Planning Rationale in Support of an Application for Zoning By-law Amendment

Planning Rationale in Support of an Application for Zoning By-law Amendment 505 & 573-605 Industrial Avenue City of Ottawa Prepared by: Holzman Consultants Inc. Land Development Consultants January 25, 2012

TABLE OF CONTENTS Page 1.0 Introduction 1 2.0 Site Overview & History 1 3.0 Development Concept 3 4.0 Planning Context 3 4.1 Provincial Policy Statement 3 4.2 Official Plan 4 4.2.1 Introduction 4 4.2.2 City's Growth Strategy 5 4.2.3 Infrastructure Policies 7 4.2.4 Mixed-Use Centre Policies 12 4.2.5 Compatibility and Design Policies 16 4.3 City of Ottawa Zoning By-law 20 4.3.1 Westerly Lands 20 4.3.2 Easterly Lands 24 5.0 Technical Studies 24 6.0 Planning Analysis 25 6.1 Conformity with the Provincial Policy Statement 25 6.2 Conformity with the Official Plan 25 6.3 Conformity with Comprehensive Zoning By-law 26 7.0 Summary and Conclusions 26 EXHIBITS A Air Photo (2008) B1 Existing Site Plan Westerly Lands B2 Existing Site Plan Easterly Lands C Concept Plan D City of Ottawa Official Plan - Schedule B

E City of Ottawa Official Plan - Schedule C F City of Ottawa Official Plan - Schedule D G City of Ottawa Official Plan - Schedule E H City of Ottawa Zoning By-law 2008-250

1.0 Introduction Holzman Consultants Inc. ( HCI ) has been retained by Ottawa Train Yards Inc. (the Applicant ) to prepare a planning rationale in support of an application for Zoning By-law Amendment for two additional parcels of land adjacent to the existing Ottawa Train Yards development (the Subject Property ). The Applicant is requesting a change to the current zoning to bring the Subject Property into conformity with the current zoning of the Ottawa Train Yards development. The Trainyards development was the subject of a recent application for Zoning By-law Amendment that amended the parking standards to bring them inline with other lands within the City of Ottawa zoned Mixed-Use Centre and to remove the maximum development cap that had existed since 2000. Currently the zoning of the Subject Property is not consistent with the objectives for lands within the Mixed-Use Centre designated sites within the City of Ottawa. This Planning Rational provides a review of the relevant policies in the Provincial Policy Statement, the Official Plan and the Zoning By-law of the City of Ottawa in the context of the Application as well as justification for the development proposal. The summary and conclusions indicate that there is justification for the rezoning of the Subject Property as the intentions would be consistent with Provincial Policies, conform to the City s Official Plan, and blend the Subject Property into the Ottawa Trainyards development in a seamless manner. 2.0 Site Overview & History The Subject Property consists of 2 separate parcels of land located along the north side of Industrial Avenue. The first parcel is known municipally as 505 Industrial Road and is legally described as Lot 13 & 14 on Plan 560 less Parts 1 & 2 on Plan 5R-9867 and is denoted as PIN 042560242. It is located approximately 110m west of the intersection of Trainyards Drive and Industrial Avenue. There is a single storey multi-tenanted building with +/-2,600m2 of gross floor area and surface parking/loading located north, south and west of the structure. Access currently is via a two way private approach from Industrial Avenue along the west side of the structure. A re-imaging of the exterior of the building was completed recently. This parcel is regular in shape with a frontage of 61m, a depth of 73m and a total surface area of 4,534m2 and contains no vegetation. There are approximately 26 parking spaces along the west side of the lot and 8 along the south side of the lot for a total of 34 parking spaces. The surrounding land uses include a large format shopping centre (Ottawa Trainyards) to the north and east, a mid-format retail/showroom (Fitness Depot) and warehouse industrial to the south across Industrial Avenue. 1

The second parcel of land is known municipally as 573 Industrial Avenue and 605 Industrial Avenue and is located approximately 83m east of the intersection of Trainyards Drive and Industrial Avenue. They are legally described as Lots 21-27 Plan 560. The associated PIN s are 042560237 & 042560236. There is a twostorey building located at the extreme east end of the overall parcel with surface parking located to the west side of the structure. This building is currently being demolished to make way for future development of the entire parcel. There was a building at 573 Industrial Avenue but it was recently demolished. The overall parcel is rectangular in shape and has a frontage of 213m, an average depth of 77.5m, and an area of 16,880m2 (1.69ha). Both 573 and 605 Industrial Avenue have existing private approaches from Industrial Avenue. The surrounding uses include a large format shopping centre (Ottawa Trainyards) to the north and further west, a light industrial office/warehouse use to the immediate west, a gas bar to the east, future Trainyards development further to the east, and light industrial (building material) to the south. This can be seen on Exhibit A. A mix of uses is situated along Industrial including light industrial, manufacturing and related sales, restaurants and automotive uses. Commercial office and manufacturing dominate the uses along Belfast Road. The main Ottawa Via Train Station is located immediately to the north of the Trainyards development with a number of future commercial office blocks and a new multi-storey commercial office building now under construction along the north edge of the Trainyards development. The Southeast Transitway runs along the north edge of the train station with a transit stop serving the station. Lands under the ownership of the Trainyards are located immediately west of the Wal-Mart parcel and along the north side of Terminal Avenue and are zoned for commercial office uses. Industrial Avenue is a 4 lane Collector Road without a median. It has limited sidewalks in various locations, but none in the vicinity of the subject properties. Trainyards Drive is a Collector Road that connects Belfast Road with Industrial Avenue. Both intersections have turning lanes and traffic control signals. The road has a generous 3 lane cross section with turning lanes at the major intersections (Railmarket Private and Terminal Avenue) with traffic control lights at both intersections. A sidewalk is located along the east side while a recreational pathway is located along the west side. On road cycling lanes are denoted by line painting and extra wide asphalt in both directions. For reference, Terminal Avenue is a 2 lane collector road within a fairly generous road allowance and a widened asphalt surface. This road has recently been approved as part of the alignment for the Bus Rapid Transit (BRT) route from the East Urban Community to link with the transitway system at Hurdman Station. Presently, this route is used as a convenient and direct connection for buses that travel between the Belfast/St. Laurent bus terminal and the Southwest 2

Transitway at the Hurdman Station. This will be a key linkage for the transit service between the central area of the City of Ottawa and the Orleans area. For overall context, the portion of the Trainyards development located west of Trainyards Drive contains approximately 26,000m2 of gross floor area along with 540m2 of restaurant uses north of Terminal Avenue. This can be seen on Exhibit B1 attached. The total gross leasable floor area for that entire portion is approximately 22,820m2. There are approximately 1,262 designated parking spaces as well as the parking associated with the restaurant block to the north of Terminal Avenue. These figures do not include the adjacent Wal-mart parcel but it is estimated that this parcel contains +/-15,000m2 of gross floor area. The lands east of Trainyards Drive contains approximately 17,600m2 of existing gross floor area, with the total gross leasable floor area estimated at 15,150m2. There are a total of 758 existing parking spaces at the present time. A future phase will contain 7,100m2 of gross floor area and 6,100m2 of gross leasable floor area. There will be a total of 998 designated parking spaces for the entire site if developed as per Exhibit B2 attached. 3.0 Development Concept It is anticipated that the existing structure and parking for the westerly parcel will be under the same ownership and management as the Trainyards Drive and will function somewhat in conjunction with the west Trainyards development since there is an existing vehicular circulation connection to Industrial Avenue located at the east edge of the existing building. The existing private approach along Industrial Avenue will remain in effect. The easterly parcel will be developed to blend seamlessly into the existing east Trainyards development with vehicular and pedestrian linkages joining the two parcels. This will be accomplished during the site plan control and subsequent construction phases of the development of these lands. A Concept Plan has been included to illustrate a potential development of the easterly subject lands. The Plan shows two buildings with a total of 3,430.4m2 of gross floor area and 315 parking spaces. A single new private approach is proposed along Industrial Avenue to replace the 2 existing private approaches that serve the easterly parcel. Details on the lane configuration for this new access will be determined during the site plan control stage of the process. Internal driveway connections link this phase to the existing east Trainyards development is shown, again to be confirmed during site plan control. This is illustrated on Exhibit C attached. 4.0 Planning Context 4.1 Provincial Policy Statement According to the Provincial Policy Statement ( PPS ), the vision for Ontario s land 3

use planning system is to carefully manage land to ensure appropriate development to satisfy current and future needs. In addition, land planning must promote efficient use of land and resources which are appropriate for and efficiently us the infrastructure and public service facilities which are planned or available. The range of uses should offer a mix of housing, employment, open spaces and multi-modal transportation. The PPS ultimately aims to encourage communities that are economically strong and environmentally sound and that foster social well-being. Section 1.1.3.1 of the PPS states that; Settlement areas shall be the focus of growth and their vitality and regeneration shall be promoted. The PPS defines settlement areas as urban areas (and rural settlement areas) within municipalities that are: built up areas where development is concentrated and which have a mix of land uses; and lands which have been designated in an official plan for development over the long term planning horizon. The PPS focuses growth within settlement areas and away from significant or sensitive resources and areas which may pose a risk to public health and safety. Land use patterns within settlement areas are to be based on densities and a mix of land uses which efficiently use land and resources and 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 Section 1.1.3.4 of the PPS indicates that; appropriate development standards should be promoted which facilitate intensification, redevelopment and compact form, while maintaining appropriate levels of public health and safety. 4.2 Official Plan 4.2.1 Introduction The City of Ottawa s Official Plan Volume 1 ( OP ) land use designation of the Subject Property is Mixed Use Centre on Schedule B of the OP. This is shown on Exhibit D attached. The Mixed-Use Centre designation is one of the key components of the Challenge Ahead in Section 2.1 of the OP. The following statement from that section captures the essence of the challenge. 4

Ottawa will meet the challenge of this growth by managing it in ways that support liveable communities and healthy environments. This means that growth will be directed towards key locations with a mix of housing, shopping, recreation and employment locations that are easily accessible by transit and that encourage walking because destinations are conveniently grouped together. This direction will also contribute to the needs of an aging population by enhancing accessibility to health services and community facilities. Future development, whether in new communities or in already established areas that is suited to accommodating growth, will be compact and efficient from a servicing point of view. By pursuing a mix of land uses and a compact form of development, the city will be able to support a high-quality transit service and make better use of existing roads and other infrastructure rather than building new facilities. The specific policies related to the Mixed-Use Centre designation in the following, with details discussed in Section 3.2.4 to follow: Mixed-Use Centres A number of higher-density centres with a mix of land-use activities provide a skeletal structure for the city. Town Centres in Orléans, Kanata and South Nepean are focal points for housing, jobs and commercial services outside the Greenbelt. Areas like Tunney s Pasture and Confederation Heights have developed as employment centres around the rapid-transit network. Additional development and a greater mix of uses within Mixed-Use Centres will make more effective use of rapid-transit and increase the range of services available to employees and nearby residents. Such areas should develop into dynamic centres of activity to serve wider areas of the municipality. Development in these areas can strengthen the urban structure, better balance housing and employment uses, and make transit provision more efficient. 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. Mixed-Use Centres will grow substantially, but in a way that complements the development pattern within and adjacent to them. [Amendment 28, July 13, 2005] 4.2.2 City s Growth Strategy The City s growth strategy is contained in Section 2.2.3. and emphasizes the importance of, and intensification opportunities for the Mixed-Use Centres. The relevant policies are as follows: 2.2.3 Managing Growth Within the Urban Area The projected urban population and associated land required for housing and jobs can be accommodated within the existing urban area provided: Development in greenfields occurs at densities somewhat higher than densities achieved in greenfields in the past; and Land uses intensify within existing areas of development. 5

Intensification means that the density of development, measured in households or employment per hectare, increases. Intensification occurs along a continuum, from expansion of an existing use or infill on a vacant lot, right up to large-scale redevelopment of an area such as Rockcliffe Airbase. Within the designated urban area, growth will be directed to locations with significant development potential, specifically those designated as Central Area, Mixed-Use Centres, Employment Areas, Enterprise Areas, Developing Communities and Mainstreets. These areas include locations that are centred on the rapid-transit network, major roads, busy commercial streets, and large tracts of vacant land. The relevant policies are found in Section 2.2.3 Managing Growth Within the Urban Area as follows: Policies 1. All intensification of land uses will occur in accordance with the criteria set out in Section 2.5.1. Where the zoning by-law permits the intensity of use, the focus will be on the design and the extent to which the design can contribute to compatibility. Where a zoning by-law amendment is required, the appropriateness of the scale of development will be evaluated along with the design and its compatibility. 2. Most new urban development is directed to Developing Communities, Mixed- Use Centres, Mainstreets, Employment Areas, Enterprise Areas and the Central Area. Policies specific to each of these designations are found in Section 3 of this Plan. 3. The City supports intensification and infill development throughout the urban area, including areas designated General Urban Area. The City will promote opportunities for intensification and infill in the following cases, provided that all other policies in the Plan are met: a. Lands within 600 metres of future or existing rapid-transit stations with potential to develop as compact, mixed-use and pedestrian-friendly cores; b. Lands that are no longer viable for the purpose for which they were intended, such as older industrial areas, exhausted quarries, or abandoned transportation corridors that are not planned for open space or designated as Recreational Pathways, but does not include lands designated as Employment Area or Enterprise Area where the proposal for intensification or infill would introduce uses not otherwise permitted by this Plan; (School sites are generally not included in this category and will be treated on a site-specific basis); [OMB decision #2649, September 21, 2006] c. Lands where the present use is maintained but the addition of residential uses or other uses can be accomplished in a complementary manner, such as on under-utilized shopping centre sites; d. Lands currently or formerly used as parking lots or other extensive 6

storage purposes; e. Lands where records indicate existing contamination due to previous commercial or industrial use, but which can be made suitable for development if cleaned up. 4. To promote compact, mixed-use development, the City will: a. Investigate financial incentives for residential development within mixed-use projects; b. Strategically review the use of municipally-owned lands, except land zoned for environmental or leisure uses, to facilitate compact and mixed-use development; c. Consider how to reduce the amount of land used for parking, through such measures as reductions in parking standards and the creation of municipal parking structures; d. Partner with others in building commercial and residential development over transit stations, municipal parking structures, and municipal offices and facilities; e. Negotiate an increase in building density in exchange for developing municipal facilities, transit stations, and public cultural facilities. 4.2.3 Infrastructure Policies The key attributes of the Subject Property that provide significant opportunities for this desired intensification are associated with the existing infrastructure, particularly the transportation related facilities surrounding the site. Exhibit E is an excerpt form Schedule C of the OP and illustrates that the Subject Property, as combined with the Trainyards development, is located along an existing Onroad Cycling Route. This facility provides an important linkage for commuting and recreational cyclists between existing Off-road Cycling Route from the south to other On-road Cycling Route to the north along Belfast Road and Terminal Road and along Coronation Street south of Industrial Avenue. The relevant OP policies are stated below. 2.3.1 Transportation A transportation system should emphasize both mobility and accessibility. Emphasizing mobility means providing the transportation facilities (roads, bus routes, etc.) to get people from one part of Ottawa to their destinations in other areas, no matter the distances involved. In contrast, emphasizing accessibility means planning the city to bring people closer to their destinations and making it easier for people to reach jobs, services, education and recreation. [OMB decision #1582, June 17, 2005] Accessibility also means increasing the range of options open to people who need to travel within the city. Some residents of Ottawa already have access to quality transit, walking and biking facilities, but these transportation options need to be extended to other areas of the city. 7

This Plan encourages land-use patterns that reduce the need to travel great distances across the city and encourage alternatives to car travel. More compact and mixed-use development throughout developing areas of the city and a stronger series of urban centres to anchor the transit system is essential to achieving the Plan s transportation goals. [OMB decision #1582, June 17, 2005] The rapid-transit system will also be expanded to directly serve much more of the urban area. Complementary measures will also be needed to enhance the relative attractiveness of transit over private automobile use. These measures include controlling parking supply and pricing parking appropriately. City Council has adopted a Transportation Master Plan (TMP) to implement the policies expressed in this Plan. The TMP identifies the transportation policies, facilities and services that the City intends to put in place over the next two decades in order to meet the travel needs of residents and businesses in Ottawa and to support the development pattern identified in the Official Plan. The relevant policy related to the provision of transit service is found in Section 2.3.1 of the OP and states the following; and, Transit 19. The City will protect corridors for and develop the rapid-transit network and transit-priority network as shown on Schedule D. Rapid transit means a convenient, fast, and frequent public transportation service that features a high carrying capacity. Rapid transit operates on its own right-of-way, as a separate system or in shared corridors, and is not delayed in general traffic. The rapidtransit network consists of an interconnecting system of existing and planned rights-of-way and corridors in which a rapid-transit facility, such as a transitway, O-Train, or streetcar, may be located. A transit-priority network is a system of primarily arterial roads upon which transit-priority measures may be implemented to improve the quality of transit service in terms of speed and reliability. Specific segments of the transit-priority network may represent the interim stage in the long-term development of a rapid-transit network. 25. In addition to the provision of excellent pedestrian and cycling access to transit stations, the City will ensure, where feasible, the provision of separate multi-use pathways in or adjacent to rapid-transit corridors. In terms of policies for the provision of adequate parking for all uses, the following policy found in Section 2.3.1 of the OP is relevant; Parking 42. The City maintains the following strategic objectives related to parking: a. To provide short-term parking that supports the vital interests of local 8

businesses, institutions and tourism destinations; b. To limit the supply of long-term parking to levels that balance the needs of automobile users with the City s transit ridership objectives, while minimizing spill-over parking in residential areas; c. To minimize the amount of land devoted to parking uses through shared parking arrangements and the use of parking structures. [OMB decision #1582, June 17, 2005] 43. The City will develop a Parking Management Strategy by the end of 2006, which will: a. Support the City s strategic parking objectives outlined above; [OMB decision #1582, June 17, 2005] b. Establish centralized parking lots within a reasonable walking distance of multiple destinations, where required; c. Account for potential changes to the current supply through redevelopment of existing lots; d. Investigate new technologies for payment, enforcement and user information; e. Provide an adequate supply of bicycle parking; f. Address the needs of the tourism industry. g. In consultation with community associations, local businesses and other interested parties, the City will review current policies regarding residential onstreet parking permits and consider options to balance the needs of the community, businesses, and others; [OMB decision #1582, June 17, 2005] h. Investigate means to incorporate reduced parking requirements for longterm parking into its zoning by-law, where specific criteria are satisfied that contribute to walking, cycling and transit use. [OMB decision #1582, June 17, 2005] 44. The City will update, as appropriate, the City s cash-in-lieu of parking policy to ensure fair and equitable application across the city. This policy permits entering into agreements with an applicant to reduce or eliminate the provision of on-site parking otherwise required by the zoning by-law, subject to the payment of money to the City. 45. As a condition of development application approval, the City will apply further policies for parking lots as outlined in Section 4.3. The Subject Property is located adjacent to and well served by an existing 9

Arterial Roadway (Industrial Road). This is illustrated on Exhibit G which is Schedule E from the OP. This existing roadway system provides excellent private and public vehicles access to and from the site. The specific policies related to road network and transportation issues are found in Section 4.3 of the OP; 1. The road network in new plans of subdivision will provide the opportunity for direct transit routes through the community and for all buildings to be within 400 metres walking distance of a transit stop. [OMB decision #2649, September 21, 2006] 2. The road network in new plans of subdivisions, particularly in Villages, will be designed to accommodate the potential future extension of the road system to adjacent properties, including those lands beyond an existing urban or village boundary. [Amendment #76, June 24, 2009] 3. To promote increased transit usage, private and/or public proponents of any development or redevelopment within 600 metres of a transit station or major transit stop along the primary transit network shown on Schedule D will: a. Ensure that convenient and direct access between the proposed development and the transit station is provided or maintained; rapidtransit stations and where possible, transit stops are integrated into the development; and that in such cases, extended hours of public access through the buildings and quality linkages from stations and building entrances to sidewalks on nearby streets are provided; b. Locate any proposed high-density employment and residential development close to transit stations; c. Provide a pedestrian-friendly, weather-protected (where possible) environment between the access point(s) of the rapid-transit station or major transit stop and the principal entrances to adjacent buildings; d. Minimize walking distances from buildings to stations/major transit stops; e. Provide adequate, secure and highly visible bicycle parking at rapidtransit stations/major transit stops. 4. The City may reduce parking requirements for uses located within 600 metres of a rapid-transit station and for uses where the need for on-site parking can be balanced with efforts to reduce reliance on the automobile. The City may use the zoning by-law and cash-in-lieu of parking agreements as tools to reduce parking requirements. Furthermore, as referenced in Policy 44 of Section 2.3.1, the zoning by-law may establish maximum parking requirements that would apply to development within 600 metres of a rapid transit station/service. [Amendment #76, June 24, 2009] 5. City will require a transportation impact study to be submitted where the City determines that the development may have an impact on the transportation network in the surrounding area. The transportation impact study will be undertaken in accordance with the City of Ottawa Transportation Impact 10

Study Guidelines. The scope of the study will vary depending on the nature of the development. Under most circumstances, a study will not be required for minor infill development in areas where the road network is fully established. The transportation impact study will, in general: a. For the lands to be developed and the surrounding community, identify the required road, parking, transit, pedestrian, and cycling facilities necessary to support the proposed development, referencing the required timing or staging of such. It will also identify and address potential impacts on the local neighbourhood that would occur as a consequence of these required facilities; b. Determine the method and means by which the development, as well as adjacent areas, can be efficiently and effectively serviced by transit; c. Utilize the policies of this Plan as well as any applicable City design guidelines and/or practices when developing recommended modifications to transportation infrastructure; d. Assess the impact of development traffic on the capacity of adjacent and nearby roads, accounting for the anticipated growth in levels of background traffic; e. Take into account both the influence of anticipated future development in the surrounding area, as well as any planned infrastructure modification, e.g., future roads, road widenings; f. Concurrent with the need for a transportation impact study, there may be a requirement to undertake a noise study as outlined in Section 4.8, Protection of Health and Safety. 6. The City will require that parking for bicycles be provided in highly visible and lighted areas, sheltered from the weather wherever possible. The zoning bylaw will set standards and regulations for land uses that normally generate demand for bicycle parking. 7. The City will require that parking areas for motorized vehicles be screened from the street with low shrubs, trees, landscaped berms, decorative walls and fences. 8. Where large areas of surface parking are required, they will be designed to: a. Avoid one extensive parking area and instead have several smallersized parking areas defined by circulation patterns, landscaping, lighting, and other elements; b. Ensure that the layout of the parking lots and adjacent buildings will be such that public roads may be defined in the future as part of more intensive redevelopment of the site. 10. The City will ensure that sidewalks and crosswalks are made of smooth, welldrained walking surfaces of contrasting materials or treatments to differentiate the pedestrian areas from vehicle areas and provide marked pedestrian crosswalks at intersection sidewalks. In addition, sidewalks and open space areas will be easily accessible through such features as gradual grade transitions, depressed curbs at street corners and convenient access 11

to extra-wide parking spaces and ramps. 11. The City will ensure that new developments are linked to the existing or planned network of public sidewalks, recreational pathways and on-road cycle routes, which connect parks and other open spaces, transit stations and transit stops, and community services and facilities. Where public sidewalks and recreational pathways intersect with roads, consideration will be given to providing traffic control devices to give priority to cyclists and pedestrians. 12. At main entrances to buildings the City will require safe, direct and attractive pedestrian access from public sidewalks through such measures as: a. Reduction of distances between public sidewalks and major building entrances; b. Provision of pedestrian walkways from public streets to major building entrances; c. Within individual sites, on-site pedestrian walkways along the front of adjoining buildings, between adjacent buildings, and connecting areas where people may congregate, such as courtyards and transit stops; d. Wherever possible, protection from the weather is provided through canopies, colonnades, and other design elements. [OMB decision #2649, September 21, 2006] The subject property, when combined with the Trainyards development, is within 600 metres form an Existing Rapid Transit Infrastructure (Bus Transitway). This is illustrated on Exhibit F, which is an excerpt from Schedule D of the OP. There is an associated Train Transit Station just north of Terminal Avenue and west known as the Hurdman Station. There will be a direct connection to the Train Transit Station through imposed conditions of development approval for an adjacent project. The City of Ottawa recently approved the use of the Terminal Avenue road allowance for use as part of the Hospital Lands/Hurdman/Cumberland Transitway linkage connecting the Orleans South community to the urban transit system. This linkage will provide a connection to the Hurdman Station that is part of the Southeast Transitway route that extends to the Central Area as well as to other areas of the City. The detailed design is still to be undertaken but this important infrastructure when built will further enhance the Trainyards location as a vibrant Mixed-Use Centre. In addition to the major infrastructure associated with the transitway program, local OC Transpo service runs along the surrounding roads and on Industrial Avenue and along Trainyards Drive that runs adjacent to the subject property. 4.2.4 Mixed-Use Centre Policies The Mixed-Use Centre designation is one of the key designations within the City as emphasized in the growth management strategy section of the OP. The 12

purpose and objectives associated with this designation are described as follows: 3.6.2 Mixed-Use Centres The Mixed-Use Centre designation in this Plan applies to areas that have been identified as strategic locations on the rapid-transit network and lie adjacent to major roads. They act as focal points of activity, both within their respective communities and within the larger municipal structure. Mixed-Use Centres constitute a critical element in the City's growth management strategy, being areas with high potential to achieve compact and mixed-use development. They are limited in number and represent opportunities for substantial growth. In some cases, development centered on a rapid-transit station will require ambitious reconfigurations of the station lands in order to facilitate options for intensification - for example, the use of air rights over grade-separated infrastructure at Hurdman or Cyrville stations. Certain Mixed-Use Centres, such as Tunney's Pasture and Confederation Heights, are centered on concentrations of employment and these concentrations are likely to continue. However, the area that functions as a Mixed-Use Centre extends beyond the limits of these concentrations. Mixed-Use Centres will ultimately develop as "good places" in their own right as components of complete neighbourhoods. They should contain development that is both locally and regionally oriented. Where a concentration of single-use activity occurs, the interface with the surrounding community should be improved through such means as the addition of community-serving uses and improved physical linkages. Development at Mixed-Use Centres will take advantage of the opportunities offered by transit for both internal and external commuting and ease of access on foot and by bicycle. By virtue of careful attention to design, orientation and a mix of uses, development in Mixed-Use Centres will contribute to the diversity of land use in the immediate area and foster the creation of vibrant centres of activity, particularly within the urban area outside the Greenbelt. This Plan establishes minimum targets for employment in Mixed-Use Centres. It is the intent of this Plan that intensification continue to focus on nodes and corridors (Mixed-Use Centres and Mainstreets) to support the public transit system, to create an essential community focus, to allow for minimum travel and to minimize disruption in existing stable neighbourhoods. The associated policies are found in Section 3.6.2 as follows; 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 13

in accordance with policy 6a below. The City will encourage transitsupportive 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 3.6.7. 3. 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 2.5.1 and the criteria set out in Section 4.11, particularly with regard to achieving a compact, mixeduse, 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: 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 residential uses in the form of apartments and other multiples at a medium and/or high density; 14

e. 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] f. Provide for the potential for shared parking arrangements among uses that peak at different time periods; g. Allow for the potential redevelopment of surface parking areas; h. 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; i. 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 2.3.1 and 4.3, in particular, achieving transit-oriented development by functionally integrating transit 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 15

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; 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. 4.2.5 Compatibility and Design Policies Having placed a high level of importance of generating the most optimistic development in Mixed-Use Centres, the City also requires that all new development within the urban area is subject to specific design criteria. Section 2.5.1 referred to above in Section 3.6.2.6 a. contains the following key introductory statement; Compatibility The City's growth management strategy includes intensification of development in the urban area over the next 20 years and concentrating rural development in Villages. Introducing new development in existing areas that have developed over a long period of time requires a sensitive approach to differences between the new development and the established area. This Plan provides guidance on measures that will mitigate these differences and help achieve compatibility of form and function. Allowing for some flexibility and variation that complements the character of existing communities is central to successful intensification. 16

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. Generally speaking, the more a new development can incorporate the common characteristics of its setting in its design, the more compatible it will be. Nevertheless, a development can be designed to fit and work well in a certain existing context without being the same as the existing development. Where a new vision for an area is established through a Community Design Plan or other similar Council-approved planning exercise, addressing compatibility will permit development to evolve toward the achievement of that vision while respecting overall community character. Objective criteria can be used to evaluate compatibility and these are set out in Section 4.11. Development applications and proposals for public works will be evaluated in the context of this section. Section 4.11 sets out policies that must be respected when the municipality is reviewing a development application. The following are the relevant introductory remarks from this section; At the city-wide scale, issues of compatibility are addressed in the Official Plan through the appropriate designation of land and associated policies that direct where and how certain categories of land use should be permitted to develop. Locational policies are therefore required in order to direct uses that have the potential to generate negative impacts to appropriate locations, most typically at the periphery of residential neighbourhoods. It is recognized that because land use designations such as General Urban Area, Mainstreets and Employment Area contain broad use permissions, it will be necessary for the zoning by-law to establish more specific permitted use lists and development regulations within areas and on individual sites in a manner that achieves compatibility among proximate uses and built forms. At the scale of neighbourhoods or individual properties, issues such as noise, spillover of light, accommodation of parking and access, shadowing, and microclimatic conditions are prominent considerations when assessing the relationships between new and existing development. Often, to arrive at compatibility of scale and use will demand a careful design response, one that appropriately addresses the impact generated by infill or intensification. Consequently, the issue of context is a dominant theme of this Plan where it speaks to compatibility and design. Infill development may occur virtually anywhere in the city. Infill generally occurs on a single lot or a consolidated number of small lots, on sites that are vacant or underdeveloped. The resulting development may be similar in use and size with adjacent uses, in which case it is generally straightforward to design the infill to be compatible with-or fit well with-its surroundings. Although the Mixed-Use Centre designation is not specifically listed above as a 17

land use that contains these broad land use permissions, it is our view that the intention of City Council is to have these policies apply to this designation as well. The following is a review of the criteria for compatibility set out in Section 4.11: Policy Traffic: Roads should adequately serve the development, with sufficient capacity to accommodate the anticipated traffic generated; Vehicular Access: The location and orientation of vehicle access and egress should address matters such as the impact of noise, headlight glare and loss of privacy on development adjacent or immediately opposite; Parking Requirements: The development should have adequate on-site parking to minimize the potential for spillover parking on adjacent areas; Building Height and Massing: New buildings should have regard to the area context the massing and height of adjacent buildings, and planned function for the area; Outdoor Amenity Areas: The development should respect the outdoor amenity areas of adjacent residential units and minimize any undesirable impacts through the sitting and design of the buildings and the use of screening, lighting, landscaping are other mitigative design measures; Loading Areas, Service Areas, Outdoor Storage: The operational characteristics and visual appearance of loading facilities, service areas, parking and areas used for outdoor storage should be mitigated; Impact Based on the traffic studies undertaken for other Trainyards developments, the surrounding roads have available capacity to accommodate the anticipated traffic from any development of the subject property. There will be no issues with the vehicle access and egress and will be confirmed during the site plan control process. The technical report for the adjacent Trainyards indicated that the standard parking rate is appropriate for the subject lands, and is consistent with similar sites across the City of Ottawa. Any redevelopment will address this design issue during the site plan control process. This is a non-issue for the subject lands. Will be suitably addressed through all site plan control applications. 18

Lighting: The potential for light spillover or glare from any lighting source onto adjacent light sensitive areas should be avoided or mitigated; Noise and Air Quality: The development should be located and designed to minimize the potential for significant adverse effects on adjacent sensitive uses related to noise, odours, and other emissions; Sunlight: the development should minimize shadowing on adjacent properties, to the extent practicable, particularly on outdoor amenity areas, through the sitting of buildings or other design measures; Microclimate: The development should be designed to minimize adverse effects related to wind, snow drifting, and temperature on adjacent properties; Supporting Neighbourhood Services: The development should contribute to or be adequately served by existing or proposed services and amenities such as health facilities, schools, parks and leisure areas. Will be suitably addressed through all site plan control applications. Will be suitably addressed through all site plan control applications. This is a non-issue for the subject lands. This will be suitably addressed through all site plan control applications. This is a non-issue for non-residential development on the subject property. Each of these criteria would be further addressed through any subsequent formal application for development, through the City s Site Plan Control Bylaw provisions and review practices to ensure that careful site planning is compatible with and complementary to the existing on-site and off-site developments. Policy 4.7.1 of the Official Plan indicates that; Subdivisions, major site plans and major rezoning applications must be accompanied by an integrated environmental review statement that shall: Considers the significant findings from individual support studies, such as tree preservation and protection plans, environmental impact statements, stormwater management plans, and Environmental Site Assessments; Explains how the development design complies with the environmental policies contained in Section 4 (Review of Development Applications) of the OP and how the principles of design with nature have been applied. 19

4.3 City of Ottawa Zoning By-law 4.3.1 Westerly Lands The westerly portion of the Subject Property located at 505 Industrial Avenue is currently zoned IG3 under the City s Comprehensive Zoning By-law 2008-250. This is a General Industrial Subzone. This is shown on Exhibit H which is an excerpt from the Zoning By-law mapping. Prior to 2008, the lands were zoned IG F(1.0). The IG Zone was introduced under the former City of Ottawa s Comprehensive Zoning Bylaw 93-99. This was consistent with the Official Plan designation of the former Region of Ottawa Carleton which was Business Park and identified as one of the Secondary Employment Areas in the City, and the Official Plan Amendment designation in the City s Official Plan at that time, that being Traditional Industrial Area. In 2008, this zoning was simply rolled over into the Comprehensive Zoning Bylaw introduced at that time with the prohibition of certain conditional uses under the subzone 3. The stated purpose of the General Industrial zoning is to; (1) permit a wide range of low to moderate impact, light industrial uses in accordance with the Employment Area designation of the Official Plan or, the General Urban Area designation where applicable; (2) allow in certain Employment Areas or General Urban Areas, a variety of complementary uses such as recreational, health and fitness uses and service commercial (e.g. convenience store, personal service business, restaurant, automobile service station and gas bar), occupying small sites as individual occupancies or in groupings as part of a small plaza, to serve the employees of the Employment or General Urban Area, the general public in the immediate vicinity, and passing traffic; (3) prohibit retail uses in areas designated as Employment Area but allow limited sample and showroom space that is secondary and subordinate to the primary use of buildings for the manufacturing or warehousing of the product; and (4) provide development standards that would ensure that the industrial uses would not impact on the adjacent non-industrial areas. The permitted land uses in the IG3 zone contains a fairly extensive list of industrial type uses. The permitted uses are as follows: animal hospital automobile body shop broadcasting studio catering establishment crematorium day care drive-through facility 20

emergency service garden nursery heavy equipment and vehicle sales, rental and servicing kennel leaf and yard waste composting facility light industrial uses medical facility office park parking garage parking lot place of assembly printing plant production studio research and development centre service and repair shop small batch brewery storage yard technology industry training centre truck transport terminal warehouse waste processing and transfer facility There are other conditional uses permitted subject to the following criteria; The cumulative total gross floor area for these uses not exceeding 2,999m 2, and each use not exceeding 300 m 2 of gross floor area; automobile service station bank car wash convenience store gas bar instructional facility personal service business restaurant The performance standards include the following provisions from Table 119 with the relevant provisions are underlined; ZONING MECHANISMS II PROVISIONS (a) Minimum lot area 1,000 m 2 (b) Minimum lot width (c) Maximum lot coverage 65% No minimum 21

(d) Minimum front yard and corner side yard (e) Minimum interior side yard (f) Minimum rear yard (i) for uses listed in subsection 199(1) abutting a residential or institutional zone (ii) all other cases (i) for uses listed in subsection 199(1) abutting a residential or institutional zone (ii) all other cases (g) Maximum floor space index (h) Maximum building height (i) Minimum width of landscaped area (i) within 20 metres of a property line abutting a residential zone (ii) in all other cases (i) abutting a residential or institutional zone (ii) abutting a street (iii) in all other cases 3 m 15 m 3 m 15 m 3 m 2, unless otherwise shown on the zoning maps 11 m 22 m, unless otherwise shown on the zoning maps or schedules 3 m 3 m No minimum Parking requirements for current and some of the typical uses are based on the following provisions taken from Table 101; (bn) Light Industrial Use (bx) Office (de) Warehouse (i) Within 600 metres of a rapid transit station (see Sections 101(4) and 101(5)) (ii) Other cases 0.5 per 100m 2 of gross floor area 0.75 per 100m 2 of gross floor area 0.5 per 100m 2 of gross floor area 0.8 per 100m 2 of gross floor area 1.8 per 100m 2 of gross floor area 2 per 100m 2 of gross floor area 2.3 per 100m 2 of gross floor area 2.4 per 100m 2 of gross floor area 0.8 per 100m 2 of gross floor area 22

Loading requirements are based on the following provisions taken from Table 113A and related to any individual uses within the building; I Land Use (a) Heavy industrial use, light industrial use, truck transport terminal, warehouse, hospital, museum, place of worship, post secondary educational institution, school, sports arena, theatre (b) Office, research and development centre, except in the TM Zone (see 113(4) above) (c) Retail food store, retail store, shopping centre, except in the TM Zone (see 113(4) above) (d) All other non-residential uses, except in the TM Zone (see 113(4) above) II Less than 350 m 2 Minimum Number of Vehicle Loading Spaces Required per Square Metres of Gross Floor Area III 350-999 m 2 IV 1000-1999 m 2 V 2000-4999 m 2 VI 5000-9999 m 2 VII 10000-14999 m 2 0 1 2 3 0 1 2 0 1 2 0 1 2 VIII 15000-24999 m 2 IX 25000 m 2 and over 23

Landscaping provisions are taken from Table 110 and are as follows; I Location of Landscaped Buffer (a) Abutting a street (b) Not abutting a street Minimum Required Width of Landscaped Buffer II For a parking lot containing 10 or fewer spaces 3 metres III For a parking lot containing more than 10 but fewer than 100 spaces None 1.5 metres 3 metres IV For a parking lot containing 100 or more spaces Since the subject lands were developed prior to the establishment of Bylaw 2008-250, it is assumed that the site enjoys legal non-complying rights as is. 4.3.2 Easterly Lands The westerly portion of the Subject Property located at 573-605 Industrial Avenue is currently zoned IG3 under the City s Comprehensive Zoning By-law 2008-250. This is a General Industrial Subzone. This is shown on Exhibit H which is an excerpt from the Zoning By-law mapping. The same provisions apply to this site as apply to the westerly lands and thus no additional detail has been provided. The existing building was developed prior to the adoption of Bylaw 2008-250 and thus would likely be considered as legal non-conforming. However, if it is demolished, any new development would have to conform to the current bylaw. In summary, the current zoning for both parcels was intended to implement the Official Plan policies that were in force in 2000 for individual sites and is not appropriate for the current Official Plan designation and policies within the OP. Both parcels of land would be consolidated into the existing Trainyards development to the north such that the same zoning MC7[1387] should be considered as appropriate. 5.0 Technical Studies Technical studies are underway for the subject lands and consistent with other similar applications for Trainyards developments, they will be submitted as part of the required site plan control/building permit applications for the Subject Property. With the proposition that a holding provision would be attached to the zoning bylaw amendment, the studies will have to be submitted by the Owner and approved prior to each site plan control application before the holding is lifted. 24

6.0 Planning Analysis 6.1 Conformity with the Provincial Policy Statement The Subject Property is within a Settlement Area as defined in the PPS. Settlement Area s are intended for the concentration of more intensive land uses within the Province of Ontario. Built up areas are intended to accommodate growth based on densities and a mix of land uses which effectively use land and resources, and are appropriate for, and efficiently use, the infrastructure which are planned or available. Furthermore, the PPS indicates that appropriate development standards should be promoted which facilitate intensification. The change in zoning to that which is enjoyed by the adjacent Trainyards development would fulfill the policies as they promote the efficient and more intensive lands uses for serviced lands within Settlements Areas that are well served by existing and planned infrastructure. 6.2 Conformity with the Official Plan The Official Plan strives to direct significant growth to areas that are located at key areas of the City. The Mixed-Use Centre designation of the Subject Property is such an area. The key policies related to the City s growth management strategy are found in Sections 2.1, 2.2.3.3 and 2.2.3.4.c. The City s transportation policies that support the intended zoning amendment for the subject lands are found in Section 2.3.1, specifically 2.3.1. The specific policies related to the road pattern and transportation issues are highlighted in Section 4.3.3 and 4.3.4. The location along an Existing Rapid Transit Infrastructure when developed in conjunction with the adjacent Trainyards development, as shown on Exhibit F is significant when considering offering an opportunity for more intensive development on both parcels of land. The recent approval for the use of Terminal Avenue as the selected route for the Hospital Lands/Hurdman/Cumberland Transitway Linkage as part of the Transportation Master Plan provides for the planned infrastructure to augment the existing transportation infrastructure the currently serves the Subject Property. The specific policies associated with the Mixed-Use Centre designation of the Subject Property promote the intensification of development and related parking standards associated with this designation. Particular policies are found in Section 3.6.2.1, 3.6.2.3, and 3.6.2.7. 25

All development applications must be evaluated in terms of compatibility (Section 4.1 of the OP) and community design (Section 2.5.1 of the OP). The previous discussion illustrated how the intended development potential can be achieved with regard to these policies. 6.3 Conformity with Comprehensive Zoning By-law An amendment to the Zoning By-law is required for the Subject Property to a zoning that is consistent with the adjacent Trainyards development with the MC7[1387] zoning. The present zoning for both parcels is inconsistent with the Official Plan policies and is thus inappropriate. The current provisions are not adequate for the integration of the Subject Properties into the Trainyards development as they possess setbacks that do not reflect the design within a Mixed-use Centre designation and the type of uses that are more vibrant and provide more variety and mix of uses. The limit of 65% lot coverage is not consistent with the Mixed- Use Centre policies. The parking standards associated with the IG3 zone are not appropriate for the use of land envisaged for the Subject Property. 7.0 Summary and Conclusions The proposed zoning bylaw amendment for the Subject Property is consistent with the PPS in that it reinforces the policies that promote and concentrate development within a Settlement Area that contain all of the required infrastructure in an environmentally sensitive manner. The redevelopment of the Subject Property is consistent with the Official Plan in a number of ways, from the City s Growth Management Strategy, to the Transportation Master Plan, through to the specific Mixed-Use Centre policies. Each of these criteria would be further addressed through any subsequent formal application for development, through the City s Site Plan Control Bylaw provisions and review practices to ensure that careful site planning is compatible with and complementary to the existing on-site and off-site developments. The current zoning is out of date having been developed originally under a different planning regime. The Subject Property shares many of the same attributes as the rest of the Trainyards development and thus should be zoned the same. The current zoning for the Subject Property will stifle and inhibit growth that is expected through the Provincial and Municipal planning tools if the IG3 zoning remains. 26

The proposed zoning to an MC7 zone would encourage and make possible more intensive development in an area where sufficient infrastructure currently exists and planned new infrastructure will provide a higher level of service for the site. The technical studies will have to be commissioned in support of the site plan control application and conclude that there is suitable justification for any redevelopment of the Subject Property. This will be a condition of the lifting of the holding provision in the zoning bylaw amendment. This will address in part Section 4.7.1 of the OP. The excellent transit service and cycling facilities to and through the Subject Property will provide incentive and excellent service to reduce the dependency for private vehicles to and from the site. The opportunity exists through the zoning bylaw amendment to rationalize the zoning with that of the adjacent Trainyards development. It is therefore our professional land use planning opinion that the application for zoning bylaw amendment should be supported by City Council as it will assist in permitting a desirable outcome for Subject Property more in keeping with the Provincial and the City s Official Plan and land use planning policies. Prepared by; William S. Holzman, MCIP, RPP January 24, 2012 President Holzman Consultants Inc. 27