PLANNING RATIONALE. For. City of Ottawa. Application for Rezoning. 233 Armstrong and 3 Hamilton ATTIKA DEVELOPMENT

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1 PLANNING RATIONALE For City of Ottawa Application for Rezoning 233 Armstrong and 3 Hamilton ATTIKA DEVELOPMENT Prepared for: TEGA Homes 66 Colonnade Road, Suite 200 Ottawa, ON K2E 7K7 Prepared by: Lloyd Phillips & Associates Ltd. File: 1024 Planning Rationale Page 1 of 66

2 TABLE OF CONTENTS 1 EXECUTIVE SUMMARY SITE DETAILS AND CONTEXT Site Details Context PROPOSED DEVELOPMENT PROPOSED REZONING Proposed Exceptions OFFICIAL PLAN AND ZONING BY-LAW AMENDMENTS PLANNING POLICY Provincial Policy Statement, City of Ottawa Official Plan Wellington West Community Design Plan Overview Proposed Zoning for the CDP Proposed Official Plan Amendment # Proposed City of Ottawa Zoning By-law (Appealed) City of Ottawa Current Zoning By-law RATIONALE FOR REZONING Policy Review Provincial Policy Statement City of Ottawa Official Plan West Wellington Street Community Design Plan (WS CDP) City of Ottawa Design Guidelines Brownfield Policies Traffic and Transportation Servicing Environmental Remediation Pinchin Environmental Peer Review of RAP LPA File No Lloyd Phillips & Associates Ltd. June 18, 2012 Planning Rationale Page 2 of 66

3 7.5 Evolution of Development Form Proposed Design Concept Podium The Eight-Storey Building The Eighteen-Storey Building Shadowing Impact Urban Design SUMMARY AND RECOMMENDATION Planning Rationale Page 3 of 66

4 1 EXECUTIVE SUMMARY TEGA Developments Ltd (TEGA) has assembled two properties in the Parkdale Market area for a future mixed-use development. The properties at 233 Armstrong Street and 3 Hamilton Avenue (the 'Site'), are located in the Hintonburg neighbourhood located near the Parkdale market. The properties are currently used for storage, light industrial, and commercial uses (the Orange Gallery). The City of Ottawa Official Plan designation for the properties is Mixed Use Centre. The OMB approved zoning is Light Industrial, Subzone 8, Exception [104], with a maximum Floor Space Index of 2.0 and a maximum height limit of 13.5 m. The Site is also subject to Official Plan Amendment 93 and to the MC16 zoning under the West Wellington Community Design Plan (CDP). This permits an estimated 18,580 m2 of development in an eight storey height limit. OPA 93 and By-law were approved by City Council to implement the CDP. These have been appealed to the Ontario Municipal Board. There are currently two buildings on the Site. A smaller single storey building with frontage on Armstrong Street and Hamilton Avenue (233 Armstrong) and a larger multi-storey building (2-3 storeys) that has frontage on Hamilton Avenue and Spencer Street (3 Hamilton Avenue). The site is "l" shaped and has an area of m2. The proposed development is to remove the existing buildings and construct a mixed-use high-rise building with ground floor retail uses, a restaurant, some commercial office space on the second floor, and residential on the remaining floors. It would be highly representative of a live-work development, and is highly a Mixed-Use zone. The proposed development consists of a two storey podium (10.0 m height) that will contain retail uses, offices, restaurants, and live/work spaces. Above this, and stepped back, there will be a six storey residential structure that rises to 31.0 m, for a total of eight storeys. On the north west corner of the site, there is a ten storey structure that rises to 64.0 m, for a total of eighteen storeys. The parts of the structure facing Parkdale Park and Parkdale Avenue are eight storeys. The total development yield is 16,072.1 m2. The proposal will have 239 apartment units, m2 of commercial space on the ground floor, and m2 of mixed office and live/work space on the second floor. A total of 80 spaces are to be available as public parking on the first two levels and 274 parking spaces are provided for residents and others. The configuration of the proposed development has evolved significantly over the past two years. An earlier proposal for a 36 storey tower adjacent to Parkdale Avenue and a six-storey building adjacent to Hamilton Avenue was abandoned. Planning Rationale Page 4 of 66

5 The proposed development, under the proposed zoning by-law amendment is intended to respect the intent of the West Wellington CDP and the planned function of the Mixed Use Center designation of the Official Plan. The proposed development conforms to the current City of Ottawa Official Plan designation of Mixed Use Centre. The zoning of the property needs to be changed from Light Industrial to Mixed Use Centre to bring it into conformity with the Official Plan and to permit the proposed development. A zoning by-law amendment application has been submitted on behalf of TEGA and the proposed zoning is MC[XXXX] S(YYY). Mixed Use, with site specific exceptions and site specific height limits on a special map schedule. Lloyd Phillips & Associates Ltd. has been retained as the agent for the rezoning application and has prepared the Planning Rationale for the proposed Zoning Amendment. The site is a known source of groundwater contamination, with a plume that extends outwards to the surrounding streets and properties. The proposed remediation method is to excavate the site down to the equivalent of six storeys, collect and remove the contaminated groundwater and then seal the internal walls of the excavation. This can be accomplished in an estimated two-year program. This method will accomplish the early clean-up of the source of the contamination and enable other properties in the area to redevelop. The estimated cost of this remediation project is $12 million. A 50% reduction of this cost through incentives such as the City's Brownfield Program may be available. This report presents the rationale for this proposal, which is called ATTIKA at Parkdale Market, Mixed- Use Development. The following image shows the site, located at 233 Armstrong Street and 3 Hamilton Avenue. Planning Rationale Page 5 of 66

6 2 SITE DETAILS AND CONTEXT 2.1 Site Details The site is made up of two separate parcels, # 233 Armstrong Street and # 3 Hamilton Avenue North. The first property, # 233, is m2 (0.23 acres), has a frontage of m. (94.41 ft), with a depth of m. (104 ft). The legal description is Plan 157 Lots 1165 & 1163; Hamilton E, PIN This is owned by Markton Properties Limited. The second property # 3 Hamilton has an area of 1, m2 (0.436 acres), with a frontage of m (91.41 ft.), and a depth of m (208 ft.). The legal description is Plan 157, Lots 1159 & 1161; Hamilton E Lots 1156 & 1158; Parkdale W. The total site area is 2, m2 (0.67 acres). This is owned by Spencedale Properties Limited. TEGA Developments is acting as the developer on behalf of the owner. The site currently has two buildings on it. One is a single-storey red brick building of m2 (9614 sq. ft.) which is located at 233 Armstrong Street and contains the Orange Art Gallery, Foran Industries and the OMTBC Fitness Club. The building at 3 Hamilton Avenue is a multi-storey light beige painted brick and stucco building of m2 (38115 sq. ft.). This building is used as a storage facility. The north east corner, and north west corner is 3 storeys, with the section in the middle of the block being two storeys. This building takes the entire east-west frontage of the north part of the block bounded by Spencer, Planning Rationale Page 6 of 66

7 Parkdale, Armstrong and Hamilton. The Art Gallery building occupies the south west quadrant of the block facing Parkdale Park. The total existing built form on all o the site is m2 (47,729 sq. ft.). There are no street trees and setbacks are either minimal or non-existing with pavement and concrete surfaces meeting the building walls. 3 Hamilton Parkdale Market Parkdale Park 2.2 Context The site is located in the west sector of the Hintonburg community in Ward 15 - Kitchissippi. The lot and block pattern of the area remains one of small, square shaped blocks that are divided into smaller squares or subdivided into rectangular lots. The site takes up all except 25% of the block formed by the surrounding sheets and it is shaped like an inverted L. There is a mix of commercial, retail and residential land uses in the area. There is a 7-storey residential apartment building to the north across the street from # 3 Hamilton Avenue on Spencer Street. The surrounding uses are offices to the west, residential to the east and the seasonal Parkdale Market and Parkdale Park to the south. In the past, the site and the surrounding area were primarily industrial uses and this has gradually disappeared over the last thirty years. The site is located approximately 123 m north of Wellington Street, which is designated as a Traditional Mainstreet, with many mixed uses and is approximately three blocks away from Scott Street and the OC Transpo Transitway. Access to Highway 417 is two blocks south of Wellington Street via Parkdale Avenue. Planning Rationale Page 7 of 66

8 The site is well located and has many nearby amenities and multi-modal access to the rest of the City, including a pedestrian and biking trail along Scott Street. The properties are both located within the Wellington Street CDP and within the specific Parkdale Market Focus Area. There are more detailed planning directives for the Parkdale Market Area, which includes the subject properties. More on the Wellington CDP will be discussed in Section 6.3. Looking north from Wellington and Parkdale towards TEGA Site Planning Rationale Page 8 of 66

9 Intersection of Parkdale and Armstrong Looking south east into property at Spencer and Hamilton Planning Rationale Page 9 of 66

10 Looking north east into TEGA Site Looking south on Hamilton Looking at property line between 233 Armstrong and 229 Armstrong Planning Rationale Page 10 of 66

11 Looking north on Hamilton Looking east on Spencer Looking north west on Spencer Planning Rationale Page 11 of 66

12 Looking north on Hinton Looking north on Holland Planning Rationale Page 12 of 66

13 Site Context Plan Planning Rationale Page 13 of 66

14 3 PROPOSED DEVELOPMENT The proposed development is to be a mixed-use high-density residential and commercial structure. The form and massing of the structure consists of a two-storey podium that covers almost all of the property. This is surmounted by an L-shaped, six storey residential building (for a total of eight storeys) that faces Parkdale Avenue, Spencer Street, Hamilton Avenue and Armstrong Street. In the north west section of the property facing Hamilton Avenue and Spencer Street, an additional ten storey residential building (for a total of eighteen storeys) is built atop the eight storey building. The buildings remain connected for the first six storeys above the podium. For this report, the eight storey building is referred to as Building A, and the eighteen storey building is referred to as Building B. There will be m2 (17, sq. ft) of ground floor retail, including a restaurant. The second floor of the two-storey podium will be occupied by commercial office/condos and live/work lofts. The office/condos will occupy m2 ( sq. ft.) of space and the live/work lofts will occupy an area of m2 ( sq. ft.) for a total of 1534 m2 (16, sq. ft.) on the second floor. The 10-metre high podium base is setback 2.9 m on Hamilton Avenue, 1.9 m on Armstrong Street, 1.9 m on Spencer Street and 3.74 m on Parkdale Avenue. An allowance of 13 m has been made for the future widening of Parkdale. After the second level, Building A-B is setback 2.4 m from Spencer Street, and 2.4 m from Hamilton Avenue. Building A is setback m from Hamilton Avenue, 3.4 m from Armstrong Street, and 5.28 m from Parkdale Avenue. This creates a visual stepping back of the higher storeys above the podium. Building A from floor 3 to 8 will have a total of 153 residential units, Building B from floor 9 to 18 will have a total of 86 residential units. The entire development will have 239 units. The total Gross Floor Area (GFA) for the proposed development is 16,072.1 m2 (173,004.3 sq. ft.). The below grade parking is provided on six levels. The first level will have 59 spaces and there will be 21 spaces on the second level. These will be reserved for commercial parking and provide a total of 80 stalls. These are to serve as customer parking for the commercial tenants and as spaces available to the general public. Residential parking is located on parking levels two to six, with a total of 274 stalls. Each level contains unit lockers and storage facilities. This gives a total of 354 parking spaces. There will be 136 bicycle parking spaces provided on parking levels three to six. Please refer to the following plans and elevations prepared by Open Plan Architects. The entire set of plans can be found in Appendix A. Planning Rationale Page 14 of 66

15 PROPOSED ZONING DETAILS 233 ARMSTRONG STREET AND 3 HAMILTON Proposed Zone - MC [XXXX] S(YYY) Permitted Uses - all uses of the MC Zone Permitted Building Heights - as shown on proposed Schedule (YYY) - o Podium m o Eight story section m o Eighteen story section m Maximum Permitted Density - 16,200.0 m² Building Setbacks - as shown on propsed Schedule (YYY) Parking requirement for all non residential uses - none Residential amenity space is permitted on the same structure as the mechanical penthouse abouve the maximum permitted building height limit Planning Rationale Page 15 of 66

16 Planning Rationale Page 16 of 66

17 LPA File No Lloyd Phillips & Associates Ltd. June 18, 2012 Planning Rationale Page 17 of 66

18 LPA File No Lloyd Phillips & Associates Ltd. June 18, 2012 Planning Rationale Page 18 of 66 Ground Floor

19 Second Floor Planning Rationale Page 19 of 66

20 P1-P2 Parking Floor Plan Planning Rationale Page 20 of 66

21 P3-P6 Parking Floor Plan Planning Rationale Page 21 of 66

22 Planning Rationale Page 22 of 66

23 Planning Rationale Page 23 of 66

24 4 PROPOSED REZONING The proposed zoning is MC Mixed Use Centre, with site specific exceptions and height limits. The following is an excerpt of the proposed base MC zoning for 233 Armstrong and 3 Hamilton: MC MIXED-USE CENTRE ZONE (SECTIONS ) Purpose of the Zone The purpose of the MC Mixed-Use Centre Zone is to: (1) ensure that the areas designated Mixed-Use Centres in the Official Plan accommodate a combination of transit-supportive uses such as offices, secondary and post secondary schools, hotels, hospitals, large institutional buildings, community recreation and leisure centres, day care centres, retail uses, entertainment uses, service uses such as restaurants and personal service businesses, and high- and medium-density residential uses; (2) allow the permitted uses in a compact and pedestrian-oriented built form in mixed-use buildings or side by side in separate buildings; and (3) impose development standards that ensure medium to high profile development while minimizing its impact on surrounding residential areas In the MC Zone: Permitted Uses (1) The following uses are permitted subject to: (a) the provisions of subsections (2) to (4); and (b) principal use parking lots other than rapid-transit network park and ride facilities, being located at least 600 metres from a rapid transit station; amusement centre animal care establishment animal hospital apartment dwelling, low rise apartment dwelling, mid-high rise artist studio bank bank machine bar broadcasting studio cinema community centre community garden, see Part 3, Section 82 community health and resource centre convenience store court house day care diplomatic mission, see Part 3, Section 88 LPA File No Lloyd Phillips & Associates Ltd. June 18, 2012 Planning Rationale Page 24 of 66

25 drive-through facility dwelling units emergency service group home, see Part 5, Section 125 home-based business, see Part 5, Section 127 home-based day care, see Part 5, Section 129 hospital hotel instructional facility library medical facility multiple attached dwelling, see Part 5, Section 138 (By-law ) municipal service centre museum nightclub office parking garage parking lot personal service business place of assembly place of worship planned unit development, see Part 5, Section 131 post office post-secondary educational institution production studio recreational or athletic facility research and development centre residential care facility restaurant retail food store retail store retirement home retirement home, converted, see Part 5, Section 122 rooming house, rooming house, converted, see Part 5, Section 122 school service and repair shop shelter, see Part 5, Section 134 small batch brewery, see Part 3, Section 89 sports arena stacked dwelling, see Part 5, Section 138 (By-law ) technology industry theatre training centre Planning Rationale Page 25 of 66

26 Zone Provisions (2) The zone provisions are set out in Table 191 below. TABLE MC ZONE PROVISIONS I ZONING MECHANISMS (a) Minimum lot area (b) Minimum lot width (c) Minimum front yard and corner side yard setback (d) Minimum interior side yard setback (e) Minimum rear yard setback (f) Maximum floor space index (g) Minimum building height (h) Maximum building heights (i) Minimum width of landscaped area (i) abutting a lot in a residential zone II PROVISIONS No minimum No minimum 3 m (ii) abutting the rapid transit corridor 2 m (iii) other cases (i) abutting a lot in a residential zone No minimum 3 m (ii) abutting the rapid transit corridor 2 m (iii) other cases (i) rear lot line abutting a lot in a residential zone No minimum 6 m (ii) abutting the rapid transit corridor 2 m (iii) other cases (i) for all uses within 400 metres of a rapid transit station, other than a gas bar where it is permitted by an exception (ii) other cases (i) within 20 metres of a property line abutting a lot in an R1, R2, R3 or R4 residential zone (ii) between 20 metres and 30 metres of a property line abutting a lot in an R1, R2, R3 or R4 residential zone (iii) in all other cases No minimum No maximum; unless otherwise shown on the zoning map 6.7 m No minimum 11 m 20 m No maximum, or as shown by the suffix H, on a zoning map, or specified in a subzone or exception where applicable No minimum, except that where a yard is provided and not used for required driveways, aisles, parking, loading spaces or outdoor commercial patio, the whole yard must be landscaped Planning Rationale Page 26 of 66

27 4.1 Proposed Exceptions The proposed zoning will have site specific height limits on a schedule and exceptions that reflect the proposed development. These are summarized below: 1. Permitted building heights and setbacks are established on Schedule A. 2. There is no maximum number of parking spaces. 3. A commercial parking lot is only permitted on the first two levels below grade. 4. The first two storeys above grade may be occupied up to 100% of the Gross Leasable Floor Area 5. The full range of uses in the MC zone are permitted. 6. Residential amenity space is permitted in the same structure as the mechanical penthouse Schedule A Planning Rationale Page 27 of 66

28 5 OFFICIAL PLAN AND ZONING BY-LAW AMENDMENTS The proposed development is not permitted by the existing zoning, which is Light Industrial IL Subzone 8. As well, the City of Ottawa has approved a Community Design Plan (CDP) for the Wellington Street West Area. The CDP included the site within the study area. To implement the CDP, the City of Ottawa adopted Official Plan Amendment 93, and enacted Zoning Bylaw In summary, these amendments have the effect of changing the Mixed-Use Centre designation policies and the zoning to restrict the development of the site to 8 storeys. The proposed development is not permitted by these amendments. The Owners of the site, and others, have appealed OPA 93 and By-law to the Ontario Municipal Board. A hearing of these appeals started on October 15, The appeal by the owner and by others have been adjourned to a date to be determined. The Proposed Official Plan policy is to repeal the policies of the CDP as expressed in OPA 93 and to follow the policies for Mixed Use Centres as in Section of the Official Plan. The proposed zoning for this property is to repeal the MC16 zoning of the CDP as it applies to the property and to replace it and the current IL Light Industrial Zone with a new MC Mixed Use Centre Zone with site specific exceptions. The following sections will discuss the proposal in the context of the Provincial Policy Statement 2005, the Official Plan, the Zoning, and the West Wellington CDP in more detail. Planning Rationale Page 28 of 66

29 6 PLANNING POLICY This section of the report provides a review of the relevant policies to be considered. 6.1 Provincial Policy Statement, 2005 The Provincial Policy Statement 2005 (PPS) outlines the overall direction of planning for the entire Province of Ontario and generally outlines policies for the City and developments. The following sets out the relevant policies and sections with the PPS that are applicable 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, employment (including industrial, commercial and institutional uses), recreational and open space uses to meet long-term needs; c) avoiding development and land use patterns which may cause environmental or public health and safety concerns; d) promoting cost-effective development standards to minimize land consumption and servicing costs; e) improving accessibility for persons with disabilities and the elderly by removing and/or preventing land use barriers which restrict their full participation in society; and Land use patterns within settlement areas shall be based on: 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; and 3. minimize negative impacts to air quality and climate change, and promote energy efficiency in accordance with policy 1.8; and b) a range of uses and opportunities for intensification and redevelopment in accordance with the criteria in policy Planning authorities shall identify and promote opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites, and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs. Intensification and redevelopment shall be directed in accordance with the policies of Section 2: Wise Use and Management of Resources and Section 3: Protecting Public Health and Safety. Planning Rationale Page 29 of 66

30 Appropriate development standards should be promoted which facilitate intensification, redevelopment and compact form, while maintaining appropriate levels of public health and safety. Planning Rationale Page 30 of 66

31 1.7.1 Long-term economic prosperity should be supported by: a) optimizing the long-term availability and use of land, resources, infrastructure and public service facilities; b) maintaining and, where possible, enhancing the vitality and viability of downtowns and mainstreets; c) promoting the redevelopment of brownfield sites; Planning authorities shall support energy efficiency and improved air quality through land use and development patterns which: a) promote compact form and a structure of nodes and corridors; b) promote the use of public transit and other alternative transportation modes in and between residential, employment (including commercial, industrial and institutional uses) and other areas where these exist or are to be developed; c) focus major employment, commercial and other travel-intensive land uses on sites which are well served by public transit where this exists or is to be developed, or designing these to facilitate the establishment of public transit in the future; d) improve the mix of employment and housing uses to shorten commute journeys and decrease transportation congestion; and Contaminated sites shall be remediated as necessary prior to any activity on the site associated with the proposed use such that there will be no adverse effects. 6.2 City of Ottawa Official Plan The area is designated Mixed Use Centre in the Ottawa Official Plan. The purpose of the mixed use area is to create focal points of activity, strategically located near transit routes and major roads or highways. Subject Property The policies for the Mixed-Use Centre Zone are provided below. Planning Rationale Page 31 of 66

32 "Policies" 1. Mixed-Use Centres are designated on Schedule B. They are strategically located with respect to the transportation system and accessible by transit, walking, cycling and automobile. They are centered on rapid-transit stations and contain one or more arterial roads with all-day, frequent transit service. They offer substantial opportunities for new development or redevelopment and represent a key element in this Plan's strategy to accommodate and direct growth in the city. 2. Mixed-use Centres should be characterized by a broad variety of uses in accordance with policy 6a below. The City will encourage transit-supportive land uses, such as offices, secondary and post-secondary schools, hotels, hospitals, large institutional buildings, community recreation and leisure centres, daycare centres, retail uses, entertainment uses, services (such as restaurants), high- and medium-density residential uses and mixed-use development containing combinations of the foregoing. Major Urban Facilities are permitted as set out in Section Employment targets of at least 5,000 jobs (10,000 jobs in the case of Mixed-Use Centres identified by the symbol TC on Schedule B) will be accommodated. 4. A Community Design Plan will be required for each Mixed-Use Centre based on the criteria contained in this section. Development is generally permitted prior to the approval of a Community Design Plan subject to these policies. However, in the case of the Mixed-Use Centre south of Innes Road and west of Mer Bleue Road, the City will only permit development after the completion of a Community Design Plan and its adoption as a Secondary Plan by amendment to this Plan. a. The development of the Innes Snow Disposal Facility, in compliance with the policies under section 3.9 shall be permitted in advance of the Community Design Plan for this Mixed-Use Centre. [Amendment #62, 23 April 2008] 5. Community Design Plans will require that residential uses be a component in all Mixed-Use Centres. 6. All development applications and Community Design Plans for Mixed-Use Centres will be reviewed in the context of this Plan and in particular: a. Will be evaluated in the context of the Design Objectives and Principles in Section and the criteria set out in Section 4.11, particularly with regard to achieving a compact, mixed-use, transit-oriented, pedestrian-friendly environment and creating a place with visual interest; b. Will, where possible, contribute to a range of housing options in the area. 7. Mixed-Use Centres will optimize the use of land through provisions for compact mixed-use development. The zoning by-law and community design plans will: Planning Rationale Page 32 of 66

33 a. Allow for a mix of uses within a building or in adjacent buildings; b. Enable the employment targets of this Plan to be achieved; c. Provide for the highest density development such as offices to occur within 400 metres of the rapid-transit station; d. Require all development to meet the minimum target densities set out in Section 2.2.2, policy 7. Where development comprising a number of individual buildings is proposed to be built in phases, either on a single parcel of land or as one comprehensive development on a number of parcels of land, each individual phase will not be required to meet the target density where: i. the development is subject to a council approved site plan or concept plan that identifies the nature and use of each building in each phase; and ii. the site plan or concept plan demonstrates that all of the phases once completed achieve or exceed the target density. [Amendment #76, OMB File # PL100206, August 18, 2011] e. Require residential uses in the form of apartments and other multiples at a medium and/or high density; f. Provide a minimum and maximum parking requirement for development within 600 metres of a rapid-transit station, recognizing that the minimum and maximum may vary in response to the contextual influence of the geographic location of individual Mixed- Use Centres and the stage of rapid transit development; [OMB decision #2649, September 21, 2006] g. Provide for the potential for shared parking arrangements among uses that peak at different time periods; h. Allow for the potential redevelopment of surface parking areas; i. Not permit uses that require the majority of their site to be devoted to the outdoor storage, sale or service of goods to be located within 600 metres of a rapid transit station; j. Ensure that an appropriate transition between the Mixed-Use Centre and any surrounding General Urban Area occurs within the Mixed-Use Centre. 8. Mixed-Use Centres will enhance opportunities for walking, cycling and transit and in particular: a. Will have regard for the provisions of Section 4.3 regarding the potential to reduce parking requirements; b. Will be evaluated in the context of the pertinent policies in Sections and 4.3, in particular, achieving transit-oriented development by functionally integrating transit Planning Rationale Page 33 of 66

34 and the surrounding uses, enhancing accessibility to rapid transit stations, and by partnerships with the private sector to develop lands at rapid transit stations; c. Will contribute to the creation of a recognizable pedestrian circulation system that connects development with the public transit system, is barrier-free and does not conflict with vehicular movement systems; d. Will contribute to the creation of a street network that provides a convenient and pleasant walking and cycling environment which links housing, employment and the rapid transit station; e. Where parking lots exist, it is encouraged that the land use(s) they serve be intensified. [OMB decision #2649, September 21, 2006] f. If a high-density development cannot be located within 400 metres of the rapid transit station, then it should be located along an arterial road with all-day transit within the Mixed-Use Centre. 9. Mixed-Use Centres will provide opportunities, when possible, for a variety of activities by: a. Establishing usable areas of public space that support and encourage informal social activity, recreation and civic gatherings; b. Incorporating community facilities such as schools, libraries, day care centres and leisure facilities that will encourage people to remain for extended periods of time; c. Incorporating spaces for retail, entertainment activities and cultural attractions. 10. In order to demonstrate its commitment to development within Mixed-Use Centres, the City will consider them to be priority locations for considering: a. New or relocated municipal buildings and facilities which serve the public, or for leasing space for functions; b. The assembly of land to ensure an adequate supply that is strategically located for redevelopment or community improvement purposes; c. Infrastructure and public facilities improvement strategies, including measures such as those contained in policy 12 of Section 2.5.5; d. The creation of comprehensive traffic and parking strategies; e. The creation of brownfield redevelopment strategies; f. The use of techniques such as increased height and density provisions; g. The use of air rights over rapid-transit stations and other public infrastructure; Planning Rationale Page 34 of 66

35 h. The application of financial and regulatory incentives; i. Exploring partnerships between the public and private sectors. 11. Existing developments in Mixed-Use Centres that do not exhibit the characteristics planned for such areas shall be encouraged to redevelop over time in a manner that is more compact, dense, and transit-oriented. For such developments, the use of flexible zoning controls, reduced parking requirements, and other incentives may be considered on a case-by-case basis to assist in facilitating redevelopment that better meets the objectives for Mixed-Use Centres. [Amendment #28, July 13, 2005] Section Managing Growth within the Urban Area sets out the City s growth strategy and priorities. The policies include definitions of intensification for employment and residential. The definition of residential intensification includes the redevelopment of existing land use, through the creation of new units, uses or lots on previously developed land, including Brownfield sites. In terms of employment intensification, this is considered a replacing of a use with a low number of employees to that with a higher number of employees. Furthermore, in Section 2.2.2, the Official Plan identifies Target Areas for intensification. One of the included areas is Mixed-Use Centres, the designation of the subject property. The Density Target according to Figure 2.3 for the Tunney s-quad Mixed Use Centre area is presented as follows: 2006 DENSITY* MINIMUM TARGET DENSITY* DESIGNATION AT 2031 POST-2031 Mixed-Use Centre Tunney s-quad *Density calculated at people and jobs per gross hectare. Planning Rationale Page 35 of 66

36 6.3 Wellington West Community Design Plan Overview On May 25, 2011, City Council approved the Wellington West Community Design Plan (the CDP). This was the culmination of approximately three years of study. The CDP originally was focussed on two initiatives; the renewal and reconstruction of Wellington Street West, and the land use planning policies and zoning for the part of Wellington West that is designated as Traditional Mainstreet in the Official Plan. The study area had a community context area bounded by Scott Street on the north, the O-train line in the east, Highway 417 to the south and Island Park Drive in the west. The focus area of the CDP was originally both sides of Wellington Street West, between Bayview Street and part of Somerset Street in the east to Island Park Drive in the west. The study area was expanded north to include the area bounded by Parkdale Avenue, Spencer Street and Holland Avenue. This expansion included the TEGA site. The focus area was further subdivided into sub-areas. The Parkdale Park Area is the area bounded by both sides of West Wellington Street, the south east corner of West Wellington and Parkdale Avenue including the Parkdale Market, Spencer Street and Holland Avenue. Some of the "key challenges" included in the CDP for the Parkdale Park Area were: "This area needs a safe, welcoming, comfortable and functional pedestrian realm and experience for all members of the community and visitors. However existing development tends to be rear the lot line and there is little opportunity to widen the narrow sidewalks, thereby 'pinching' pedestrian space. Parkdale Park remains active, but it is surrounded by properties to the north, west and south that do little to enhance the park and regard its potential to become more attractive and wellused. To build on its success and to advance this area there needs to be a strategy for these properties to develop in a way that complements and supports park uses. Keeping a link to the community's industrial heritage, as redevelopment occurs to underutilized lots in the traditional industrial area." Some of the objectives expressed in the design vision was: "Ensure future redevelopment of blocks between Armstrong and Spencer reflect the humanscale of the surrounding Mainstreet, the Parkdale Park and adjacent residential uses. " The CDP also sets out policies for development facing onto Parkdale Park and the blocks including the TEGA site. These policies are outlined below. Planning Rationale Page 36 of 66

37 A6. Development facing onto Parkdale Park The majority of properties that face onto Parkdale Park are underutilized or vacant. They create gaps in activity and built form along Armstrong Street, Hamilton Avenue and the south edge of Parkdale Park. Future built form and uses facing Parkdale Park should create an active frontage. They should complement and improve park and market experiences, in terms of safety, sense of comfort, and attractiveness. When infill redevelopment occurs, it must provide the following: A6a. Building facades shall create a continuous built edge and must face directly onto Parkdale Park to establish a strong surrounding frame for the park and market, for example: Side-by-side building facades should not be more than 3.0m from each other regardless if located on the same or different properties to ensure no large gaps between buildings that may create a void in the block façade. Ground floor building setbacks will be a maximum of 3.0m from the property line to encourage pedestrian animation to the street, including provision of: extra patio space or sidewalk space; but not for the display or storage of goods/ merchandise, equipment, etc. A9. Heritage designation of 7 Hinton Avenue (old Capital Wire Cloth Building) The identified heritage features of 7 Hinton Avenue, as detailed in A10, will be protected and continue to allow area residents and visitors to experience the unique industrial, architectural heritage of the site and area. A11. Land use specifications in the Mixed Use Centre designation The Mixed Use Centre designated land uses will conform with the Official Plan, and include the following modifications based on the local vision, context and needs specific to this Mixed Use Centre area. Planning Rationale Page 37 of 66

38 A11a. The ground-floor space of new infill development, such as retail or restaurant space, should be designed to be adaptable, for example, providing between 170m² to 200 m² maximum of GFA per unit size. This will ensure smaller size storefronts that are more reflective of the mainstreet building format; one with proven long-term adaptability and active frontages. A 200m² maximum of GFA per unit or outlet on the ground floor applies to retail, serviceoriented commercial uses, and office uses. Additional office use would be acceptable on any floors above the ground floor. Large format retail spaces are not desirable in this area as they typically create a monotonous design. Note: 7 Hinton is not subject to this policy, given its unique heritage characteristics. A11b. Land uses will follow those permitted by a Mixed Use Centre designation, with the exception of those prohibited uses listed in the MC12 Subzone. A11c. Properties within the Mixed Use Centre Zone shall be permitted to share parking spaces on a property that meets the minimum required number of parking spaces for the existing use, but whose actual demand for parking is less than the actual number of spaces that have been created. As a result, these underutilized parking spaces could be available for use by other off-site uses, which will result in a more efficient use of those existing parking lots, while lowering the amount of on-street parking within the area Proposed Zoning for the CDP The West Wellington Community Design Plan has proposed a rezoning in the form of By-law # to amend the zoning from IL8 to MC16 - Mixed Use Centre, subzone 16. The MC-16 Zone is as follows: MC16 SUBZONE- Parkdale Park Subzone (16) In the MC16 Subzone: (a) The following uses are prohibited: amusement centre bar multiple attached dwelling nightclub parking garage parking lot Planning Rationale Page 38 of 66

39 shelter sports arena (b) (c) (d) (e) For the purposes of calculating required parking, a theatre lobby is not considered to constitute gross floor area, Parking spaces required or provided in the MC16 Subzone may be available for parking purposes to any land use located within the MC16 Subzone, Section 110 (Landscaping Provisions for Parking Lots) and Section 113 (Loading Space Rates and Provisions) do not apply., Parking spaces may be shared between uses in the MC16 Subzone, and the cumulative total of parking spaces required for those uses may be reduced from that required in Section 101 to the amount calculated using Table 192D below: i. multiply the number of parking spaces required for the land use in Section 101 above by the percentages shown in Table 192D for that use in each of the time periods, ii. repeat (a) for each of the uses, iii. for each time period add the parking space calculations for all the uses to arrive at a cumulative total, iv. the largest cumulative total for all the uses in any time period is the number of parking spaces required for those uses, v. add the total required parking spaces for all non-sharing uses to get the total required parking; In addition to the provisions outlined above, By-law also sets out a maximum height limit of eight storeys or 27.0 metres. The proposed By-law was approved by Council on June 8, This Zoning By-law Amendment has been appealed Proposed Official Plan Amendment # 93 The proposed Official Plan Amendment # 93 to implement the policies presented within the Wellington Street West CDP are outlined below as they are relevant to the proposal Introduction The Wellington Street West Secondary Plan is a guide to the long-term design and development of both the Wellington mainstreet corridor in general, and four specific areas within it, including direction on issues of: land use, built form, sidewalks, plazas and open spaces, and heritage. The Secondary Plan provides a framework for change that will see this area develop towards the vision that the community Planning Rationale Page 39 of 66

40 desires while meeting the planning objectives of the City s Official Plan. The policy directions of this plan also support the broader objectives of the Wellington Street West Community Design Plan (CDP). This Secondary Plan is to be read and interpreted as City Council s policy direction for municipal actions, particularly in the review of development proposals, zoning changes, applications to the Committee of Adjustment and the undertaking of public works. This Secondary Plan provides the legal framework that supports the Wellington Street West CDP, a joint staff-community effort to develop a vision, objectives and planning and design policies and guidelines for an attractive, vibrant and sustainable traditional mainstreet. The CDP includes detailed information on existing conditions, context, design issues, vision and the intent of policy direction that is important for interpreting and supplementing this Secondary Plan to ensure an appropriate balance of intensification and compatibility The Planning Area The Wellington Street West Secondary Plan defines the extents of the traditional mainstreet designation in the Official Plan and provides greater detail as to how the mainstreet objectives will be achieved. The Secondary Plan also includes adjacent areas bounded by Wellington Street, Holland Avenue, Parkdale Avenue, and Spencer Street that are influenced by their proximity to mainstreet. The area is described by the land uses defined in the attached Schedule A Land Use Land Use and Design Policies The following provides the policy direction for the Wellington Street West mainstreet corridor in general, as well as for the four identified key areas of the mainstreet, as described in the attached Schedule B Specific Policy Areas General Mainstreet Policies General Notwithstanding the policies of the Official Plan, the land uses for Traditional Mainstreet and Mixed-Use Centre in the Wellington West area are designated on Schedule A Land use of this Plan. Built form The maximum building height for all new buildings within the Traditional Mainstreet will be six (6) storeys or 20 metres, except where identified by the specific area policies below. The City may consider a zoning by-law amendment to those properties to increase the maximum building height to a maximum of nine (9) storeys pursuant to Section 37 of the Planning Act where one or more community benefits identified in the Community Design Plan are secured through agreement with the City and will be provided at the time of development. New buildings over four (4) storeys within the Traditional Mainstreet and Mixed-Use Centre areas shall incorporate architectural articulation and details to form a two (2) to three (3) storey base to ensure compatibility with the existing low-rise, human-scale buildings in order to be consistent with the built form vision for these areas. In order to ensure that the design of new or renovated buildings integrate into the existing building fabric of the street and maintain an urban village character, proponents shall demonstrate how the key Planning Rationale Page 40 of 66

41 elements of scale and detail from the traditional one (1) to three (3) storey buildings and the narrow lot sizes of the Wellington West corridor have been incorporated into the building design. Sidewalks and plazas In order to ensure the comfort and safety of pedestrians throughout the length of the mainstreet, additional sidewalk or plaza space for people shall be considered by City through either (i) increased building setbacks at grade with new development proposals during a Site Plan Control application, or (ii) with sidewalk widenings within the right of way at the time of alterations to road geometries by Public Works Parkdale Park Area Policies The Parkdale Park Area will emerge as the civic and commercial heart of the broader Wellington West community. Accordingly, the Wellington-Holland-Parkdale crossroads and Parkdale Park and Market mixed use area will be designed and developed with more desirable and efficient land uses and buildings, a distinguishing character, and improved comfort and safety for pedestrians. Traditional Mainstreet area Built form To encourage the redevelopment of underutilized properties at or near the intersections of Parkdale and Holland Avenues, the zoning by-law will establish a minimum building height of four (4) storeys to ensure a minimal level of intensification is achieved in this key area. The City may consider a zoning by-law amendment to the properties fronting the corners of Parkdale and Holland Avenues at Wellington Street to increase the maximum building height pursuant to Section 37 of the Planning Act where one or more community benefits identified in the Community Design Plan are secured through agreement with the City and will be provided at the time of development. Infill and/or redevelopment with buildings facing onto the south side of Parkdale Park and Market is encouraged and shall create an active frontage and extend street level pedestrian-friendly uses from Wellington Street in order to provide a strong urban frame around the park. Sidewalks and plazas The intersections at Parkdale and Holland Avenue on Wellington Street will become key activity nodes, therefore, redevelopment at these corners shall establish pedestrian-oriented, publicly accessible spaces to animate, attract and retain people. Small plazas, wider sidewalks, and/or patios shall be incorporated into the site design of new proposals. Gateway architecture and signage Architectural and other visual features shall be introduced in new developments that mark arrival at the Parkdale and Holland Avenue gateways to the Wellington Street West community. Planning Rationale Page 41 of 66

42 Mixed Use Centre area Land use The ground floor area of commercial uses proposed by new infill development shall be comparable to nearby mainstreet areas to support small-scale commercial operations and to discourage large format retail uses. Built form The maximum building height for all new buildings on Hinton and Hamilton Avenues, between Wellington and Armstrong Streets, will be six (6) storeys or 20 metres. Building height in the area bounded by Holland and Parkdale Avenues and Armstrong and Spencer Streets shall have a maximum of eight (8) storeys or 27m to provide a transition from the taller buildings near Scott Street down to the traditional mainstreet building height of Wellington Street. Notwithstanding that a portion of the building at 7 Hinton Avenue shall be protected through designation under Part IV of the Ontario Heritage Act, the entire property bounded by Spencer, Hinton, Armstrong and Hamilton shall retain its right to a developable area equivalent to a maximum building height of eight (8) storeys, as described in Policy 3.5.4, A10 of the Wellington Street West Community Design Plan. Under this policy, a transfer of density shall be permitted affording additional building height at 7 Hinton Avenue and/or to 281 Armstrong Street. It should be noted that on MAY 25, 2011 Council approved heritage designation. Buildings on these blocks will incorporate a base, body and top to ensure an attractive, pedestrianscaled building base, streetscape and appropriate street-to-height ratios of approximately 1:1, for example. Parking This Plan encourages and permits shared parking on the existing surface parking lots in the Mixed- Use Centre area, as per Schedule A, to make better use of underutilized land, prior to their redevelopment. This will ensure adequate, convenient parking for the variety of uses in the area, throughout the day Proposed City of Ottawa Zoning By-law (Appealed) Proposed changes to IL8 Light Industrial Subzone, or MC Mixed Use Centre Zone 21. All properties zoned IL8, in the study area, between Spencer and Armstrong Streets, and Holland and Parkdale Avenue 22. All properties zoned IL8 or MC, in the study area, between Spencer and Armstrong Streets, and Address Existing Zoning Proposed Zoning IL8 [16] and IL8 [104] Maximum building height: IL8 [16]: 11m, FSI 1.0 IL8 [104]: 13.5, FSI 2.0 Amend to change the existing zoning to MC16 Subzone, retaining their exception provisions, unless otherwise noted in these proposed zoning changes Maximum building height : 8- storeys or 27 m, whichever the lesser. Planning Rationale Page 42 of 66

43 Holland and Parkdale Avenue MC: 19m, FSI Properties at 7 Hinton Avenue and 281 Armstrong Street 24. All properties zoned IL8 or MC, in the study area, between Spencer and Armstrong Streets, and Holland and Parkdale Avenue 7 Hinton Avenue: IL8 [16]: 11m, FSI Armstrong Street: IL8 [104]: 13.5, FSI 2.0 IL8: Minimum Front and Corner Side Yard Setback: 3.0m Minimum Interior Side Yard and Rear Year Setback: 3.0m MC: Building setback: no minimum 7 Hinton Avenue Maximum FSI: Armstrong Street Maximum FSI: 4.7 Notwithstanding Section 22, despite the fact that the FSI is calculated based on the area of the entire lot the only areas permitted for development are Areas A and B on Schedule XX; if in one area on Schedule XX the maximum floor area permitted by the FSI is not developed or proposed for development, the difference measured on the property on at 7 Hinton Avenue may be transferred to the other Area on Schedule XX, permitting additional building height at 7 Hinton Avenue and/or to 281 Armstrong Street until the FSI of 7 Hinton has been fully exercised on either property. 281 Armstrong Street: Rear yard setback minimum (along western property line): 3m, for storeys 1 to 3 7.5m, for storeys 4 to 8 For lots on Hinton Avenue, a lot line that abuts Hinton Avenue is to be treated as the front lot line Minimum ground floor setback from façade facing a public street: 2.0m Minimum building step-back, above the 3 rd and 6 th storey, when building height is over 4 storeys: 2.0m Rear yard setback minimum: 3m, for storeys 1 to 3 7.5m, for storeys 4 to 8 For through lots, the lot lines abutting the street are considered a front lot line Planning Rationale Page 43 of 66

44 6.4 City of Ottawa Current Zoning By-law The site is currently zoned Light Industrial, Subzone 8 (Small Scale Light Industrial), with special exception 104 with a maximum Floor Space Index of 2.0 and a maximum height limit of 13.5 m. The entire IL8 [104] zone provisions can be found in Appendix B. Planning Rationale Page 44 of 66