Planning Rationale Application to City of Ottawa for Zoning By-law Amendment 9Rideau Gate Introduction This report for 9 Rideau Gate ( subject property ) provides a description of the existing conditions, an overview of the proposed single use office space use, a synopsis of the applicable land use planning policies, including the National Capital Commission s (NCC) Federal Planning Framework, Provincial Policy Statement (PPS), the City of Ottawa Official Plan (OP) policies and Zoning By-law provisions. A location plan is provided as Appendix 1. Zoning By-law Amendment to add an office use constitutes an appropriate use for the site. Site Overview Image 1- Site location August 22, 2015 Page 1
Image 2- Site location with underlying air photo (Source - Geo Ottawa web page) The Subject Property is denoted in red on the image above. It is located on the South West side of the intersection of Rideau Gate and Thomas Streets; within Ward 13, Rideau-Rockliffe. The property is located on a short street near the entrance to the Governor-General s residence and is an integral part of a cluster of important private residences of formal aspect in Rockcliffe Park, an exclusive area of Ottawa. This site is federally owned and form part of the National Capital Commission s Real Estate Management leasing portfolio (NCC) and the surrounding units are federally owned and form part of the National Capital Commission s Official Residences. The neighbouring property, 7 Rideau Gate, is the official guest house of the Government of Canada. The subject property is legally described as part of Lot 3 on the east side of Sussex Drive Registered Plan No. 3, and forms the property identification number PIN 042220345. August 22, 2015 Page 2
Site and Existing Building Photos Photo 1 view from Rideau Gate Photo 2- View from Corner of Rideau Gate and Thomas St August 22, 2015 Page 3
Photo 3- View from Thomas Street The property has an area of 1322 m 2, with an existing three story building measuring approximately 400 m 2 above Grade which has previously been used by both residential and official residences. Access to the building is currently from both Rideau Gate and Thomas Street. An open landscaped area (private green space amenity area) separates the rear yard from Mackey Street. All adjacent properties are part of the NCC leasing portfolio except for the property at the south West corner of Mackay and Thomas Street. There are two (2) existing parking spaces with access to Thomas Street (As part of this zoning amendment application, the NCC is requesting the formal parking required on premises be reduced to two (2)). Additional parking will be provided on the Rideau Hall grounds. The property is surrounded by the following land uses: North: the entrance to Rideau Hall the Governor-General s residence East: Rideau Hall Visitor Centre South: MacKay St residential housing West: the official guest house of the Government of Canada August 22, 2015 Page 4
Description of Proposal Background The Residence was constructed in 1925 as a retirement home for Mr. Archibald Chetwood Kains, a successful banker, and his wife, Mrs. Fanny Kains. The Kains lived in the house for many years until the house was sold by Mrs. Kains to Mr. and Mrs. Frank and Brenda Ritchie. The Ritchies only briefly resided in the house, but leased it for a period of over 10 years to the South African High Commission. In 1965, the Ritchies sold the house to Mr. Michael Alan Weller, a lawyer, and his mother Mrs. Yvonne Weller (Fournier). In 1981, the residence was purchased by Mr. Gordon Hamilton Southam and Mrs. Marion Southam. Mr. Southam was a journalist, diplomat, business owner, cultural activist and arts supporter for whom Southam Hall at the National Arts Centre is named. His family owned the Ottawa Citizen. The National Capital Commission acquired the property from Nugohaso Ltd., a company in which Mr. and Mrs. Southam were President and Vice-President, in 2000 for the sum of $1,100,000. The reason stated for acquiring the property was to protect the environment of the other properties the NCC already owned. Its location next door to the official guest house and overlooking the entrance of Rideau Hall was considered strategic. Current vocation The property was leased to Mr. Carlos Miranda, the Costa Rican ambassador, by the Nugohaso Ltd from 1994, and his tenancy continued until 2002. Following this, Mr. and Mrs. Richard and Karen Grand leased the property from 2005 to 2009. Mr. Grand was owner of Grand & Toy, the office supply company. From 2010 to 2015, the property has been leased to Mr. Eric John Wolfe and Mrs. Elizabeth Reid. The building s conversion from a private residence into a residence for government and diplomatic officials, illustrates the changing demographic pattern of the immediate residential area around Rideau Hall. Here, many houses originally built for prominent Ottawa businessmen and senior government officials in the late -19th and early 20th centuries, have been converted to official residences. The building at 9 Rideau Gate has been vacant since 2015. The NCC has had significant difficulty in leasing this large property as a residential unit. The nature of the building (a very large 3 level house), its high market rent value, and its location next to Rideau Hall with the Visitor Centre and tourist bus loading/unloading zones adjacent makes it less attractive to many prospective residential tenants. The NCC is applying for a zoning by-law amendment in order to expand the list of uses permitted to include an office use, with a reduction in required parking. The building will have no modifications and no other site works are proposed. August 22, 2015 Page 5
Planning Context NCC Federal Planning Framework The planning policy framework includes the NCC s Federal Policy framework, and this proposal is subject to the National Capital Act and the Federal Land Use and Design Approval (FLUDA) process also applies. The NCC Core Area Sector Plan Amendment is awaiting formal approvals to clarify the policy directions for a mix of residential, diplomatic and office uses along this section of Confederation Boulevard (with input from the municipal Zoning amendment process from Ottawa City Council). NCC plans and policies include; -Plan for Canada s Capital, 1999 -Confederation Boulevard Guidelines, 2011 -Core Area Sector Plan, 2005: Section 4.3 Sussex Drive North and South -NCC Signage Guidelines (2012) -National Capital Act, Sections 10 and 12, subject to formal FLUDA process, including Federal Heritage Buildings Review Office (FHBRO) considerations. Core Area Sector Plan The Core Area Sector Plan, 2005, notes Sussex Drive is an important segment of Confederation Boulevard and one of the Capital s most prestigious addresses. The plan divides Sussex Drive into two distinct character areas, Sussex Drive North (the setting of the Official Residences, embassies and the Department of Foreign Affairs), and Sussex Drive South (a mixed-use area that features cultural institutions, open spaces and links with the Byward Market Area). The policy objectives in the plan support uses, programming and visitor experience opportunities that are national or international in scope and contribute to a vibrant Capital realm. While the specific tenant proposed for the site does not directly support these policy objectives, expanding the building s use beyond residential would enable future tenancy that aligns with a national/international scope. Federal Heritage Buildings Review Office (FHBRO) The unit at 9 Rideau Gate was evaluated by the Federal Heritage Buildings Review Office in 1999 and was designated as a Recognized Federal Heritage Building because of its historical, architectural and environmental significance. The heritage character of 9 Rideau Gate resides in the following character-defining elements: Its Georgian Revival elements, including the placement of the windows and door openings, the sidelights and elliptical transom of the front door, the tapered columns and the gabled portico of the main entrance, and the large, detailed cornice in the end gable. The butterfly plan of the house, in which three wings radiate out from a central core. August 22, 2015 Page 6
The slate roof, cooper downspouts and exterior ornamental woodwork, all serving as expressions of the solidity that marks the best examples Georgian Revival architecture and as testaments to the quality of the building s craftsmanship and materials. The way in which the predominantly Georgian Revival style of the 9 Rideau Gate complements the mid-19 th century properties on the street. All maintenance and repair work, as well as future interventions, should aim to respect these character-defining elements. Municipal Heritage Status: The 9 Rideau Gate property is located North of the New Edingburg Heritage conservation District with Mackey Street as it northern limit. Image 4- Excerpt NCC Core Area Sector Plan- Map 10 Conformity with the Provincial Policy Statement The Provincial Policy Statement ( PPS ) sets out a vision for land use planning in the Province of Ontario that encourages planning and development that is environmentally-sound, economically-strong and that enhances quality of life. August 22, 2015 Page 7
Land planning policies are intended to promote efficient development patterns with an appropriate mix of housing, employment, open spaces and multi-modal transportation which are appropriate for and make efficient use of existing and planned infrastructure and public service facilities. The relevant policies to the subject application are as follows. Section 1.1.1 provides policy guidance for efficient development and land use patterns. This section states: Healthy, liveable and safe communities are sustained by: a) promoting efficient development and land use patterns which sustain the financial well-being of the Province and municipalities over the long term; b) accommodating an appropriate range and mix of residential and other industrial and commercial, institutional, recreation, park and open space, and other uses to meet long-term needs; c) avoiding development and land use patterns which may cause environmental or public health and safety concerns; d) avoiding development and land use patterns that would prevent the efficient expansion of settlement areas in those areas which are adjacent or close to settlement areas; e) promoting cost-effective development patterns and standards to minimize land consumption and servicing costs; f) improving accessibility for persons with disabilities and older persons by identifying, preventing and removing land use barriers which restrict their full participation in society; g) ensuring that necessary infrastructure, electricity generation facilities and transmission and distribution systems, and public service facilities are or will be available to meet current and projected needs. The proposed zoning by-law amendment to permit additional local office uses conforms with Section 1.1.1 as it will contribute to an appropriate range and mix of land uses within a neighbourhood that is well served by existing municipal services. Section 1.1.3 aims to direct growth to settlement areas, like Ottawa s urban areas, with land use patterns based on the following: a) densities and a mix of land uses which: 1. efficiently use land and resources; 2. are appropriate for, and efficiently use, the infrastructure and public service facilities which are planned or available, and avoid the need for their unjustified and/or uneconomical expansion; 3. minimize negative impacts to air quality and climate change, and promote energy efficiency; 4. support active transportation; 5. are transit-supportive, where transit is planned, exists or may be developed; and 6. are freight-supportive; and b) a range of uses and opportunities for intensification and redevelopment in accordance with the criteria in policy 1.1.3.3, where this can be accommodated. August 22, 2015 Page 8
In accordance with Section 1.1.3, the proposed zoning by-law amendment will permit the site to be fully occupied (presently vacant) and repurpose the existing heritage structure along this local street, in an area already well served by infrastructure and municipal services. The zoning by-law amendment will allow for adaptive reuse of the existing structure in a manner that is appropriate and compatible with the surrounding community and federal policy framework. Through the permission of this additional use, the existing heritage structure can be better maintained, thereby reducing the risk of any negative impacts from any longer term vacancies. The office use proposed will promote continued investment in the building and will allow for the continuation of existing heritage character elements. The occupancy of this unit is an important cornerstone to the viability of Rideau Hall. By permitting local office uses on the subject property, the proposed zoning by-law amendment will support economic development and competitiveness by providing space for small scale employment that is compatible with the surrounding community. The existing infrastructure is more than adequate to accommodate the additional permitted office use within the existing structure. In addition to Section 1.3, Section 1.7.1 provides policy guidance for how long term economic prosperity should be supported, as follows: a) promoting opportunities for economic development and community investment-readiness; b) optimizing the long-term availability and use of land, resources, infrastructure, electricity generation facilities and transmission and distribution systems, and public service facilities; c) maintaining and, where possible, enhancing the vitality and viability of downtowns, (tourist destinations and scenic entries); d) encouraging a sense of place, by promoting well-designed built form and cultural planning, and by conserving features that help define character, including built heritage resources and cultural heritage landscapes. Conformity with the City of Ottawa Official Plan The City of Ottawa Official Plan ( OP ) was adopted in 2003 and provides a vision for future growth of the city and a policy framework to guide future development. The OP recently underwent a 5-year review and Official Plan Amendment (OPA) No. 150 was approved by Council in December 2013. It is the policies of OPA 150 that will be analyzed with respect to the subject application. Section 3.6.1 General Urban Area Designation City of Ottawa Official Plan -Schedule B General Urban Area August 22, 2015 Page 9
Image 5 - Schedule B of the Official Plan, Urban Policy Plan The Subject Property is designated General Urban Area on Schedule B of the Official Plan. It is subject to the policies of Section 3.6.1 for the General Urban Area designation (see Image above). The General Urban Area designation permits the development of conveniently located employment, retail, service, cultural, leisure, entertainment and institutional uses in order to facilitate the development of complete and sustainable communities. The proposed zoning by-law amendment seeks to broaden the permitted uses on the site to include local commercial uses. All of the uses proposed are permitted within the General Urban Area and recognize the importance of providing local shops and services, particularly at the edge of residential neighborhoods, for use by neighboring residents as opposed to separating land uses. This type of development allows communities to transition into complete communities with shops and services located within walking distance of residences. As previously mentioned no site works are proposed and the existing structure complies with the height and built form policies of the General Urban Area Designation. The Subject Property is located on a local street near the corner of an existing Arterial Road (Sussex Drive) and is in proximity to local, cultural, retail, commercial and residential uses. The building is suited for neighborhood office uses that will contribute to the surrounding residential community and will provide a transition from the residential neighborhood to the more intensive downtown mixed. Section 2.5.1 Designing Ottawa and Section 4.11 -Urban Design and Compatible Development Sections 2.5.1 and 4.11 seek to ensure that new development incorporates a high quality of community and urban design and is compatible with surrounding land uses. August 22, 2015 Page 10
Section 2.5.1 outlines design objectives to be evaluated with respect to the new development. Although no site works are proposed, the zoning by-law amendment meets the design objectives in that it will enhance the sense of community by allowing the building to host a more diverse economic base with a distinct neighborhood identity. The building is already safe and accessible and is respectful of the existing low-density character of the area. The zoning by-law amendment will allow the existing building to adapt over time by allowing an additional local office supporting activities of the adjacent Rideau Hall use to be located on the Subject Property. The zoning by-law amendment will encourage the repurposing of the building, thereby minimizing the potential energy and materials that would be required to construct additional buildings. As per Policy 2 and based on the General Urban Area designation, the proposed development will not require review by the Urban Design Review Panel. In addition to the design objectives of Section 2.5.1, a development proponent must also implement the policies of Section 4.11 into their proposal which make reference to objective criteria that can be used to evaluate compatibility of development applications including height, bulk or mass, scale relationship, building/lot relationships, and the distance between buildings. The OP aims to achieve compatibility through appropriate land use designations and the corresponding Zoning By-law. The proposed additional use for the site is compatible with surrounding development. The proposed use is not anticipated to generate additional traffic. The existing design and form of the building is not being modified and it possesses an exterior residential character that is compatible with the neighboring uses. Section 4.3 Walking, Cycling, Transit, Roads and Parking Lots According to Section 4.3 of OPA 150, the City, when reviewing development applications, will assess the adequacy of the transportation network to meet the needs of the proposed development. Schedule E of the Official Plan, Urban Road Network Image 6- City of Ottawa Official Plan -Schedule E- Arterial Road (Sussex) As per Schedule E of the Official Plan, the site fronts on a local Street, Rideau Gate, with direct access to an existing Arterial Road (Sussex Drive) and existing collector road (Alexander Street). August 22, 2015 Page 11
Image 7- Schedule I of the Official Plan, Multi--Use Pathways and Scenic Entry Routes (Urban) Network Confederation Boulevard Schedule D of the Official Plan The site is located within walking distance of transit priority corridor on King Edward Avenue and a local route on Alexandre Street. Ottawa Cycling Plan and Confederation Boulevard Policies The City and NCC place importance on improving cycling infrastructure and connectivity between Ottawa and Gatineau, and on providing visitors and residents with improved opportunities to explore the Capital s shorelines and attractions. The portion of Confederation Boulevard/ Sussex Drive abutting the Subject Property is a designated on road cycling route. As identified on the OP Schedules, the property is well served by a transportation network for vehicles, pedestrians and cyclists which is more than adequate to support the needs of the proposed office use. August 22, 2015 Page 12
Image 8- Schedule C of the Official Plan, Primary Urban Cycling Network Image 9- Transportation Master Plan, Map 1, - Cycling Network- Primary Urban August 22, 2015 Page 13
City of Ottawa Zoning By-law 2008-250 Existing zoning R1II Image 10- Zoning Schedule Source- GeoOttawa, zoning layer The purpose of the R1- Residential First Density Zone is to: (1) restrict the building form to detached dwellings in areas designated as General Urban Area in the Official Plan; (2) allow a number of other residential uses to provide additional housing choices within detached dwelling residential areas; (3) permit ancillary uses to the principal residential use to allow residents to work at home; (4) regulate development in a manner that is compatible with existing land use patterns so that the detached dwelling, residential character of a neighbourhood is maintained or enhanced; and (5) permit different development standards, identified in the Z subzone, primarily for areas designated as Developing Communities, which promote efficient land use and compact form while showcasing newer design approaches. The following uses are permitted uses subject to: (1) the provisions of subsection 155 (3) to (6); (2) a maximum of three guest bedrooms in a bed and breakfast; (3) a maximum of ten residents is permitted in a group home; and (4) a maximum of ten residents is permitted in a retirement home, converted. August 22, 2015 Page 14
bed and breakfast, see Part 5, Section 121 community garden, see Part 3, Section 82 detached dwelling diplomatic mission, see Part 3, Section 88 group home, see Part 5, Section 125 home-based business, see Part 5, Section 127 home-based daycare, see Part 5, Section 129 park retirement home, converted see Part 5, Section 122 secondary dwelling unit, see Part 5, Section 133 TABLE 156A R1 SUBZONE PROVISONS (By-law 2009-164) (Subject to By-law 2015-228) I Sub - Zon e II Minimu m Lot Width (m) III Minimu m Lot Area (m 2 ) IV Maximu m Buildin g Height (m) V Minimu m Front Yard Setbac k (m) VI Minimu m Corner Side Yard Setbac k (m) VII Minimu m Rear Yard Setbac k (m) VIII Minimu m Interior Side Yard Setbac k (m) IX Maximum Lot Coverage (And Other Provision s) II 18 540 11 3 3 7.54 varies6 na 4,6 X End Note s (see Tabl e 156 B) TABLE 156B ADDITIONAL ZONING PROVISIONS (By-law 2009-164) I Endnote Number II Additional Zoning Provisions 4 Minimum rear yard setback is 25% of the lot depth which must comprise at least 25% of the area of the lot, however it may not be less than 6.0 m and need not exceed 7.5 m. Despite the foregoing, on lots with depths of 15 metres or less, the minimum rear yard setback is 4 m. 6 Minimum total interior side yard setback is 3.6 m, with one minimum yard, no less than 1.2 m. Where there is a corner lot on which is located only one interior side yard, the minimum required interior side yard setback equals the minimum required for at least one yard. (By-law 2008-462) The existing R1II zone does not permit office use on this site. The application is to permit the addition of an office use (Rideau hall Foundation office) to the existing permitted uses and reduction of the required parking to two. This site benefits from a variety of transportation mode options, including, walking, cycling, and transit. August 22, 2015 Page 15
The 400m 2 property offers two parking inside the garage and bylaw amendment 2016-269 row N59 area X requires 4 parking. To reduce site work and the addition of parking having adverse effect on this heritage property the NCC requested the required parking be reduced to two. At time of writing bylaw amendment 2016-269 was in appeal period, the original 2008-250 Bylaw required 8 parking. A private shared parking area is also available at Rideau Hall for tenants of this building. Proposed Zoning It is proposed to add an exception number. Proposed exceptions are as follows; - Office use to be added to additional land uses permitted column, - Required parking to be reduced to two, no additional parking required. August 22, 2015 Page 16
Summary and Conclusions The NCC Federal Planning Framework and Core Area Sector Plan amendment, Provincial Policy Statement, the City of Ottawa Official Plan and site context support a rezoning of the subject property that will also permit an office use and the required parking to be the existing 2 spaces. The application for zoning by-law amendment recommends a single additional permitted use (office), which is permitted by the General Urban Area Official Plan designation. The additional use will broaden the set of uses permitted, thereby making efficient use of the land and available infrastructure as well as contributing to a strong and diversified economic base. The proposed interior fit up and use is compatible with the surrounding community context and respectful of the surrounding residential neighborhood. The additional use will take advantage of the site location on an arterial road, its proximity to Rideau hall for the tenant Rideau Hall foundation, as well as its proximity to transit routes. The property is well served by pedestrian and cycling linkages that will encourage modes of active transportation for access to the site. An expanded use will enable this site to more easily adapt and continue to be a viable heritage resource. The requested Zoning By-law Amendment represents good land use planning and is appropriate for the site based on the following reasons: - The property is within the NCC federal leasing portfolio and the proposed lease duration is 5 years. After which the site has the option of returning to the residential portfolio. - The proposal complies with the federal planning framework, Plan for Canada s Capital, Core Area Sector Plan and the NCC s Confederation Boulevard guidelines (Sussex Drive). - The proposed addition of an office use is consistent with the 2014 Provincial Policy Statement policies with respect to promoting the efficient use of land, existing infrastructure and existing public facilities, as well as promoting cost-effective development patterns and standards to minimize land consumption and servicing costs. It will encourage the inclusion of an appropriate range and mix of land uses and employment opportunities to meet long-term needs. The proposed development will also help provide opportunities for economic development through diversifying the economic base. - The proposed development will add to the vitality of lands along Confederation Boulevard and in close proximity to the Rideau Hall - The proposed development conforms to the City s Official Plan goals, objectives and policies for General Urban Area, particularly in promoting and support economic development and the local community. The site will take advantage of its proximity to nearby transit, public parking and amenities. The proposed development will introduce a use that is in keeping with the General Urban Area designation, within the existing fabric and unit pattern and scale of surrounding development. - The proposed development conforms to the City s compatibility criteria established in the Official Plan. - The proposed use meets the general purpose and intent of the Zoning By-law. August 22, 2015 Page 17
In conclusion, the proposal to add an office use as a permitted use supported by the Federal Planning Framework, is subject to the Federal Land Use and Design Approval process under the National Capital Act and the City Official Plan policies for the General Urban Area. The NCC supports the application for Zoning By-law Amendment as it is appropriate and represents sound land use planning. Prepared by: Yannick Dandurand Manley P. Eng Asset Manager, Real Estate Management National Capital Commission August 22, 2015 Page 18
Appendix 1- NCC Site location sketch August 22, 2015 Page 19