizing shadowing effects and permitting passive solar exposure to the interior of the building. Critically, the proposal features a structure that is intended to mimic the design of the existing structure at 281 Laurier Avenue East, which will accommodate retail uses. The design is based on the advice of City Heritage Staff, who identified the existing building as a good representation of the defining architectural character of the 1920s that was common along Laurier Avenue East. Reintroducing this building contributes to the retention of the original character of the streetscape and provides a foreground to the development when viewed from Friel Street. The elaborate veranda and two-storey brick contribute to the neighbourhood and provides the wider community an opportunity to experience student life. The first three (3) storeys of the building have been designed to emphasize the low-rise, pedestrian-oriented character of Laurier Avenue East by appropriating the general placement, 3-storey massing, scale, and architectural style of the existing apartment buildings within the site. The residential scale, form, and massing of the building at the corner of Laurier Avenue East and Friel Street with its wrap-around veranda is meant to bookend this section of Laurier Avenue by complementing the single-family residential buildings at the corner of Nelson Street, including the Courtney House. Figure 12: Images showing ground floor retail in the proposed development 4 Proposed Development The 9-storey purpose-built student residence will have a total gross floor area (GFA) of approximately 24,584 m 2. The building will contain 180 suite-style units, each featuring common kitchen, bathroom facilities, and living space in studio and two-bedroom configurations. The ground floor retail space is intended for street-oriented retail activity (e.g., coffee shop, restaurant, personal service uses, retail food store), which would serve the needs of residents and the local community. The retail units will contain approximately 1,217 m 2 of leasable area, and will be marketed for uses such as small food
Student Housing Development Viner Assets Inc. September 2013 15 stores. The cafés may feature outdoor seating areas during warm seasons. These spaces, along with study and meeting spaces on the ground floor, will contain high ceilings and expansive glass display windows, contributing to the animation at grade. Figure 13: View from Laurier Avenue East The low-rise frontage allows for a large open space to be used as the primary entrance to the building, as well as an outdoor plaza or patio. This open space will contain both hard and soft landscaping, including a combination of trees, shrubs, grass, and concrete unit pavers. The outdoor plaza / patio area wraps around the corner of Laurier Avenue and Friel Street to maintain an active pedestrian feel on the ground floor. The primary residential access is located off of Laurier Avenue East in the east courtyard of the building. The entrance has been centralized in one location to improve security within the building. The location of the entrance permits the provision of retail façades along Laurier Avenue East, wrapping the corner onto Friel Street. The entrance to the residential lobby will be comprised of alternating paver types and benches to frame and emphasize the doorway.
Student Housing Development Viner Assets Inc. September 2013 16 Figure 14: View of the entrance to the underground parking garage on Friel Street One (1) level of underground parking is provided with 62 parking spaces, and secure storage for 100 bicycles is proposed on the ground floor. Provision of bicycle parking will encourage active modes of transportation in the community. Landscaping for the project will include courtyards and other open spaces around the property, all of which will be available to residents of the building. The project will endeavour to meet, at a minimum, LEED Silver certification standards. Underground parking facilities will be provided, but at a limited rate, in response to the generally low rate of vehicle ownership among students. Safe and secure bicycle parking will be available indoors for all residents, encouraging active modes of transportation in the community.
Student Housing Development Viner Assets Inc. September 2013 17 Figure 15: View of the proposed development from Laurier Avenue East Figure 16: View from the corner of Laurier Avenue East and Friel Street
Student Housing Development Viner Assets Inc. September 2013 18 Figure 17: At-grade pedestrian activity Figure 18: Concept elevations (view from Laurier Avenue East)
Student Housing Development Viner Assets Inc. September 2013 19 Figure 19: Concept elevations (view from Friel Street) Figure 20: Ground floor plan
Student Housing Development Viner Assets Inc. September 2013 20 Figure 21: Typical section (to 5 th storey) Figure 22: Typical section (4th storey to mechanical penthouse)
Student Housing Development Viner Assets Inc. September 2013 21 5 Policy Framework 5.1 Provincial Policy Statement (2005) The Provincial Policy Statement (PPS), issued under the authority of Section 3 of the Planning Act and in effect since March 1, 2005, provides direction on matters of provincial interest related to land use planning and development. The Planning Act requires that decisions affecting planning matters shall be consistent with policy statements issued under the Act. The PPS emphasizes intensification of built-up areas in order to promote the efficient use of land and existing infrastructure and public service facilities to avoid the need for unjustified and uneconomic expansion. To achieve this goal, planning authorities must identify and promote opportunities for intensification and redevelopment [Policy 1.1.3.3]. In addition, the proposed development meets the following Provincial Policy interests: Promotes efficient development and land use patterns which sustain the financial well-being of the Province and municipalities over the long term [Policy 1.1.1.a]; Accommodates an appropriate range and mix of residential, employment, recreational and open space uses to meet long-term needs [Policy 1.1.1.b]; Ensures that necessary infrastructure and public service facilities are or will be available to meet current and projected needs [Policy 1.1.1.g]; Promotes cost-effective development standards to minimize land consumption and servicing costs [Policy 1.1.1.e]; Efficiently uses the infrastructure and public service facilities which are planned or available [Policy 1.1.3.2.a]; Identifies and promotes opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock and areas [Policy 1.1.3.3]; Contributes to providing an appropriate range of housing types and densities to meet projected requirements of current and future residents by permitting and facilitating all forms of residential intensification and redevelopment. [Policy 1.4.3.b.2]; Directs development of new housing towards locations where appropriate levels of infrastructure and public service facilities are or will be available to support current and projected needs [Policy 1.4.3.c]; Promotes densities for new housing which efficiently use land, resources, infrastructure and public service facilities and support the use of alternative transportation modes and public transit in areas where it exists or is to be developed [Policy 1.4.3.d]; Promotes land use patterns, density and mix of uses that minimize the length and number of vehicle trips and support the development of viable choices and plans public transit and other alternative transportation modes, including commuter rail and bus [Policy 1.6.5.4]; and Supports energy efficiency and improves air quality through land use and development patterns which promote the use of public transit and other alternative transportation modes and improving the mix of employment and housing uses to decrease transportation congestion [Policy 1.8.1.b through 1.8.1.c].
Student Housing Development Viner Assets Inc. September 2013 22 The proposed development is consistent with the Provincial Policy Statement. It represents an efficient use of land in an urban area where infrastructure and public facilities are already present. The provision of purpose-built student housing contributes to the range of housing choice in the community, addressing present and projected demand. The density of the development encourages the use of alternative transportation modes, and air quality and energy efficiency are improved through the provision of a green roof. 5.2 City of Ottawa Official Plan (2003, Consolidated 2011) The Challenge Ahead (Section 2.1) The City of Ottawa Official Plan (2003, as amended) is composed of eight sections, each addressing a different aspect of the planned function of the City as a whole. Section 2 of the Official Plan provides strategic direction for growth and development within the City. The Plan anticipates that the number of households in Ottawa will increase faster than the rate of population growth and that approximately 145,000 new homes may be needed by 2031. The majority of that demand is expected to be satisfied with smaller units such as apartments. The City plans to meet the challenge of accommodating this growth by managing it in ways that support liveable communities and healthy environments. This means that growth will be directed towards key locations with a mix of housing, shopping, recreation, and employment locations that are easily accessible by transit and that encourage walking. The City anticipates that by pursuing a mix of land uses and a compact form of development, it will be able to support a high-quality transit service and make better use of existing roads and other infrastructure. In order to meet these and other objectives of the Official Plan, the City has committed to pursuing strategic directions in four (4) key areas, two (2) of which are applicable and relevant to this proposal. Managing Growth (Section 2.2) The City will manage growth by directing it to the urban area where services already exist or where they can be provided efficiently. Growth in the urban area will be directed to areas where it can be accommodated in compact and mixed-use development, and served with quality transit, walking and cycling facilities. Creating Liveable Communities The City will provide opportunities to increase the supply of affordable housing throughout the rural and urban areas. Growth will be managed in ways that create complete communities with a good balance of facilities and services to meet people s everyday needs, including
Student Housing Development Viner Assets Inc. September 2013 23 schools, community facilities, parks, a variety of housing, and places to work and shop. Attention to design will help create attractive communities where buildings, open space and transportation work well together. Managing Growth within the Urban Area (Section 2.2.2) The Official Plan promotes efficient land-use patterns through intensification of locations strategically aligned with the transportation network and in particular the rapid transit network. Residential intensification means intensification of a property, building, or area that results in a net increase in residential units or accommodation and includes: a. Redevelopment (the creation of new units, uses or lots on previously developed land in existing communities), including the redevelopment of Brownfield sites; b. The development of vacant or underutilized lots within previously developed areas, being defined as adjacent areas that were developed four or more years prior to new intensification. c. Infill development; d. The conversion or expansion of existing industrial, commercial, and institutional buildings for residential use; and e. The conversion or expansion of existing residential buildings to create new residential units or accommodation, including secondary dwelling units and rooming houses. Subject Property Figure 23: Extract from Schedule B - Urban Policy Plan The subject property is designated General Urban Area on Schedule B Urban Policy of the Official Plan. Policy 14 of Section 2.2.2 supports intensification outside of target areas, including the General Urban Area. Opportunities for intensification are promoted in the following cases:
Student Housing Development Viner Assets Inc. September 2013 24 a) Lands within 600 metres of future or existing rapid-transit stations with potential to develop as compact, mixed-use and pedestrian-friendly cores; b) Lands that are no long viable for the purpose for which they were intended, such as older industrial areas, exhausted quarries, or abandoned transportation corridors that are not planned for open space or designated as Recreational Pathways; c) Lands where the present use is maintained but the addition of residential uses or other uses can be accomplished in a complementary manner, such as underutilized shopping centre sites; d) Lands currently or formerly used a parking lots or other extensive storage purposes; e) Lands where records indicate existing contamination due to previous commercial or industrial use, but which can be made suitable for development if cleaned up. Policy 15 of Section 2.2.2 permits intensification within interior portions of stable, low-rise residential neighbourhoods, provided that the proposal is designed to complement the area s pattern of built form and open spaces and enhances and complements its desirable characteristics and long-term renewal. To achieve compatibility between existing and planned built form and ensure intensification is successful, emphasis will be placed on good urban design and architecture. Sections 2.5.1 and 4.11 provide policy direction for Urban Design and set out the compatibility criteria intended to guide development. The proposal meets the intent of the policies of Section 2.2.2 of the Official Plan and supports the goals of intensification. The proposed redevelopment will introduce 180 residential units, providing ample accommodation for students within easy walking distance to the University of Ottawa, and within 600 metres of an existing rapid-transit station. The proposed development will attract new residents to sustain and promote new businesses in the surrounding community. The proposal is carefully designed to enhance and complement community character, and the proposed mix of uses will support long-term renewal of this part of the Sandy Hill community. General Urban Area Policies (Section 3.6.1) The General Urban Area designation is intended to permit a full range of residential building types to accommodate the needs of all ages, incomes, and life circumstances, along with conveniently-located employment, retail, service, cultural, leisure, entertainment, and institutional uses. Proposals for residential intensification through infill or redevelopment in the designation must: 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 (Urban Design and Compatibility);
Student Housing Development Viner Assets Inc. September 2013 25 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. Policy 5 of Section 3.6.1 permits uses in the General Urban Area that may generate traffic, noise, or other impacts that have the potential to create conflicts with the surrounding residential community. These types of uses are often large and serve or draw from broader areas. Such uses will be directed to: a) Locations along the rapid-transit system, or an arterial or major collector road with sufficient capacity to accommodate the anticipated traffic generated and where frequent, all-day transit service can be provided; b) Suitable locations on the perimeter of, or isolated from, established residential neighbourhoods. In this regard, existing or proposed building orientation, massing and design, and the presence of mitigating circumstances such as distance, changes in topography, or the presence of features such as significant depths of mature forest may be taken into account. Policy 6 of Section 3.6.1 states that throughout the General Urban Area, the City will encourage the provision of a variety of small, locally-oriented convenience and service uses that complement adjacent residential land uses, and are of a size and scale consistent with the needs of nearby residential areas. To be approved, development proposals must ensure that these uses: a) Are compatible and complement surrounding land uses, and can be developed in accordance with Section 2.5.1 and Section 4.11; b) Are conveniently located with respect to concentrations of residential development and provide direct access for pedestrians and cyclists from adjacent residential areas; c) Are permitted to cluster with other community-oriented uses, such as parks, pedestrian linkages, community centres or leisure facilities, in order to facilitate interaction among residents and contribute to a sense of community; d) Are situated to take advantage of pedestrian and cycling patterns; e) Are of a size and scale that will not result in the attraction of large volumes of vehicular traffic from outside the immediate area. Laurier Avenue East is designated an On-Road Cycling Route on Schedule C Primary Urban Cycling Network, and an Existing Major Collector at the location of the subject property on Schedule F Central Area/ Inner City Road Network. The building design is sensitive to the existing context and character, and enhances and builds upon desirable established patterns and built form as directed in Section 3.6.1 of the Plan. As a purpose-built project, it contributes to the balance of housing types in the area to accommodate that particular demographic. The Sandy Hill neighbourhood is currently facing intensified pressure for housing to accommodate the increasing number of students enrolling at the University of Ottawa. This proposal will assist in alleviating the demand for student housing, and contribute to preserving the family-oriented character of the Sandy Hill neighbourhood. By providing purpose-built housing facilities within walking distance of the University of Ottawa, the
Student Housing Development Viner Assets Inc. September 2013 26 proposed development offers an alternative housing option to future generations of firstand upper-year students. The small-scale commercial uses at grade meet the criteria for size and location established in Policy 6 of Section 3.6.1. The commercial uses proposed along Laurier Avenue East, a Major Collector road, will complement adjacent land uses, and are of a size and scale consistent with the needs of the area. The subject property s location, which is within walking distance of the rapid transit line, is appropriate for the proposed use. Urban Design and Compatibility (Section 2.5.1) Section 2.5.1 of the Official Plan Urban Design and Compatibility provides guidance on how to appropriately incorporate infill development into existing built up areas to ensure compatibility. Compatible development is defined as development that is not necessarily the same as or similar to existing buildings but that enhances and coexists with existing development without undue adverse impacts. It is development that fits well and works well with its surroundings. Section 2.5.1 provides Design Objectives and associated Principles to guide development to achieve a good fit within the existing context. Annex 3 of the Official Plan is a tool that provides additional design guidance on how the Design Objectives and Principles in Section 2.5.1 can be met. New development is evaluated at five scales: City-Wide, Neighbourhood, Street, Site, and Building. The following objectives are considered most applicable to the proposed development: To enhance the sense of community by creating and maintaining places with their own distinct identity. The proposed development is designed to be sensitive to the heritage character of the area and the streetscape. The sawtooth design is intended to continue the building rhythm that currently exists along Laurier Avenue East, and massing at the front of the building is reflective of existing building heights along the street. As a student housing facility, the proposal is consistent with the character of the area surrounding the University of Ottawa. The building will function as a visual landmark, signifying the entrance to the campus district. To define quality public and private spaces through development. The proposal features a sawtooth design, punctuated with three (3) wings of the building projecting to meet the street, with the balance of the front façade set back to create landscaped open spaces. The overall design is intended to integrate with the rhythm of the existing streetscape, which contributes to its heritage character. Pedestrians are prioritized on and around the site, with street furniture and landscaping features along the sidewalk. To create places that are safe, accessible and easy to get to, and move through.
Student Housing Development Viner Assets Inc. September 2013 27 Significant glazing and fenestration throughout the proposed building, particularly at grade, create natural surveillance of the site and surroundings. The building design is intended to be navigated easily, including the underground parking garage. To ensure that development respects the character of existing areas. The proposal is sensitive to the character of the surrounding neighbourhood, particularly its heritage attributes. The sawtooth design continues the existing pattern and rhythm of development along Laurier Avenue East, and the building at the southeast corner of the development mimics the architectural attributes of the existing building at 281 Laurier Avenue East. To consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice. The proposed development is purpose-built to accommodate students as the area surrounding the University of Ottawa experiences an increase in demand for housing. Providing this housing facility will diversify housing choice for students and neighbourhood residents, and allow the community to continue to adapt to changing circumstances. To maximize energy-efficiency and promote sustainable design to reduce the resource consumption, energy use, and carbon footprint of the built environment. The proposal incorporates a green roof, comprised of soft landscaping elements, to improve energy efficiency and reduce the urban heat island effect in the area.
Student Housing Development Viner Assets Inc. September 2013 28 Figure 24: Streetscape view of proposed development (from east) Figure 25: Streetscape view of proposed development (from west)
Student Housing Development Viner Assets Inc. September 2013 29 Compatibility Section 4.11 of the Official Plan Urban Design and Compatibility sets out the criteria by which the compatibility of proposed developments is evaluated. The proposed development satisfies these compatibility criteria as follows: Criterion Evaluation of Proposed Development Traffic Traffic impacts from the proposal are anticipated to be minimal, as rates of car ownership are generally low among students. A supporting Transportation Brief is filed with the applications. Vehicular Access Access and egress to the underground parking garage will be provided from Friel Street, which is classified as a local street. Locating the access on the east side street reduces the potential for conflicts along Laurier Avenue East, a Major Collector. As an underground garage, noise and headlight glare will be absorbed internally. Parking Requirements While parking rates will be slightly lower than that required in the Zoning By-law, requirements for vehicular parking are anticipated to be low. As the building will accommodate students, rates of vehicle ownership will be low and will be controlled by the limited availability for on-site parking. Additionally, proximity to public transit creates opportunities for active transportation modes. Parking spillover onto neighbouring streets is not anticipated. Outdoor Amenity Areas The proposed development abuts several properties to the north and west, but all are developed with surface parking facilities. As such, no neighbouring amenity space will be affected. Loading Areas, Service Areas, and Outdoor Storage Garbage and service areas will be located inside the parking garage, away from residences and neighbouring properties. Associated visual and noise impacts will be contained internally.
Student Housing Development Viner Assets Inc. September 2013 30 Lighting Light spill-over is not anticipated onto adjacent properties to the north. Lighting provided for safety and security will be designed to be contained within the developed. Noise and Air Quality No adverse impacts related to noise or air quality are anticipated. All significant amenity spaces are contained indoors, eliminating noise impacts to neighbouring properties. A supporting Noise Study has been completed and will be filed with the Site Plan Control application. Sunlight A sun shadow impact study is submitted along with this application, which illustrates that shadowing impacts will be limited. The most shadowing impacts will occur in the winter months; for the remainder of the year, the majority of shadows will fall on surface parking lots to the north of the subject property. Microclimate No impacts related to snow drifting, wind, or temperatures are anticipated. A green roof is provided on the roof of the building to reduce the urban heat island effect. Supporting Neighbourhood Services The subject property is located in an established neighbourhood that is well-served by social, health, education, and recreation facilities. The proposal includes retail space that will serve the surrounding community. 5.3 Sandy Hill Secondary Plan The subject property is located inside the planning area of the Sandy Hill Secondary Plan, which constitutes a more detailed policy direction beyond the Official Plan. Its purpose is to preserve and enhance the neighbourhood, with particular focus on family living and accommodation of a broad range of socioeconomic groups. Schedule J designates the subject property Low-Profile Residential Area. The residential land use designations are intended:
Student Housing Development Viner Assets Inc. September 2013 31 To preserve and enhance the existing housing stock; To distinguish among types of new housing on the basis of scale, and to locate the different types in areas appropriate to them; To provide a wide variety of housing, including accommodation for low-income people, the elderly, the handicapped, and others with special needs. The designation limits building heights to low-rise profiles, which is defined as four (4) storeys or less. It is important to note that the Sandy Hill Secondary Plan was introduced in the 1990s, in which a dramatically different planning regime prevailed. Specifically, the province-wide intensification policies and the encouragement of development in proximity to transit are recent additions to the Official Plan. As the document is nearly 20 years old, it has effectively reached the end of its planning horizon, and the Official Plan provides more up-to-date policy direction for the subject property. Subject Property Figure 26: Extract from Sandy Hill Secondary Plan Schedule J
Student Housing Development Viner Assets Inc. September 2013 32 To permit the proposed development, an Official Plan Amendment is required to change the Low-Profile Residential designation to Medium-Profile Residential, and a site specific policy will be required to permit ground level commercial activity on Laurier Avenue East. While the proposal does not meet the policies of the current designation, the provision of student accommodation contributes to the preservation of the existing housing stock and clearly meets two of the primary goals of the Secondary Plan: 1) To preserve and enhance the Sandy Hill s existing housing stock; and 2) To provide a wide variety of housing, including accommodation for special needs. The proposed development is designed to be sensitive to the heritage character of the area and the design mimics the existing rhythm and massing along Laurier Avenue East. The proposal is also consistent with the mixed-use character of the area surrounding the University of Ottawa. The site is surrounded by a variety of building styles and character, including two 6-storey apartment buildings constructed c. 1960, one located across the street on the corner of Sweetland and Laurier Avenue, and one located within the block at the corner of Nelson and Wilbrod Streets. A nine-storey apartment building is also located on Nelson Street in the block to the west of the development site. 5.4 Urban Design Guidelines The Urban Design Guidelines for Transit-Oriented Development were approved by City Council September 26, 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 transitsupportive 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 proposed development meets several of the guidelines, including: Providing transit-supportive uses within 600 metres of transit; Creating a multi-purpose destination for transit users and local residents, including housing, retail, and fitness facilities; Creating a visible landmark along Laurier Avenue East; Setting back taller portions of the building substantially from the sidewalk; Including generous fenestration and architectural detail along the front façade; Designing the ground floor to be interesting to pedestrians, with active uses at grade; Providing weather-protected bicycle parking; Number of parking spaces restricted; Parking provided underground.
Student Housing Development Viner Assets Inc. September 2013 33 6 Regulatory Framework The subject property is currently zoned Residential Fourth Density, Subzone T, Exception 480 (R4T [480]). The intent of the R4 zone is to provide for a mix of residential building types, ranging from single-detached dwellings to low-rise apartment dwellings up to four (4) storeys in height. As the proposal does not comply with the provisions of the R4 zone, a Zoning By-law Amendment application is required to permit the development. It is requested that the zoning on the property be amended to Residential Fifth Density, Site-Specific Exception (R5 [XXXX]). The intent of the R5 zone is to permit a wide range of residential uses, including mid- to high-rise apartment dwellings, in policy designations such as the General Urban Area. The permitted uses in the R5 zone are as follows: apartment dwelling (low rise) apartment dwelling (mid-high rise) bed and breakfast community garden converted dwelling detached dwelling diplomatic mission duplex dwelling dwelling unit group home home-based business home-based daycare linked-detached dwelling townhouse dwelling park planned unit development residential care facility retirement home (converted) retirement home rooming house (converted) rooming house secondary dwelling unit semi-detached dwelling shelter stacked dwelling three-unit dwelling The requested Zoning By-law Amendment would also include a site-specific Exception zone to permit a range of uses at grade, including retail, retail food store, recreational and athletic facility, personal service business, bank machine, community health and resource centre, convenience store, instructional facility, and other similar uses.
Student Housing Development Viner Assets Inc. September 2013 34 LC1 R4T [1509] R4T R4T [480] R4S [480] Subject Property LC3 [1540] Figure 27: Zoning map The requested Zoning By-law Amendment will seek to permit the proposed development as shown on the submitted plans. The dimensions of the proposed development are presented in the table below: Provision Lot Width Lot Area Building Height Front Yard Setback Corner Yard Setback Rear Yard Setback Interior Side Yard Setback Proposed Development 52.67 metres 4,266 square metres (0.43 ha) 30.5 metres 3 metres 3 metres 3 metres 3 metres Parking will be provided underground at a rate that reflects the low rates of car ownership among students, and encourages active modes of transportation. The required and provided parking rates are presented in the table below:
Student Housing Development Viner Assets Inc. September 2013 35 Category Required Calculation Provided Resident Parking Spaces (min) 0.5 spaces per dwelling unit, minus 10% for underground parking (to a maximum of 20 spaces) 0.5 x 180 = 90 90-10% = 81 81 spaces 62 spaces Visitor Parking Spaces (min) No spaces for the first 12 units, 0.2 per dwelling unit for the next 300 units 180 12 = 168 168 x 0.2 = 33.6 34 spaces Included in 62 spaces Retail Parking Spaces (min) 2.5 per 100 m 2 of gross floor area 1,217 / 100 = 12.17 2.5 x 12.17 = 30.425 31 spaces Included in 62 spaces TOTAL 146 spaces 62 spaces 7 Section 37 Considerations Section 5.2.1 (11) of the Official Plan allows the City to authorize increases in height and density above levels otherwise permitted by the Zoning By-law in return for the provision of community benefits secured through Section 37 of the Planning Act. These community benefits must be over and above those facilities and services normally required as part of the City s standard development review process, standard budgeting process or provided through the Development Charges By-law and include: a. Public cultural facilities; b. Building design and public art; c. Conservation of heritage resources; d. Conservation / replacement of rental housing; e. Provision of new affordable housing units; land for affordable housing, or, at the discretion of the owner, cash-in-lieu of affordable housing units or land; f. Child care facilities; g. Improvements to rapid-transit stations; h. Other local improvements identified in community design plans, community improvement plans, capital budgets, or other implementation plans or studies; i. Artist live-work studios; j. Energy conservation and environmental performance measures; k. Conservation of existing greenspace or the creation of new greenspace.
Student Housing Development Viner Assets Inc. September 2013 36 The Section 37 guidelines apply to buildings proposed that are 7,000m 2 in size or greater, and where the requested height or density represents a 25% increase over what is permitted in the zoning. In March 2012, the City approved Section 37 guidelines, the basis of the city-wide framework. The City developed a rate framework for the value uplifts as a fee per square metre. They established two zones with different contribution schedules, the Inner Urban Area and the Outer Urban Area. The value uplift rate is established annually. In 2012, the value uplift rate for the Inner Urban Area (where this property is located) was $250 per sq. m. of Gross Floor Area (GFA). The value uplift rate for the Outer Urban Area is $130 per sq. m. of GFA. The value uplift rate for individual projects is established first on 100% of the additional GFA (i.e. over GFA permitted under current zoning) at the established rate; and then the 100% uplift rate is reduced (the draw down factors) to reflect: 1) Relevance of zoning to Official Plan, Secondary Plan, and/or Community Design policy; 2) Retention or rehabilitation of built heritage; and 3) Implementation of public benefits in the proposed development (e.g. plaza, pathways, exceptional sustainability measures). The City indicated during the preparation of the Section 37 Guidelines that on average between 15% and 30% of the value of the additional GFA is typically the uplift value that is assigned. In anticipation of the application of Section 37 to the subject site, the City should consider the following factors in assessing the community benefits of this proposal: - The tension that has built up between residents of the community and students can be relieved by creating a facility that consolidates the location where many students live, recreate and go to school. With the increase in density on the site, it is likely that the preponderance of the residents would be those students seeking accommodations close to the University for their housing, making the ad hoc rooming houses less appealing. - With providing a first rate fitness facility and social lounges, there will be less appeal to the students to hang out on the streets of Sandy Hill, again reducing tensions with the community. - With retail services on site, which is expected to include a grocery store and similar food services, there will be an opportunity for residents, university employees, and students passing the site to meet their shopping needs conveniently, rather than requiring travel to Rideau Street, thereby reducing vehicular traffic in the area. - With the design of the building and ground floor retail and courtyards, it is anticipated that the pedestrian usage will animate and bring life and activity to a corner that will be perceived as a gateway to the campus district. This activity will allow this area of Sandy Hill to begin to offer the look and feel of the kind of dynamic main campus streets found in various college towns and cities throughout North America. -The proposed development provides a major community benefit through the reintroduction of the building design at 281 Laurier Avenue East. By mimicking the original architecture of the existing structure, the design contributes to the retention of the heritage character of the street. In contrast to the conversion of 353 Friel Street to student housing, the elaborate veranda and brick building materials of this portion of the
Student Housing Development Viner Assets Inc. September 2013 37 proposed development together with its retail use contributes to the neighbourhood and affords the wider community an opportunity to experience student life. 8 Supporting Studies 8.1 Transportation Brief Delcan has prepared a transportation brief in support of the proposed development. It concludes that the high non-motorized modal split will ensure that vehicular traffic will not be significant. The roads surrounding the site currently operate at an excellent Level of Service (LoS), which will not be significantly affected by the proposal. 8.2 Assessment of Adequacy of Public Servicing David Schaeffer Engineering Limited (DSEL) has prepared an Assessment of Adequacy of Public Servicing report in support of the applications, which concludes that existing infrastructure is sufficient to meet the water and wastewater demands of the proposed development. Stormwater management facilities will be provided, in accordance with the recommendations of the Rideau Valley Conservation Authority. 8.3 Geotechnical Investigation Paterson Group has prepared a Geotechnical Investigation report, which concludes that the subject property is adequate for the proposed development. 8.4 Noise Assessment Gradient Microclimate Engineering (GME) has prepared a Transportation Noise Assessment, which makes a variety of recommendations to attenuate traffic noise inside in the development. These recommendations will be incorporated into the building design. 8.5 Phase I Environmental Site Assessment (ESA) A Phase I ESA was completed by Paterson Group, which concludes that a Phase II ESA was not required for the subject property. However, it adds that a Designated Substance Survey (DSS) should be undertaken to inventory contaminants in the building at 281 Laurier Street East. A DSS for this building was completed by Greenough Environmental Consulting (GEC) in January 2012.
Student Housing Development Viner Assets Inc. September 2013 38 9 Conclusion For all of the reasons set out in the preceding report, it is our professional opinion that the proposed Official Plan Amendment and Zoning By-law Amendment applications are appropriate, represent good planning, and are in the public interest. The proposal is consistent with the Provincial Policy Statement (PPS), by providing efficient and appropriate development on lands within the urban boundary that contributes to the range of housing options available in the community. The proposed development conforms to the Official Plan s vision for managing growth in the urban area, meets the policies for General Urban Area, and meets the criteria for assessing appropriate urban design and compatibility as set out in Sections 2.5.1 and 4.11. The provision of student accommodation at this location is also consistent with the primary goals of the Sandy Hill Secondary Plan to preserve the existing housing stock in the community, while providing much-needed student accommodation. A professionallymanaged student housing project at this location will relieve pressure in the housing market, much of which is currently being met through conversions of existing singlefamily dwellings in Sandy Hill. A range of technical studies have concluded that the proposal is functional and appropriate, and will not negatively impact the surrounding neighbourhood. Jaime Posen, M.Pl. Urban Planner FOTENN Consultants Ted Fobert, MCIP, RPP Partner FOTENN Consultants