PLANNING JUSTIFICATION REPORT

Transcription

1 PLANNING JUSTIFICATION REPORT 55 DELHI STREET CITY OF GUELPH PREPARED FOR: VESTERRA PROPERTY MANAGEMENT PREPARED BY: LABRECHE PATTERSON & ASSOCIATES INC. SCOTT PATTERSON, BA, CPT, MCIP, RPP PRINCIPAL, SENIOR PLANNER JOHN VOS, BES ASSISTANT PLANNER 330 F TRILLIUM DRIVE KITCHENER, ONTARIO N2E 3J2 PHONE: FAX: DATE: JULY 16, 2013 PROJECT NO.: P

2 CONTENTS INTRODUCTION... 1 SITE DESCRIPTION... 1 PROPOSAL... 7 PROVINCIAL POLICY STATEMENT... 8 PLACES TO GROW, GROWTH PLAN FOR THE GREATER GOLDEN HORSESHOE... 9 CITY OF GUELPH OFFICIAL PLAN... 9 CITY OF GUELPH ZONING BY-LAW (1995) URBAN DESIGN GUIDELINES...23 GRAND RIVER CONSERVATION AUTHORITY (GRCA)...26 TRAFFIC IMPACT STUDY...26 FUNCTIONAL SERVICING REPORT...26 CONCLUSION...26 APPENDIX A: TOPOGRAPHIC SURVEY APPENDIX B: PROPOSED SITE PLAN... APPENDIX C: GRCA MAP.. PLANNING JUSTIFICATION REPORT JULY 16, 2013 OUR FILE: P

3 INTRODUCTION has been retained by Vesterra Property Management to provide this Planning Justification Report for the lands municipally known as 55 Delhi Street in the City of Guelph. Vesterra Property Management is proposing the redevelopment of the subject site into a multi-unit residential building with associated parking and landscape areas. To achieve the proposed development, a Zoning By-law Amendment to the subject lands from I.3 (Institutional) to R.4D (Infill Apartment) is required. SITE DESCRIPTION conducted site visits on February 14, 2013 and May 29, The subject property is located at 55 Delhi Street in the City of Guelph, being on the north side of Delhi Street, northwest of the intersection of Eramosa Road and Delhi Street as shown in Photograph 1. The site is rectangular in shape and gradually rises in elevation towards the rear of the site. Please refer to Appendix A for the topographical survey of existing site conditions. The property has an area of square metres with a frontage of 30.5 metres on Delhi Street. The 2.5 storey building currently on site was constructed in 1910 in the Georgian Revival style and was, until recently, used by the Family and Children's Services of Guelph and Wellington County, though is now vacant. The surrounding land uses include the Guelph General Hospital adjacent to the site to the northwest; to the northeast is the Delhi Street Recreation Centre and park; single and multidwelling residential to the southeast and southwest; and a small plaza is located west of the site which contains a bistro, medical supply store, and a florist. These are illustrated in Photographs 2 to 7, respectively and indicated on the aerial photograph in Photograph 8. OUR FILE: P PAGE 1

4 Subject site Photograph 1: Aerial photograph of the subject site, 55 Delhi Street and the surrounding area OUR FILE: P PAGE 2

5 Photograph 2: Health Centre and Dialysis Centre Photograph 3: Delhi Street Recreational Centre OUR FILE: P PAGE 3

6 Photograph 4: 48 and 50 Delhi Street Photograph 5: Apartment building at 6 Delhi Street OUR FILE: P PAGE 4

7 Photograph 6: Commercial plaza including a bistro, medical supply store, and florist with adjacent parking area Photograph 7: Single-detached dwellings adjacent to the subject property Photograph 8: Aerial photograph of the surrounding area with image locations indicated OUR FILE: P PAGE 5

8 Figure 1: Survey of Existing Site Conditions OUR FILE: P PAGE 6

9 PROPOSAL The proposed redevelopment will include the renovation of the 2.5 storey building with reconstruction of the north wing (rear extension). The retained building will contain 10 residential units and the north wing will include 2 additional units for a total of 12 units. The exterior features of the building will be retained/refurbished where possible including the front porch, balcony, bay windows, gables, and dormers (please refer to Photograph 9 for a view of these elements as they currently exist). The main entrance from the front porch leads into a central hallway which includes two staircases for access to upper and lower floors. A corridor will connect the front and rear sections of the building and will provide access to the parking area along the northwest side lot line. Additional parking will be provided in the front yard which will be landscaped to reduce the impact on adjacent properties. A total of 18 parking spaces, including one accessible parking space, will be provided. See Appendix B for the Site Plan of the proposed development. Photograph 9: Unique architectural design elements OUR FILE: P PAGE 7

10 PROVINCIAL POLICY STATEMENT The Provincial Policy Statement (PPS) was issued by the Province of Ontario in 2005 and applies to all applications under the Planning Act commenced on or after March The PPS is a comprehensive statement of Provincial policies and matters of Provincial interest relative to land use planning. The PPS promotes building healthy, livable and safe communities (Section 1.1.1), providing an appropriate mix of different land use types within the community (Section 1.1.3), efficiently using services and facilities (Section ), maximizing opportunities for public transit use (Section1.6.5), and promoting intensification (Section ). The proposed development is consistent with the Provincial Policy Statement through the restoration of a heritage building and conversion to multi-unit residential building in a residential area of the city which is close to the downtown, amenities, and employment opportunities. PLACES TO GROW, GROWTH PLAN FOR THE GREATER GOLDEN HORSESHOE The Province has also issued the Places to Grow Growth Plan for the Greater Golden Horseshoe (Growth Plan) under the Places to Grow Act, 2005 to implement the PPS. Similar to the PPS, this plan also provides policies for managing growth and protection of natural areas and agricultural lands. Further, this plan also provides guidelines for the location of urban uses, encourages intensification of urban areas and stipulates minimum densities for residential and employment uses to achieve its goals. The proposed development also complies with the 2006 Growth Plan for the Greater Golden Horseshoe. This document endorses intensification and redevelopment of a property for the creation of new units, site or area at a higher density than currently exists; residential densities to support frequent and accessible transit service; and a pedestrian-friendly built environment along roads to encourage walking to transit. OUR FILE: P PAGE 8

11 CITY OF GUELPH OFFICIAL PLAN The December 2012 consolidation of the City of Guelph Official Plan designates the subject lands as General Residential as indicated in Figure 2. The proposed redevelopment is encouraged through Section 7.2.5, which states: The City will encourage the conversion of suitable non-residential structures to residential accommodation, provided other non-residential land uses in the vicinity would not pose an adverse effect. Multiple unit residential buildings are permitted in the General Residential land use designation (Section ), subject to the satisfaction of Section This section provides criteria which are used to evaluate when development proposals for multiple unit housing may be permitted within areas where residential uses are permitted. The criteria contained in Section includes: a) That the building form, massing, appearance and siting are compatible in design, character and orientation with buildings in the immediate vicinity; b) That the proposal can be adequately served by local convenience and neighbourhood shopping facilities, schools, parks and recreation facilities and public transit; c) That the vehicular traffic generated from the proposal can be accommodated with minimal impact on local residential streets and intersections and, in addition, vehicular circulation, access and parking facilities can be adequately provided; and d) That adequate municipal infrastructure, services and amenity areas for the residents can be provided. The proposed redevelopment satisfies the merits of the above criteria; the building currently existing on site will be maintained resulting in minimal change to the character and design of buildings in the immediate vicinity; local conveniences and amenities including public transit, schools, and parks are within close proximity to the site; adequate parking to meet by-law requirements is provided on site; municipal infrastructure and services currently exist on site. Within the General Residential designation, a maximum density of 100 units per hectare is permitted (Section ). The site has an area of 0.16 hectares which would permit 16 units. A total of 12 units are proposed, less than the maximum allowed. No minimum density regulations OUR FILE: P PAGE 9

12 are given; however the physical character of existing established low density neighbourhoods is to be respected wherever possible (Section ). The proposed development meets the intent of the City of Guelph Official Plan based on the relevant policies mentioned above. * Subject Site Figure 2: Excerpt from the current City of Guelph Official Plan THE CITY OF GUELPH ZONING BY-LAW (1995) The subject property is zoned Health and Social Services, I.3 under the City of Guelph Zoning By-law (1995) as indicated in Figure 3. The I.3 zone allows a variety of medical service uses including clinics and offices, but does not permit residential apartments. The lands OUR FILE: P PAGE 10

13 to the north are zoned I.3 (Institutional); lands to the west are R.1B (Residential Single Detached) and OR-12 (Office Residential); lands to the south are R.1B (Residential Single Detached); and lands to the east are P.3-1 (Community Park). Subject Site Figure 3: Excerpt from the City of Guelph Zoning By-law Map (1995) Developing the properties into a multi-unit residential building will require a Zoning By-law Amendment to re-zone subject lands to the R.4D, Infill Apartment zone, with site-specific provisions to permit parking in the front yard, a rear yard setback reduction, and a side yard setback reduction. The Zoning Regulations for an Infill Apartment Zone are found in Table 1, with the site specific provisions noted in yellow. Table 1: Zoning Regulations: R.4D Infill Apartment Required Proposed Minimum Lot Area 650 m 2 1,673 m² Minimum Lot Frontage 15.0 m m Maximum Density 100 units/ha 75 units/ha Minimum Front Yard and Exterior Side Front Yard: 23.8 m 3.0 m Yard (existing) Maximum Front and Exterior Side Yard Front Yard: 23.8 m 6.0 m (existing) Minimum Side Yard ½ of building height but not less than 3 m. 4.1 m (existing) Minimum Rear Yard 20% of lot depth or 2.2 m OUR FILE: P PAGE 11

14 one half the building height, whichever is greater, but not less than 7.5 m Maximum Building Height 4 storeys 3 storeys (existing) Minimum Distance Between Buildings NA NA Minimum Common Amenity Area None required NA Minimum Landscaped Open Space Off-Street Parking Buffer Strips Accessory Buildings or Structures Front Yard excluding the driveway, no parking permitted. In accordance with Section 4.13 A buffer strip shall be provided where an R.4 zone abuts a residential, institutional, and/or park zones. In accordance with Section 4.5 In accordance with Section 4.9 Part of the Front yard is landscaped (Refer to comments below) Buffer strips are provided in all yards and designed in accordance with the Urban Design Guidelines. Garbage, Refuse Storage and Composters In accordance with Section 4.9 Floor Space Index (maximum) Fences In accordance with Section 4.20 NA NA Due to the nature of the proposal, being a redevelopment of a Cultural Heritage Resource, it is not possible to meet all of the requirements of the Zoning By-law particularly the regulations noted above (in yellow) and discussed in detail below. Maximum Front and Exterior Side Yard The existing front yard is metres which exceeds the maximum permitted front yard of 6.0 metres. Since the building was constructed prior to the adoption of the City of Guelph Zoning By-law, the front yard is considered legal non-conforming and the setback variance required is to acknowledge these existing permitted conditions on site (refer to Figure 4). OUR FILE: P PAGE 12

15 23.85 m Figure 4: The current depth of the Front Yard Minimum Side Yards The building currently existing on site is located 0.54 metres from the northwest side lot line (adjacent to the Guelph General Hospital) and 4.16 metres from the southeast side lot line (adjacent to 47 Delhi Street) (see Figure 5). Following reconstruction of the rear single-storey portion of the building the new side yards will align with the existing 3 storey building with a side yard of 4.12 metres along the northwest side, and 4.66 metre side yard along the southeast side (see Figure 6). The regulations for the R.4D Zone permit a 3.0 metre side yard where the site is adjacent to any other R.4, Commercial, Industrial, or Institutional Zone. The northwest side yard is adjacent to the Guelph General Hospital (Institutional Zone). Therefore a side yard of 3.0 OUR FILE: P PAGE 13

16 metres is permitted. A site specific reduction in the regulation will be requested to permit the reconstruction of the rear wing with a reduced footprint within the side yards as determined by the main portion of the building. This reduction in the required side yard should be considered minor as the newly constructed extension will have significantly deeper setbacks than currently exists m 4.16 m 8.14 m 4.66 m 4.1 m 4.66 m 4.1 m 4.66 m Figure 5: Current Side Yards are legal non-conforming as the building predates the Zoning By-law Figure 6: Proposed Side Yards are wider than or equal to the dimensions of the current legal nonconforming yards Minimum Rear Yard The building currently existing on the site is located 1.16 metres from the rear lot line (see Figure 7). This does not comply with the Minimum Rear Yard regulation which requires: Equal to 20% of the lot depth or one-half the building height, whichever is greater, but in no case less than 7.5 metres, except where adjacent to OUR FILE: P PAGE 14

17 Commercial, Industrial, or Institutional Zones. In these circumstances, a minimum of 7.5 metres is required. The land adjacent to the rear yard is zoned P.3-1 in which the allowance for a reduced rear yard of 7.5 metres is not applicable. Therefore, a rear yard of metres is required which is 20% of the metre lot depth. The proposed rear yard of 2.2 metres is less than what is required but is necessary to permit the reconstruction of the rear units. The reduced setback will not affect the use of the adjacent property which is Zoned P.3-1 as this is the location of a parking lot which serves the Delhi Street Recreation Centre. Though the new rear yard is not as deep as regulated, the new yard will be larger than currently exists and will be landscaped to further reduce the likely of any impacts on the adjacent property (see Figure 8 and Photograph 10) m Figure 7: Current rear yard is legal non-conforming as the building predates the Zoning By-law 2.2 m Figure 8: Proposed rear yard will be nearly twice the width of the current yard OUR FILE: P PAGE 15

18 Photograph 10: View of current rear yard with parking abutting the property line Minimum Landscaped Open Space The amount of landscaped open space is regulated for the R.4 Zone as follows: The front yard of any lot, excepting the driveway, shall be landscaped. In addition, no parking shall be permitted within this landscaped open space. The front yard regulation requires a 3.0 metre front yard which currently exists on site. Through redevelopment of the site, a portion of the parking will need to be accommodated in the front yard area. Every effort has been made to reduce the amount of parking in the front yard without reducing the number of spaces required by the by-law. A landscaped open space of 1.56 metres has been provided with parking extending into the remainder of the required minimum Front Yard Line (see Figure 9) OUR FILE: P PAGE 16

19 (Minimum Front Yard Line, 3.0m) (Landscaped Open Space, min. 1.56m) Figure 9: The proposed size of Landscaped Open Space and minimum Front Yard Line OUR FILE: P PAGE 17

20 Off-street Parking The number of required parking spaces is calculated at a rate of 1.5 spaces per unit. With 12 units being proposed, a total of 18 spaces will be required. 18 parking spaces have been proposed on site including an accessible parking space within close proximity to the building entrance (see Figure 10). Section 4.13 provides policies to control the layout and design of offstreet parking. The following policies are particularly relevant for the proposal: Off Street Parking in R.3A and R.4 Zones In a R.3A or R.4 Zone, every parking space shall be located in the side or rear yard provided that no parking space is located within 3 metres of any lot line. 1 2 Spaces 1-5 directly access a private rightof-way over a side lot line Spaces are located in the front yard, 1.35m from the lot line Figure 10: The proposed parking layout. OUR FILE: P PAGE 18

21 The proposed parking cannot be accommodated in the side or rear yards as required due to the current layout of the building on the site. As such, some parking has been proposed in the front and side yards, with portions of the parking located less than 3.0 metres from the front and side lot lines. This does not meet the parking requirements of the Zoning By-law. However, this is not uncommon on other properties on Delhi Street, including the parking lot servicing 64 Delhi Street (Delhi Street Bistro, Home Health, and Floral Images), as well as the Guelph General Hospital and Health Centres. A significant amount of parking is located in the front yards of each of these locations. Please refer to Photograph 11 for a view of the parking lot serving 64 Delhi Street. As such, the proposed parking in the front yard will not be unique. Photograph 11: Parking lot on south side of Delhi Street opposite of the subject property Despite Section , only visitor parking (not more than 25% of the minimum off-street parking required) may be located in the Front Yard or Exterior Side Yard provided it is to the rear of the required Front or Exterior Side Yard. The number of visitor parking spaces is calculated at a rate of 25% of the minimum off-street parking. With 18 spaces required, the rate of 25% would permit 4.5 spaces for visitors within the front or exterior side yard. As an amendment is currently being requested to permit parking in the front yard, this policy may be considered in support as the section indicates that parking is not explicitly prohibited in the front or exterior side yards No part of any surface driveway or surface parking area shall be located within 3 metres of a building entrance or any window of a habitable room. OUR FILE: P PAGE 19

22 The proposed surface parking in the front yard is setback adequately from all building entrances and windows to habitable rooms. The parking at the rear of the site is 2.5 metres from windows to habitable rooms. To achieve the required separation, either the length of the parking spaces will need to be reduced or the building will need to be moved further towards the opposite side yard. Neither option is possible without affecting the function and use of the site. An amendment is required to permit a landscaped buffer of 2.5 metres instead of the required 3.0 metres. Please refer to Figure 11 for details on the separation of the parking areas from the building. 2.6 m 4.3 m Figure 11: Setback of parking to the nearest entrance and/or window to habitable room is 2.5 m. OUR FILE: P PAGE 20

23 : Despite Section , a designated structure is permitted to have a reduction of 20% of the number of required parking spaces for the uses listed in Section , however in no case shall the reduction be greater than 5 Parking Spaces. The existing brick structure currently is included in the Municipal Register of Cultural Heritage Properties as a Non-designated property. Therefore, the proposal does not qualify for the 20% reduction in the number of required parking spaces Designated Accessible Parking Spaces In any commercial, institutional, park or residential zone, where more than 25 parking spaces are required by Section , the required number of parking spaces shall include the provision of designated accessible parking spaces for the use of physically disabled persons in the minimum quantity specified in Section : An accessible parking space is not required as the total number of required parking spaces is less than 25 spaces. However, a designated accessible parking space has been proposed in the rear parking area adjacent to the front entrance to the building. Refer to Figure 12 for the location of the designated accessible parking space: A total of 18 parking spaces have been proposed on site as required by the parking provisions of the by-law. Due to the current layout of the building on the site, minor amendments to the Zoning By-law will be required to accommodate off-street parking in the front yard and within less than 3.0 m of the front and side lot lines. These amendments are required for the redevelopment of the property and restoration of this landmark building. The requested amendments are minor and will not adversely affect the adjacent properties or surrounding area. Significant care in the site plan design will occur to ensure a dedicated pedestrian access is provided while also creating areas where landscaping and buffering can be integrated into the site design. OUR FILE: P PAGE 21

24 Figure 12: The location of the accessible parking space is indicated with a red outline OUR FILE: P PAGE 22

25 URBAN DESIGN GUIDELINES The City of Guelph utilizes a comprehensive set of Urban Design Guidelines for development within the City. The proposed redevelopment of 55 Delhi Street is compliant with the design guidelines through the selection of materials, landscaping and the inclusion of buffer strips. Section 2.6 of the Urban Design Guidelines provides directions for the development of safe pedestrian access. Pedestrians access to the site will be enhanced through new walkways leading to the front porch and side entrance. The sidewalk leading from the street to the front porch will pass through the new proposed parking lot. The path will be delineated through the use of concrete rather than asphalt which will be used to pave the remainder of the parking lot area. Landscape strips will also be included on either side of the walkway where possible to define the border between parking and pathway use. Refer to Figure 13 for details of the integration of the pathway within the parking area. The existing concrete walkway along the southeast edge of the site will be retained to allow for pedestrian access to 65 Delhi Street, the Delhi Street Recreation Centre (please refer to Photograph 12 for a view of the current pathway). This is also the location of an easement to provide a sanitary connection to service 65 Delhi Street located at the rear of the subject property. This easement presents a challenge for buffering the parking lot adjacent to the residential use at 47 Delhi Street. Buffer features such as trees and fences may not be feasible as root systems and fence post instillation may adversely affect the sanitary connection. This will be carefully considered in the design of the buffer strip and a design will be developed which promotes pedestrian access, ensures no disruption to the services, while reducing the impacts on the neighbouring property. Buffer strips have been designed in accordance to Section 3.2 of the Guidelines. The requested reduction in front yard setback will not result in adverse impacts to the surrounding properties or reduce the standard of living for residents of this development. As discussed previously, the reduction in front yard setback is minor and will aid in providing adequate area for parking while promoting views of the façade and facilitating the goal of providing a pedestrian oriented design. The proposed rear yard setback reduction can also be considered minor. The rear of the proposed building abuts the open parking lot of Delhi Street Recreation Centre and adjacent park. The proposed building will not impact the function of the adjacent properties and will include a landscaped buffer strip. OUR FILE: P PAGE 23

26 Figure 13: Pedestrian pathways are indicated in yellow and landscaped areas and buffer strips are green OUR FILE: P PAGE 24

27 Photograph 12: The side lot line between 47 Delhi Street and subject property. This is the location of the easement and sidewalk which leads to the Delhi Street Recreation Centre The Guidelines also provide direction for how parking areas are to be landscaped and accessed. The landscaped open space in the Front Yard will be designed to reduce views of the vehicles in the parking area while allowing a view of the front porch entryway along the pedestrian walkway. Section 2.5 of the Guidelines encourages a reduction in the number of driveways. The site does not have a dedicated driveway with direct access to a public street. A right-of-way was been granted (on April 23, 2013) onto what is currently the Guelph General Hospital driveway to provide access to both of the proposed parking areas (in the Front Yard and Side Yard). This reduces the number of accesses onto Delhi Street and promotes a continuous street frontage. Overall, the materials, design and location of the building on the property conform to the relevant design guidelines found in the City of Guelph s Urban Design Guidelines document. OUR FILE: P PAGE 25

28 GRAND RIVER CONSERVATION AUTHORITY (GRCA) For your reference, the GRCA mapping shows no environmental constraints for this property. A GRCA map of the subject property has been provided in Appendix C. TRAFFIC IMPACT STUDY A Traffic Impact Study has been prepared by Paradigm Transportation Solutions Ltd. The study concludes that the proposed development will not require left-turn lanes or traffic control signals as the additional traffic during AM and PM peak hours will be minimal. Vehicular parking areas are located in the front and side yards due to the limited availability of space. The front parking lot has been designed to allow a buffer of approximately 4 metres from the adjacent property at 47 Delhi Street. A total of 18 parking spaces have been provided on site as required by the Zoning By-law, including 1 accessible parking space. A request for a reduction in the number of parking spaces per unit would potentially result in a negative impact to the surrounding neighbours as residents will likely seek alternate parking options. Therefore every effort has been made to accommodate the required parking spaces on site. FUNCTIONAL SERVICING REPORT The site is fully serviced with municipal water and sewage services. A Functional Servicing Report has been prepared by Gamsby and Mannerow Engineers. The study concludes that after development, the site will continue to be adequately serviced and storm water management systems can be provided as required to mitigate flooding. CONCLUSION The proposed development is consistent with/conforms to all relevant Provincial Policies, the existing and adopted City of Guelph Official Plans, and the City of Guelph Urban Design Guidelines. The iconic building façade will be retained/refurbished where possible especially OUR FILE: P PAGE 26

29 the architectural materials and elements such as gables and the front porch entryway. This infill apartment project is in line with the general residential/housing goals of the Official Plan which encourages the conversion of suitable non-residential structures to residential accommodation, and encourages the provision of additional rental housing. The proposed development will utilize existing infrastructure and facilities and provide intensification in an area designated for growth to occur. A Zoning By-law Amendment is being requested to facilitate the development of this project in accordance with the Official Plan designation of General Residential, and as such, should be granted based on the aforementioned policies and discussion. Scott Patterson, BA, CPT, MCIP, RPP Principal, Senior Planner John Vos, BES Assistant Planner OUR FILE: P PAGE 27

30 APPENDIX A TOPOGRAPHIC SURVEY

31 APPENDIX B PROPOSED SITE PLAN

32 APPENDIX C GRCA MAP