PLANNING RATIONALE FOR 1127, 1128 MILL STREET AND 1125 CLAPP LANE CITY OF OTTAWA

PLANNING RATIONALE FOR 1127, 1128 MILL STREET AND 1125 CLAPP LANE CITY OF OTTAWA Prepared by: Realty Initiatives and Development On behalf of the Manotick Mill Community Lands Development Corporation March 2012 1 ITS 1/31/2011

1.0 INTRODUCTION This report has been prepared in support of a zoning by-law amendment for 1125 Clapp Lane, 1127 Mill Street and 1128 Mill Street in the vicinity of Watson s Mill and the Rideau River in the Village of Manotick. The above noted properties were purchased by the City of Ottawa from the Rideau Valley Conservation Authority and private landowners in 2007 with the intent to transfer the properties to the Manotick Mill Quarter Community Development Corporation (MMQCDC). Prior to the sale or leasing of these properties, a primary mandate of the MMQCDC is to better align the City of Ottawa owned properties with the policies in Volume 2c of the City of Ottawa Official Plan which aims for the establishment of a vibrant cultural tourism district. The Manotick Village Plan in the City of Ottawa s Official Plan (Volume 2c) seeks to establish commercial tourist and heritage type uses relating to the Watson s Mill demonstration museum and surrounding area in order to create a more dynamic mixed-use environment for this central core area of the Village. This sub-area of the Village core, referred to as the Mill Quarter or Dickinson Square, has traditionally been used by the community for public events. To best position these properties to meet the Manotick Village Plan and better meet the MMQCDC s financial obligations, the zoning of these City-owned properties requires amendments to permit a wider range of cultural and commercial land uses while maintaining opportunities for heritage and cultural events. 2.0 BACKGROUND In November 2007, City Council approved the acquisition of five properties in the Manotick Mill Historic Quarter including the Carriage Shed, Dickinson House, Weaver House (1127 Mill Street), the Ayres House (1128 Mill Street) and Watson s Mill from the Rideau Valley Conservation Authority. The acquisition was based on the transfer of the properties to the Manotick Mill Quarter Community Development Corporation (MMQCDC) with the exception of Watson s Mill which was sold to Watson s Mill Manotick Inc. for the sum of $1.00. The Manotick Village Plan is an approved Secondary Plan to the City of Ottawa s Official Plan with expressed guiding principles for the Village Core and Historic Mill Quarter which seeks to maintain the rural village character and the core as a gathering place, to conserve heritage and develop sensitively. Policy objectives for the Historic Mill Quarter also include pedestrian oriented elements and may include such retail uses as specialty boutiques, galleries, restaurants, craft outlets, other tourism and entertainment facilities, and residential uses, including multiple family housing. On January 28, 2009 Ottawa City Council approved the formation of the Manotick Mill Quarter Community Development Corporation (MMQCDC) whose Corporate purpose is defined as follows: Formalize and maintain Dickinson Square open space primarily for public heritage and cultural events. Plan, subdivide, and develop/redevelop within the Mill Quarter as required with opportunities for arts and heritage programming, community activities, commercial accommodation, boutiques, galleries, craft outlets, museums, restaurants and studios. Promote community improvement. Sell, lease or otherwise dispose all or part of the Corporation sites. Enter into agreements for implementation as required. Upon transfer of properties from the City to the MMQCDC, the Corporation shall repay to the City all costs associated with acquisition and holding ($2.44 m) and enter into a heritage easement agreement. In accordance with a positioning and disposition strategy for the City owned properties to meet both the Manotick Village Plan Policy objectives for the Mill Quarter and to meet the MMQCDC Corporate purpose objectives, its Board of Directors at its regular meeting of November 22, 2011 approved proceeding with the zoning amendments submitted herein. 2

2.0 OVERVIEW OF THE SUBJECT PROPERTIES The site is situated on the Rideau River south of Bridge Street in the Manotick Village Core (See Figure 1, below). The site includes several properties of varying sizes and shapes, namely 1116 Bridge Street (1,648 m 2 /17,700 sq. ft.) 1127 Mill Street (3,487 m 2 /37,500 sq. ft.), 1128 Mill Street (583 m 2 /6,300 sq. ft.), 1125 Clapp Lane (2,144 m 2 /23,100 sq. ft) and the former segment of Mill Street running between Clapp Lane and Bridge Street. These properties represent a combined area of approximately 1.95 acres (7,900 square metres). Most of the land is relatively flat, with the exception of a slope approximately 5 metres in height at the bank of the Rideau River and running along the eastern edge of 1116 Bridge Street. The easternmost 6 metres of that lot also lie in the 100-year floodplain of the Rideau River. Figure 1: Subject properties and community context. The site contains several buildings of note. Three structures at 1127 Mill Street have been designated as heritage structures by the City of Ottawa under the provisions of Part IV of the Ontario Heritage Act, while a fourth designated heritage structure is located at 1128 Mill Street. The City of Ottawa has also initiated a process for establishing heritage easements on these properties so as to provide additional legal protections ensuring that all future development will respect the heritage character of the area. The lot at 1116 Bridge is undeveloped. At 1125 Clapp Lane resides a vacant two-storey single detached house, which is not a heritage structure. Buildings are generally surrounded by open space consisting of landscaped lawns and gardens and a number of mature trees. A small surface parking lot with space for two dozen cars is also located in the northeast corner of the lot at 1127 Mill Street adjacent to the Carriage Shed. 3.0 AREA CONTEXT AND ADJACENT USES The subject lands are in the core of Manotick Village, across from Watson s Mill, an important local tourist attraction and heritage site built in the mid-19 th century. Aside from the Mill, most of the site s immediate surroundings to the north, south and east consist of residential and institutional uses dominated by single-family detached housing that varies in height from 1 to 2 ½ storeys. Manotick Main Street lies approximately 200 metres to the west, and is characterised by a mix of retail, commercial and residential uses generally housed in buildings 1 to 2 ½ storeys tall. This mixed-use pattern continues along several intersecting streets to both the east and west of Manotick Main Street. More recently, an application for the re-zoning of several lots to immediately north of the subject properties was submitted to allow for the construction of a 3-storey, 126-unit residence for seniors. 3

4.0 CURRENT ZONING The area delineated below in Figure 2 represents the City-owned subject properties subject to the zoning amendment application. The properties are presently subject to two distinct underlying zones with Parcel A - 1127 Mill Street and Parcel B -1128 Mill Street also subject to Section 60 - Heritage Overlay under Zoning By-Law 2008-250 as follows: 4.1 Parcel A 1127 Mill Street - (Carriage House and Dickinson House east portion of site) Existing Zoning: RI1 Rural Institutional Zone, subzone 1 The purpose of the RI Rural Institutional Zone is to: (1) permit a range of community-oriented and emergency service uses which serve the needs of the rural population in areas designated primarily as Village in the Official Plan; (2) permit a limited range of educational and religious-related institutional uses where they exist in areas designated General Rural Area and Agricultural Resource Area in the Official Plan, and, (3) ensure that future development will have a minimal impact on adjacent land uses and will respect the character of the surrounding village or rural areas. Permitted uses include community centres and gardens, museums, parks, places of assembly, and farmers markets. Commercial uses are not permitted, and residential uses are limited to retirement homes, rooming houses, shelters and an ancillary dwelling to a place of worship. The RI1 subzone corresponds to specific yard and building height provisions. Section 60 Heritage Zone Overlay provisions also apply to the entire site which despite the provisions of the underlying zone, specific building guidelines apply offering zoning incentives to reuse the buildings, and to limit the size and location of additions to preserve the heritage character of the original building: 4.2 Parcel A -1127 Mill Street (Weaver s House on west side of site) Parcel B 1128 Mill Street (Ayres House); and Parcel C 1125 Clapp Lane Existing Zoning : VM2 Village Mixed-Use Zone, subzone 2 The purpose of the VM - Village Mixed-Use Zone is to, (1) permit a wide variety of commercial, leisure, institutional and residential uses in areas designated as Village in the Official Plan, (2) reinforce the historical character of the Village core areas and mainstreets by promoting small-scale, street-oriented building form; (3) recognize the function of Business Improvement Areas as primary business or shopping areas; and (4) regulate development in a manner that adopts existing land use patterns so that the unique village character is maintained. The VM2 subzone represents a more restricted range of permitted residential, commercial and institutional uses than the parent VM zone and restricts any permitted individual use from exceeding a gross leasable area of 120 m 2 (1,291 sq. ft). 4

Figure 2: Existing zoning of subject properties and surrounding areas. 5

5.0 PROPOSED ZONING AMENDMENTS This application supports two separate amendments to the City-owned properties within the Mill Quarter as outlined below: 1. Amend the Zoning of: Parcel A - 1127 Mill Street (eastern portion Carriage shed, Dickinson House) - RI1 - Rural Institutional subzone 1; Parcel A - 1127 Mill Street (western portion Weaver House) - VM2 Village Mixed Use subzone 2; and Parcel B - 1128 Mill Street (Ayres House) - VM2 Village Mixed Use subzone 2 to a Village Mixed Use Exception Zone - VM [xxxr] The purpose of the proposed amendment is to replace the existing institutional zoning and village mixed use subzone of Parcels A and B in Figure 2 with a zoning that will retain the maximum 120m2 gross leasable area requirement of the VM2 zone for permitted uses encouraging mixed-use institutional and commercial uses for the existing heritage properties such as specialty boutiques, galleries, restaurants, craft outlets and other tourism and entertainment facilities. The proposed zoning also captures a wider range of permitted uses from both the existing Rural Institutional and Village Mixed Use zones to establish a more integrated mixed-use zoning for the properties. The requested zoning is site specific with permitted land use and performance criteria as follows: Provision Use Proposed Zoning Residential: converted dwelling, dwelling unit, detached dwelling, duplex dwelling, group home, retirement home, retirement home converted, secondary dwelling unit, three unit dwelling Min Lot Area Min Lot Width Yard Setback facing Dickinson Street Yard Setback facing Mill Street Minimum interior side yard and rear yard setbacks, Maximum Building Height Minimum width of landscaped area Gross Leasable Area Shared Parking Non-Residential: Artist studio, bank, bank machine, bar, bed and breakfast, catering establishment, community garden, community centre, community health and resource centre, convenience store, emergency service, home based business, hotel, instructional facility, museum, office, park, personal service business, restaurant, retail food store, retail store, service and repair shop, school, small batch brewery, theatre, training centre, 450m2 15m 0m (See Figure 3) 3m (See Figure 3) See Figure 3. 11m No Minimum each individual use not exceeding a gross leasable floor area of 120 m2 Section 104 of By-law 2008-250 applies where any permitted uses listed in this 6

section are located on the same lot. Figure 3 Yards and Minimum Horizontal Distances to Lot Lines for 1127 and 1128 Mill Street 2. Amend the zoning of Parcel C - 1125 Clapp Road (Clapp Property) from Village Mixed Use subzone 2 (VM2) to a Village Mixed Use Exception Zone - VM (xxxr). 7 The purpose of the amendment is to permit a wide range of commercial, institutional and residential uses that will implement the Mill Quarter Tourism and Heritage Manotick Village Policy Objectives and the Corporate purpose

objectives of the MMQCDC. The amendment is also intended to remove the existing zoning provision that restricts any individual use from exceeding a gross leasable area of 120 m 2 (1,291 sq. ft) and instead apply this provision to specific retail and other non-residential land uses to be located on the ground floor of a new development. The amendment will be more in keeping with the range of land uses and performance provisions of the parent VM zone while removing existing permitted land uses that are not in keeping with the Manotick Village Official Plan Policy objectives for the Mill Quarter. The requested zoning is site specific with performance criteria as follows: Provision Use Proposed Zoning Residential: apartment dwelling (low-rise), converted dwelling, dwelling unit, detached dwelling, duplex dwelling, group home, linked detached dwelling, retirement home converted, secondary dwelling unit, stacked dwelling, Non-Residential: artist studio, bank, bank machine, bar/pub, bed and breakfast, catering establishment, community health and resource centre, community centre, convenience store, home based business, home based day care, hotel, instructional facility, medical facility, municipal service centre, museum, office, personal service business, restaurant, retail store, retail food store, school, service and repair shop, small batch brewery, training centre Min. Lot Area Min Lot Width 1350m2 20m Min yard setback facing Clapp Lane Min yard setback facing Bridge Street Min yard setback facing Mill Street Minimum yard setback abutting a residential zone Building Height Maximum 13.5m No minimum (see Figure 4) 3m (see Figure 4) 0m (see Figure 4) 7.5 m (see Figure 4) Gross Leasable Area Shared Parking The following non-residential uses are to be located on the ground floor and are not to exceed a gross leasable area of 120m2: bar/pub, community health and resource centre, instructional facility, community centre, convenience centre, medical facility, municipal service centre, museum, personal service business, restaurant, retail store, retail food store, service and repair shop, small batch brewery. Section 104 of By-law 2008-250 applies where any permitted uses listed in this section are located on the same lot. 8

Figure 4: Yards and Minimum Horizontal Distances to lot lines for 1125 Clapp Lane 6.0 PLANNING POLICY AND REGULATORY FRAMEWORK 6.1 Provincial Policy Statement (2005) The Provincial Policy Statement (PPS) was issued under Section 3 of the Planning Act and came into effect on March 1 st, 2005. The PPS represents minimum land use standards that municipal Official Plans are to be consistent with. Section 1.1.3.2 states that: 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 9

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 1.1.3.3. Section 1.1.4.1 of the PPS states that in rural areas in municipalities recreational, tourism and other opportunities should be promoted, while Section 1.7.1 further states that long term economic prosperity should be supported by maintaining and, where possible, enhancing the vitality and viability of downtowns and mainstreets [and] providing opportunities for sustainable tourism development. The proposal is consistent with these sections of the PPS. Increasing the range of permitted activities and densities in support of the development of a cultural and tourist district in a rural village will help provide for a more compact built form while building a diversified economic base and improving the commercial and economic vitality and viability of central Manotick. 6.2 City of Ottawa Official Plan (2003) Section 3.7.1 The subject properties are designated as Rural Village according to Schedule A of the City of Ottawa Official Plan (OP). Policies governing Villages in the Rural Area designation are found in Section 3.7.1 of Volume 1 of the Official Plan. Section 3.7.1 states that: In these Villages, the City will encourage the delivery of municipal and community programmes and facilities, the development of residential uses in a variety of forms and modest employment opportunities, in the form of commercial, tourism and small-scale industrial development. Preservation of these Villages and their traditional functions is critical to the continued vitality of the rural area. Smaller Villages may continue to grow at modest levels. Section 3.7.1, Volume 1 of the OP also establishes a number of policies to guide and support growth and development in accordance with the broad vision for Rural Villages established above: 4. Permitted uses will include: residential and retail and commercial service facilities of up to 10,000 square metres gross leasable area, restaurants, offices and personal service establishments light industrial uses, institutional uses such as schools, community meeting and recreational buildings and facilities, places of worship, and public open space. 5. The zoning by-law will establish zones that are consistent with the distribution of uses provided for in the Village plans found in Volume 2. The zoning by-law will also support development that reinforces the historical character of Village core areas and mainstreets by permitting a mix of land uses, encouraging a pedestrian-friendly streetscape and regulating the scale of development. 7. Permitted uses will include: residential and retail and commercial service facilities of up to 10,000 square metres of gross leasable area, restaurants, offices and personal service establishments light industrial uses, institutional uses such as schools, community meeting and recreational buildings and facilities, places of worship, and public open space. 8. The zoning by-law will establish zones that are consistent with the distribution of uses provided for in the Village plans found in Volume 2. The zoning by-law will also support development that reinforces the historical 10

character of Village core areas and mainstreets by permitting a mix of land uses, encouraging a pedestrianfriendly streetscape and regulating the scale of development The proposed zoning amendments are consistent with these provisions of the Official Plan for rural villages. The VM[XXXr] designation will permit a number of small-scale commercial and non-commercial activities relating to Watson s Mill, and as discussed previously in section 4.3 of this report, the VM Village Mixed-Use Zone is intended to support the economic and cultural vitality of village cores and permitting limited growth while preserving their rural character. 6.3 Manotick Village Plan The Manotick Village Plan is included in Volume 2(c) of the City of Ottawa Official Plan, and was extracted from the Official Plan of the former Township of Rideau. The Village Plan outlines the vision for the community and establishes a number of policies to direct future growth and development within Manotick. The plan s primary objective is to preserve and maintain the quality and character of life enjoyed by the people who live or work in Manotick, while outlining a series of secondary objectives, including: 5. Rideau River Shoreline To provide for the preservation and/or acquisition of the Rideau River shoreline and its availability for public enjoyment; 6. Heritage Resources To conserve and enhance Manotick's heritage resources and the Village's identity and character as an historic town on the Rideau Canal National Historic Site, a Canadian Heritage River; 11. Village Core Commercial To protect and enhance the commercial functions of the Village core; 12. Jobs & Housing To provide adequate opportunity for jobs and housing in the overall community in a manner that is desirable for a Village and consistent with the community's Vision; 13. Recreation & Leisure Facilities To provide recreation and leisure facilities that are conveniently located and accessible to all residents; 14. Orderly Growth & Development To provide for an orderly growth and development strategy within the Village; and, 15. Housing Mix To provide an adequate mix of housing in the Village as a whole as opposed to any one residential neighbourhood or new development area. According to Schedule A, the subject area is part of the Village Core. The Village Core is further divided into several Character Areas, with the subject area forming part of the Historic Village Character Area. Section 3.7.2.4 provides a series of objectives and supporting policy directions for the Village Core and its constituent Character Areas. Relevant general objectives, as listed in Section 3.7.2.4, subsection A, include: b. Meeting Place To ensure the Village Core continues to function as Manotick's meeting place, its retail centre, and the primary focus of its economic activity. c. Village Character Areas To enhance the Character Areas within the Village Core to reinforce the Core s role as a meeting place and ensure the core remains as the foundation of the community s economy. 11

12 d. Built and Natural Environment To conserve the built and natural heritage of the Village Core to reinforce the Core's role and ensure the Core remains as the foundation of the community's economy. f. Pedestrian Friendly To ensure a pedestrian friendly and welcoming environment within the Village Core. h. Zoning Tools To develop new, and/or refine existing zones in the Township of Rideau Zoning Bylaw, and other land use regulations and tools permitted by the Planning Act, that will assist in implementing the objectives and policies of this Plan. Additional objectives and supporting policies for the Village Core are outlined in Section 3.7.2.4, subsections, B, C, D, and apply to commercial, residential and non-commercial land uses in the Village Core, respectively. Relevant policies from these subsections include: 3.7.2.4. B2b. Locating Commercial Uses in the Core Council may permit retail uses throughout the Village Core, including those uses that enhance the Village's evolving tourism potential such as restaurants and hotels, to the extent permitted by policies of the Village Core Character Areas. 3.7.2.4 B2c: Historical Character All new development within the Village Core shall be sensitive to, and respect, the historical character and existing scale of development within the Village Core. 3.7.2.4. C2a.Housing Mix in the Core. Within the Village Core, Council shall support the development of duplex houses, townhouses and walk-up apartments, the permitted areas for which are defined by the Character Areas policies (see 3.7.1.4 E.). 3.7.2.4. D2a. Institutional and Community Services in the Core. Public and institutional uses shall be permitted in the Village Core. The Character Area policies provide the details for the location of each of these uses, as noted in Section 3.7.2.4 E. Finally, Section 3.7.2.4, subsection E pertains to Character Area-specific policies. Subsection E 3 pertains to the Historic Village Character Area, with the subject properties located in the east sector of the Historic Village Character Area. Relevant policies applying to the proposed amendment include: a. East Sector Uses The Historic Village (east sector) shall be pedestrian oriented and may include such retail uses as specialty boutiques, galleries, restaurants, craft outlets, other tourism and entertainment facilities, and residential uses, including multiple family housing b. Mixed Use Developments within The Historic Village (east sector) may be used for both retail and residential purposes (i.e., two or more permitted uses may be physically integrated within a building, or separate buildings on the same lot). e. Parking To reinforce the pedestrian orientation of the Area, its safety and convenience, the parking requirements for uses within The Historic Village Character Area (east sector) shall be minimal, existing on street parking shall be retained and, in the case of designated heritage properties no parking may be required. f. Mill "Quarter" Council shall examine the feasibility of developing a "Mill Quarter" around Watson's Mill, including the potential relocation of the offices of the Rideau Valley Conservation Authority, for commercial

accommodation, boutiques, galleries, craft and other specialty outlets, museums, restaurants, and studios. It must be noted that each objective and policy subsection outlined above specifically states that all new development shall be sensitive to, and respect, the historical character and existing scale of development within the Village Core. As mentioned previously in section 4.3 and 5.0, the VM Village Mixed-Use Zone is intended to reinforce the historical character of the Village core areas and mainstreets by promoting small-scale, street-oriented building form. The proposed zoning amendment is thus consistent with those provisions of the Manotick Village Plan. Additional legal protections provided by the City of Ottawa s designation of several buildings on the site as heritage buildings under Section IV of the Ontario Heritage Act, as well as heritage easements presently being negotiated by the City, shall ensure that all new development respects the heritage character of the area. 7.0 SUMMARY This report has been prepared to support an application for a zoning by-law amendment to facilitate a market opportunity for the development of a vibrant Mill Quarter in the areas adjacent to Watson s Mill in the Village of Manotick as directed by the Manotick Village Plan in the City of Ottawa s Official Plan. It is clear that the objectives and policies for the Village Core, Historic Village Character Area, and the east sector sub-area, support mixed-use commercial, institutional and residential land uses to ensure that the Village core serves as the Village meeting place, retail centre and economic focus. The existing Rural Institutional subzone applicable to 1127 Mill Street is restricted to institutional land uses prohibiting the retail mix and economic focus desired for the core and to realize the market potential for the adaptive re-use of these heritage properties. Similarly, the existing Village Mixed-Use Subzone applicable to 1127, 1128 Mill Street and 1125 Clapp Lane restricts the range of residential and commercial use permitted as well as restricts the gross leasable floor area to 120 square metres (1291 square feet), for all permitted uses thereby prohibiting a wider range of commercial tourism, mixed-use and residential related opportunities. The proposal to change the existing zoning for 1127 and 1128 Mill Street to a Village Mixed Use Exception Zone is designed to respect the heritage character of these existing designated heritage properties and increase the range of permitted use to include commercial retail and personal service business uses in addition to institutional land uses but limited in gross leasable area to encourage boutique commercial uses. As well, the proposed zoning is designed to permit sensitively integrated building additions, subject to Architectural Design Guidelines for these properties and the approval of the City s Heritage Advisory Committee and City Council. The proposal to change the existing zoning for 1125 Clapp Lane to a Village Mixed-Use Exception Zone is intended to better align the property with the Rural Village designation in Section 3.7.1 of Volume 1 of the Official Plan. These policies guide growth and development in Villages supporting residential, institutional, retail and commercial service facilities of up to 10,000 square metres (108,000 square feet) of gross leasable area, yet ensuring that new development has regard to historical character and scale of development. To ensure that retail facilities and other specific non-residential uses at 1125 Clapp Lane are complementary to existing land use and historic character of the Mill Quarter, the proposed zoning will limit gross leasable area for specific permitted non-residential uses to encourage boutique commercial or institutional uses on the ground floor. This zoning strategy will align with the objectives and supporting policies for the Village Core as outlined in Section 3.7.2.4, subsections, B, C, D, F and H to permit sensitively integrated new development at this site that will accommodate a range of uses and permutations for new development such as; commercial (e.g. boutique hotel), residential (e.g. senior s residence), mixed- use residential /commercial (e.g. ground floor boutique commercial on ground floor with residential units above) or institutional (e.g. Arts Centre). Development on this site will also be subject to Architectural Design Guidelines and height restrictions to ensure compatibility with the heritage character of the Mill Quarter. 13