571 Lacolle Way Planning Rationale Zoning By-law Amendment Site Plan Control November 17, 2016
Prepared By: FOTENN Consultants Inc. 223 McLeod Street Ottawa, ON K2P 0Z8 www.fotenn.com 613.730.5709
TABLE OF CONTENTS TABLE OF CONTENTS... 1 INTRODUCTION... 2 DEVELOPMENT PROPOSAL... 2 PLANNING APPLICATIONS... 4 SITE AND COMMUNITY CONTEXT... 4 SUBJECT SITE... 4 AREA CONTEXT... 5 COMMUNITY AMENITIES... 6 ROADS AND TRANSIT... 6 PLANNING AND REGULATORY FRAMEWORK...7 PROVINCIAL POLICY STATEMENT... 7 CITY OF OTTAWA OFFICIAL PLAN (2007, as amended 2013)... 8 CITY OF OTTAWA ZONING BY-LAW (2008-250)... 12 SUPPORTING STUDIES... 15 CONCLUSIONS... 15
PLANNING RATIONALE NOVEMBER 2016 2 INTRODUCTION FOTENN Consultants Inc. has been retained by Capital Auto Parts Supplier Ltd. (C.A.P.S. or the owner) to prepare a Planning Rationale in support of concurrent Zoning By-law Amendment and Site Plan Control Applications for the land municipally known as 571 Lacolle Way, Orleans. The intent of this rationale is to assess the proposed development against the applicable policy and regulatory framework, and determine if the development is appropriate for the site and compatible with adjacent development and the surrounding community. DEVELOPMENT PROPOSAL The owner is proposing to construct an addition to their existing warehousing and sales building. The proposed addition will match the height of the existing building (approximately 8 metres) while providing for new commercial space within the business park. Overall, the addition will permit the construction of three (3) new commercial units with an overall Gross Floor Area of approximately 1,000 m². Of the three (3) proposed occupancies, only one of the commercial units will include two (2) floors as shown on the building elevations. This space will be used by the owner as an accessory office to their day-to-day operations. The remaining commercial units, both approximately 250 m² in size, will be leased for similar automotive and/or light industrial uses. North and South Building Elevations The proposed building s ground floor provides three (3) separate service bays, with vehicular access from the rear (north elevations) and pedestrian access from the front (south elevation). Each new unit will also include washroom facilities for staff and patrons. The future C.A.P.S unit proposes a separate entrance to access the office uses located on the second level. With respect to parking, the Site Plan proposes a total of thirty-nine (39) surface parking spaces, including two (2) barrier-free parking spaces. The existing building includes eleven (11) parking spaces and the additional spaces will be located along the Lacolle
PLANNING RATIONALE NOVEMBER 2016 3 Way and Taylor Creek Drive frontage, with a minimum 3 metre landscaped buffer between the roadways and the enlarged parking area. The proposal also includes a secondary access/egress drive aisle located on Taylor Creek Drive. In addition to providing access to parking, this entrance will also service the rear of the building, providing access to the service bays on all three (3) of the units. Refuse collection will also be provided at the rear of the building. Site Plan With respect to the building form and materials, the form of the building is consistent with the existing C.A.P.S building, including matching the slope of the existing roofline. As shown on the building elevations, the addition will also match the existing building in terms of materials, with a combination of masonry veneer and metal siding being used on all three (3) sides of the addition. It should be noted, the client and consulting team engaged and consulted with City Staff early in the design process through extensive and collaborative consultation. In order to achieve the utmost flexibility in attracting new businesses to this site, it is important for the owner to maximize the number of parking spaces, while also providing a secondary access/egress to the site. As a result, the layout and function of the building, including the proposed parking and access/egress, has been vetted and accepted by Staff.
PLANNING RATIONALE NOVEMBER 2016 4 PLANNING APPLICATIONS In order to proceed with the development proposal as described above, a Major Zoning By-law Amendment and Site Plan Control Application have been filed concurrently. The site is currently zoned IL4 H(21) Light Industrial, Subzone 4, Maximum Building Height 21 metres, in the City s Comprehensive Zoning By-law 2008-250. Subzone 4 limits the removes automobile service station as a use and limits many uses to a maximum 300 square metres of Gross Floor Area. The Zoning By-law Amendment seeks to rezone the lands to an IL Light Industrial Zone - to permit a wider range of uses on these lands, including automobile service station, while eliminating the requirement to cap each of the conditional uses at 300 m². The following amendments are requested as part of this application: Rezone subject property from IL4 H(21) to IL [XXXX] H(21) with each use not exceeding 2,000 m² Other amendments may be identified following technical circulation and as a result of Site Plan changes. SITE AND COMMUNITY CONTEXT SUBJECT SITE The subject property consists of one (1) lot of record and is located on the northeast corner of Taylor Creek Drive and Lacolle Way in the Taylor Creek Business Centre, in Orleans. The subject property has approximately 55.6 metres of frontage along Taylor Creek Drive, 95 metres of frontage along Lacolle Way, and a total lot area of approximately 5,261 m² or 0.526 hectares. The site currently contains an existing commercial building known as C.A.P.S, or Canadian Auto Parts Supplier with associated vehicular parking. The balance of the lands are vacant and do not contain any significant vegetation.
PLANNING RATIONALE NOVEMBER 2016 5 Aerial View showing subject property and surrounding uses AREA CONTEXT The subject property is located south of Regional Road 174 in the Orleans Taylor Creek Business Centre in Ottawa s east end. The surrounding area uses vary; however, given its location within an industrial park, the uses in the direct vicinity consist primarily of light industrial uses. The following identifies the land uses that surround the site: NORTH: The lands directly north of the subject property and fronting on Taylor Creek Drive include a woodworking shop (Sébo Woodworking). Beyond this property to the north, there are several other uses typical of an industrial/business park. EAST: The lands directly east of the subject property consist of a large parcel and warehouse which accommodates Colonial Furniture and outdoor storage uses. Access to the warehouse is from Vimont Court. SOUTH: The lands to the south of the subject property and across from Lacolle Way consist of a large commercial building known as Argyle Associates. Further south and across from Blvd. St-Joseph are lands zoned Environmental Protection.
PLANNING RATIONALE NOVEMBER 2016 6 WEST: The lands directly west of the subject site and across from Taylor Creek Drive consist of the Orleans Boat World and Sports. This large property (4 acres) also includes a large storage yard for recreational vehicles. COMMUNITY AMENITIES The subject property is located within close proximity to area amenities, some of these amenities are listed below: Commercial and Business Park uses located within the Taylor Creek Enterprise Area; Several Parks and community facilities located north of Regional Road 174; Residential Areas of Avalon/Notting Gate/Fallingbrook and associated amenities; Existing cycling network along Trim Road (north-south axis); and Within close proximity to the Trim Road Station and Transitway. ROADS AND TRANSIT The subject site is well serviced with respect to the existing road network. As per Schedule E Urban Road Network in the Official Plan, Taylor Creek Drive is identified as an existing Collector Road, which is used as a principal roadway in urban areas. Trim Road and Old Montreal Road are identified as Arterial Roads, which carry large volumes of traffic over the longest distances. Lastly, Highway 174 is identified as a City Freeway, a limited access highway with high-speed traffic serving the needs for intra-city travel, similar to Provincial Highways. Schedule E : Urban Road Network
PLANNING RATIONALE NOVEMBER 2016 7 The site is within close proximity to several bus routes (local bus 122) that are within walking distance for staff and customers. More specifically, the Trim Road Rapid Transit Station is located within a 600 metre radius from the subject lands as shown on Schedule D of the City s Official Plan Rapid Transit Network. Schedule D: Rapid Transit Network PLANNING AND REGULATORY FRAMEWORK PROVINCIAL POLICY STATEMENT The Provincial Policy Statement (PPS), issued under Section 3 of the Planning Act, came into effect on April 30, 2014, and provides policy direction on matters of Provincial interest and sets the foundation for the regulation of development and land use planning. The PPS requires that decisions of municipal councils shall be consistent with policies contained in the PPS when considering any development. Generally, the PPS requires that municipal councils ensure an efficient pattern of land use, a coordinated and comprehensive approach to making land use decisions, that development is consistent with and at locations where municipal services and transportation are available, and that development contributes to the long-term economic prosperity of the municipality. The PPS provides direction on the proposed development in several ways, including: Section 1.1 (Managing and Directing Land Use to Achieve Efficient and Resilient Development and Land Use Patterns) specifies that an appropriate range and mix of residential, employment (including industrial, and commercial), and institutional, among others be accommodated to meet long-term needs and that cost-effective development standards be promoted to minimize land consumption and servicing costs. The proposed development introduces a new
PLANNING RATIONALE NOVEMBER 2016 8 type of land use, automotive repair shop among others, into the area and makes use of existing infrastructure and services. Section 1.1.3 (Settlement Areas) specifies that settlement areas are to be the focus of growth and development and their vitality and regeneration shall be promoted (1.1.3.1). According to the PPS, planning authorities should promote opportunities for intensification where they can be accommodated (1.1.3.3). The proposed development supports the intent of the PPS with respect to intensification. Section 1.3 (Employment Areas) indicates that opportunities should be provided for a diversified economic base which supports a wide range of economic activities and ancillary uses for existing and future needs (1.3.1.2). The proposed development fits the intent of the PPS in terms of providing a wide range of economic activities and uses. The proposed development meets the intent of the PPS in that it represents an opportunity to diversify the permitted uses included in an existing business park and to develop an underutilized parcel of land for the development of commercial uses that contribute to the economic diversification of the area. Further, the site takes advantage of a strategic location at existing major inter-city roads. CITY OF OTTAWA OFFICIAL PLAN (2007, as amended 2013) The subject property is designated Employment Area in the City of Ottawa s Official Plan. Employment Area lands provide for a wide range of economic activities, job opportunities and pay scales. Maintaining a sufficient supply of land for this range of activities is key to the long-term economic health of the community and its ability to attract and retain new investments. Typically, Employment Areas provide large parcel sizes, reflective of user needs for storage, parking and building floorplate, and they are usually well-situated with respect to major roads. In Employment Areas, the implementing Zoning By-law permits a variety of industrial and employment generating uses, such as warehousing and distribution, manufacturing, communications, storage, construction, office, institutional and research and development. In addition, lands designated Employment Area, through zoning, is meant to distinguish uses with characteristics that are likely to impact negatively on surrounding uses (i.e. uses that produce odours, smoke, heavy equipment movement, noise) from those uses that are likely to have negligible such impacts. The Taylor Creek Business Park is identified as a strategic Employment Area for the City due to its location in Orleans / Cumberland as well as its strategic location in proximity to Regional Road 174. Business Parks, such as the Taylor Creek Employment Area, are meant to accommodate a variety of light industrial uses, such as automotive-related uses. Additional light industrial uses and automotive-related uses within the Business Park will help to strengthen the character of the Business Park while also fulfilling the projected number of jobs and densities prescribed in the policies of the Official Plan. As such, the proposal is consistent with the policies of the Employment Area policies of the Official Plan. Employment Lands Review The City of Ottawa has recently initiated the Employment Lands Review (ELR) as part of their Planning Act obligation of updating the Official Plan through OPA 150. The Employment Lands study has examined all Employment and Enterprise Areas throughout
PLANNING RATIONALE NOVEMBER 2016 9 the City with the recommendation of removing strategic lands out of the Employment and Enterprise Areas designation and into a different designation (i.e. General Urban Area, Arterial Mainstreet). The ELR is scheduled to be considered at Planning Committee in the near future and a draft of the study was reviewed. The ELR does not propose any change to the Employment Area designation in the Taylor Creek Business Park. Schedule B: Urban Policy Plan Section 2.5.1 Urban Design and Compatibility Section 2.5.1 addresses Compatibility and Community Design, particularly as it relates to introduction of new development in established areas. New development must be sensitive to and compatible with existing communities that have developed over long periods of time. Introducing new development in existing areas that have developed over a long period of time requires a sensitive approach and a respect for a communities established characteristics. In general terms, compatible development means development that, although it is not necessarily the same as or similar to existing buildings in the vicinity, nonetheless enhances an established community and coexists with existing development without causing undue adverse impact on surrounding properties. It fits well within its physical context and works well among those functions that surround it. The proposed development achieves, among others, the following design objectives and principles set out in Section 2.5.1: 1. The proposal enhances the sense of community by creating and maintaining places with their own distinct identity. The proposed addition for automobile-related uses takes advantage of an underutilized property at a prominent location within a Business Park and can serve the immediate area given the residential character of the nearby lands.
PLANNING RATIONALE NOVEMBER 2016 10 2. To define quality public and private spaces through development Given the site is located within a Business Park, the development will minimize the exposure of inhabitants to noise levels that could adversely impact the health and wellbeing of nearby residents. Although the site is private and is not intended for public or community use, the proposed development will contribute to a more complete street frontage. There is an existing public sidewalk on Taylor Creek Drive and the applicant proposes to extend the sidewalk for a portion of Lacolle Way. 3. To create places that are safe, accessible and are easy to get to, and move through. The subject property is enclosed by roads to the west and south and additional commercial units will help to improve the safety and security of people visiting or moving through the Business Park. 4. To ensure that new development respects the character of existing areas. The architectural detail of the proposed addition will complement the existing built form and context of the existing building and also the other buildings in the Business Park. 5. To consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice. The proposal for automobile service uses helps to achieve a more compact urban form along Taylor Creek Drive and Lacolle Way, streets which have long interruptions in undeveloped lands. The design of the building and spaces will be flexible to adapt to a variety of possible uses in response to changing social, economic and technological conditions. Section 4.11 Urban Design and Compatibility The criteria in Section 4.11 provide a means to objectively evaluate the compatibility of infill development. The following is an evaluation of the criteria in relation to the proposed development. COMPATIBILITY CRITERIA Traffic CONFORMITY The proposed addition is not anticipated to generate much traffic to the site, with no impacts are anticipated on adjacent properties. The Traffic Study notes a low trip generation with negligible impacts on the study area intersections. Site access and site circulation meets all the City zoning requirements. A truck turning analysis was performed, also meeting City requirements. Vehicular Access Vehicular access will be provided from two separate entrances one from Taylor Creek Drive (proposed access/egress) and one from Lacolle Way to ensure proper vehicular access through the site including fire route access for emergency services. The locations of the access/egress driveways are sufficient to ensure a safe distance away from the main intersection and to avoid issues such as queuing vehicles.
PLANNING RATIONALE NOVEMBER 2016 11 Parking Requirements Outdoor Amenity Areas Loading Areas, Service Areas and Outdoor Storage Lighting Noise and Air Quality Sunlight and Microclimate Supporting Neighbourhood Services A total of 39 parking spaces will be provided on the site with two (2) proposed as barrier-free spaces. The proposed development does not require amenity area. The existing building includes a Loading Area which will continue to operate as it does today. The proposed drive aisle along the north property line will function as a servicing area and will include a fully enclosed garbage area. Lighting will meet the City s standards, with no anticipated impacts on adjacent development. There are no anticipated concerns with respect to noise and air quality neither to this property nor to adjacent properties. Any noise resulting from servicing of vehicles will be contained within the proposed service bays. There are no anticipated impacts in regards to sunlight and shadowing on adjacent properties as a result of this development. The subject property is located within close proximity to: Trim Road Transit Station and RR 174; Cumberland Village and Main Street Area; Rossignol Park, Taylor Park and several other parks located in the Notting Gate, Fallingbrook residential neighbourhoods; Existing cycling network; and, Several other important community facilities The proposed development meets several of the applicable policies in the City of Ottawa Official Plan, including: The proposal is consistent with the direction of the Official Plan, more specifically for the Employment Area as set out in the policies. Automobile related uses are permitted in the Employment Area subject to zoning as well as being evaluated by design and compatibility criteria in sections 2.5.1 and 4.11 in the Official Plan. The proposal meets many of the urban design and compatibility criteria outlined in Sections 2.5.1 and 4.11 of the Official Plan. Taylor Creek Business Park Building and Site Development Guidelines The Taylor Creek Business Park Guidelines, prepared for the former Municipality of Cumberland, were also considered as part of the proposed addition. The proposal meets these guidelines, including: The building will include a generous amount of brick on all three sides of the building addition; The use of metal siding will be integrated into the into the brick located along the ground level;
PLANNING RATIONALE NOVEMBER 2016 12 Mechanical and electrical equipment will also be integrated into the building and will not be free-standing in an unenclosed area; Garbage and collection areas will be screened from view; The Landscape plan was prepared by a qualified landscape architect; and The proposed coniferous and deciduous tree planting list is consistent with the recommended types of trees in the guidelines (i.e. sugar maple, white spruce, larch and Balsam firs). CITY OF OTTAWA ZONING BY-LAW (2008-250) The subject site is zoned IL4 H(21) Light Industrial, Subzone 4, Maximum Building Height 21 in the City of Ottawa Zoning By-law 2008-250. The purpose of the Light Industrial Zone is to permit a wide range of low impact light industrial uses, as well as office-type uses in a campus-like industrial park setting. Subzone 4 restricts the number of conditional uses on the subject lands, including the removal of automobile service station as a permitted use. Although Subzone 4 removes several uses, the IL uses of Section 203 (1)(a) are permitted. Zoning Map Requested Zoning and Site Plan Applications The purpose of the Major Zoning By-law Amendment is to rezone the lands from Light Industrial, Subzone 4 (IL4) to Light Industrial Zone (IL) to permit a wider range of uses, including automobile-related uses such as automobile service station. The Zoning Bylaw Amendment also requests the removal of the maximum Gross Floor Area for individual uses/occupancies. Whereas Section 203 (2)(c) states each use (can)not
PLANNING RATIONALE NOVEMBER 2016 13 exceeding 300 square metres of gross floor area, the proposed Zoning By-law Amendment requests an increase to a maximum of 2,000 m² of Gross Floor Area. Even though a large portion of the Taylor Creek Business Park is zoned IL4, several properties, including lands directly to the east (Orleans Boat World and Sports) and south (750 Taylor Creek) are zoned IL. Given the abutting context and planned function, the zoning amendment requests to extend the limits of the existing IL zone to include the subject property. The Site Plan Control application will facilitate a building addition on the vacant portion of these lands in turn allowing the development of three (3) new service bays and complementary office space. Given the owner (C.A.P.S.) intends to retain a service bay and associated second storey office, these applications will permit the current business to expand their services to their clients. It is the intent of the owner to lease the two (2) remaining service bays to similar automobile-related uses. The three service bays / occupancies range in size from 214 m² to 253 m² at the ground level. The second storey office component contained within one of the occupancies will total approximately 428 m². Although the current proposal includes a maximum GFA of 428 m², it is imperative for the owner to remove the maximum 300 m² cap for added flexibility as well as the changing needs of the market. For example, a prospective leaser could require two (2) of the service bays (+500 m²) to operate their business. Similarly, should the C.A.P.S business model continue to grow, the entire building could operate and function under one ownership (2,066 m²). As a result, removal of the GFA cap of 300 m² will allow additional flexibility for the owner and other businesses in efficiently carrying out their services at one location. It is worth reiterating the proposal meets the urban design and compatibility criteria as described in an earlier section of this report. As a result, the proposal has demonstrated there will be no undue adverse effects on neighbouring properties. The following table demonstrates how the proposed addition is in conformity with the provisions of the IL Zone. Table 203 IL Zone Provisions and Proposed Development Provisions ZONING PERFORMANCE STANDARD BY-LAW REQUIREMENT PROPOSED DEVELOPMENT CONFORMITY or Minimum Lot Area Minimum Lot Width Minimum Front Yard Setback (Taylor Creek Drive) 2,000 m² 5,257 m² No minimum 45 m 7.5 m 16.4 m
PLANNING RATIONALE NOVEMBER 2016 14 ZONING PERFORMANCE STANDARD BY-LAW REQUIREMENT PROPOSED DEVELOPMENT CONFORMITY or Minimum Interior Side Yard Setback 7.5 m 7.7 m Building Addition Minimum Corner Side Yard Setback (Lacolle Way) Minimum Rear Yard Setback Maximum Building Height Maximum Lot Coverage Minimum Width of Landscaped Area 7.5 m 24.4 m 7.5 3 m Existing condition of non-compliance 21 metres 8 m 65% 34.4% 3 m Abutting a Street 3m Minimum Parking Space Requirements Area C (Suburban) Schedule 1A Office (2.3/100m²) Office on Second Floor of Building Addition (214 m²) 5 Spaces Required Automobile Service Station (The greater of 1/100 m² or 2 per Service Bay) Addition 936 m² = 9.3 spaces 3 Service Bays = 6 spaces 9 spaces Required Existing Building (1,023 m²) Warehouse Use, with accessory sales and display area 0.8/100 m² of GFA 8.2 spaces Required Total Required = 22 spaces 39 spaces
PLANNING RATIONALE NOVEMBER 2016 15 ZONING PERFORMANCE STANDARD BY-LAW REQUIREMENT PROPOSED DEVELOPMENT CONFORMITY or Minimum Bicycle Parking Requirements Loading Space Requirements Size of Each Permitted Use Section 203(2)(c) 1 space per 1000 m 2 of GFA for Light Industrial Use Total Required = 2 spaces 1 Loading Space is required For Light Industrial Uses between 350 m² to 4,999 m² Cannot Exceed 300 m² of Gross Floor Area Total Building GFA = 2,066 m² 2 2 Existing Spaces 2,000 m² Additional amendments may be identified following staff review, technical circulation and as a result of Site Plan revisions. SUPPORTING STUDIES Several technical, reports and plans have been prepared and reviewed in support of the proposed development including servicing, stormwater management, landscaping and traffic. These technical studies and plans are included under separate cover. CONCLUSIONS The proposed development represents, in our opinion, good land use planning and reflects appropriate development for the site that is consistent with the broad policy directions of the PPS, the City of Ottawa Official Plan, and the intent of the City of Ottawa Zoning By-law 2008-250. Matthew McElligott MCIP, RPP Senior Planner FOTENN Consultants Inc.