PLANNING RATIONALE 223 McLeod Street Ottawa, ON K2P 0Z8 613.730.5709 fotenn.com 17 December 2015 INTRODUCTION FOTENN Consultants Inc. has been retained to prepare a Major Zoning By-law Amendment Application for the lands municipally known as 190 Michael Cowpland Drive (known herein as the subject property ). The Applicant intends on constructing and operating an indoor gymnastics training facility, to be known as the Kanata Rhythmic Gymnastics Facility. In order to facilitate the proposed development, a Zoning By-law Amednment Application is required in order to allow instructional facility and a recreational and athletic facility as a permitted use and to reduce the minimum parking requirements. The subject property is legally described as the East Half of Lot 31, Concession 10, in the Geographic Township of Goulbourn, City of Ottawa. The subject property has approximately 60 metres of frontage along Michael Copeland Drive, and a total area of approximately 4,238 square metres. The subject property is illustrated on Figure 1 below. FIGURE 1: Site Context In support of the application, the following supporting reports, studies and plans are included with the application: 1. Development Concept Plan; PLANNINGDESIGNLANDSCAPE ARCHITECTURE
2. Site Servicing and Stormwater Management Brief, and 3. Phase 1 Environmental Site Assessment. BACKGROUND SITE CONTEXT The subject property is located in Kanata, a community at the west end of the City of Ottawa. The subject property fronts on to Michael Cowpland Drive, within a small business park surrounded by low-rise residential uses. Michael Cowpland Drive connects to Eagleson Road, a major Arterial Roadway leading to Highway 417. FIGURE 1: Site Photo: 190 Michael Cowpland Drive The area has been developing over the last 30 years. To the north of the property is the South Kanata Business Park, established in the 1980s; further north is a stable, low-rise residential community. To the south of the property is a Hydro One transmission corridor; further south is a developing low-rise residential community. To the east of the property is a large-format retail shopping centre; further east is a stable low-rise residential community. To the west of the property is the South Kanata Business Park; further west is a developing low-rise residential community. COMMUNITY AMENITIES The subject lands are located nearby several community amenities, as summarized in Table 1 below: Parks Schools Social Services Kristina Kiss Park Kanata Montessori Children s Universe PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 2
Proudmore Romina Park Brigitta Park Trans-Canada Trail School Marice-Lapointe Public Elementary School Bridlewood Community Elementary School Jean-Paul II Catholic Elementary School Stittsville Public School St. James School John Young Elementary School Daycare Kanata Bridlewood Child Learning Centre Centre prescolaire et parascolaire l Etoile filante de Kanata Sud Bridlewood Trails Retirement Community Andrew Fleck Child Care Services Specialty Care Granite Ridge - Long Term Care Home Centre éducatif cooperative Le Manège-Stittsville TRANSPORTATION / TRANSIT The subject property fronts onto Michael Cowpland Drive which is designated a Major Collector on Schedule E, Urban Road Network of the Official Plan. Collector roads connect communities and distribute traffic between the arterial system and the local road system. The subject property is also within close proximity to Eagelson Road, which is an Existing Major Arterial Road, and Terry Fox Drive which is a Proposed Major Arterial Road. Arterial roads are the major roads of the City that carry large volumes of traffic over the longest distances. They accommodate car and truck traffic, pedestrians, public utilities, cyclists, and public transit buses. OC Transpo routes 161, 164 and 168 (Bridlewood / Terry Fox) provide transit service to the subject property, with stops at the intersection of Fernbank Road and Terry Fox Drive. These routes provide a link to the Kanata Centrum, a major commercial hub in the area. Additionally, the Eagleson Rapid Transit Station is located at the intersection of Eagleson Road and Highway 417, approximately four (4) kilometres north of the subject property. The Rapid Transit Station is also equipped with a Park & Ride, providing transportation options to those traveling longer distances by public transit. The subject property is also within proximity to several segregated walking and cycling paths, including the Trans Canada Pathway. DEVELOPMENT PROPOSAL The applicant intends on building a permanent instructional and training facility for the Kanata Rhythmic Sportive Gymnastics Club, a club that has been in existence for nearly 40 years. The Kanata Rhythmic Gymnastics Facility is proposed as a dedicated training centre for all levels of rhythmic gymnastics, from recreational to National PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 3
stream, including the potential to train for the Special Olympics. The age range of students will be from 5-20 years old. The proposed building will be purpose-built and include a total area of approximately 1,364 square metres.. The building will feature a large format training room for gymnastics, as well as smaller studio space suitable for young recreational gymnastics classes that could run in parallel with the more advanced training. Additionally, a small spectator seating area will also allow for events and competitions. The facility will operate year-round, enabling training, camps, courses and a variety of developmental and educational opportunities for all members of the community. A Concept Development Plan is illustrated in Figure 2. Access to the site is proposed from Michael Cowpland Drive and will also include approximately 25 parking spaces, including one (1) accessible parking space for users, as well as pick-up, and drop-off zone by the main entrance of the building. The site will also include ten (10) outdoor bicycle parking spaces for users, given the site s close proximity to a wide range of segregated trails. In addition to the indoor recreational facility, the site will be landscaped with approximately 630 square metres of landscaped area in the rear yard of the proposed building that could be used for outdoor recreation and/or amenity area. The proposed plan includes an existing 4-metre wide easement along the eastern property line to accommodate for utility access of the cell tower at the south-eastern portion of the subject property. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 4
FIGURE 2: Concept Plan POLICY FRAMEWORK PROVINCIAL POLICY STATEMENT 2014 The 2014 Ontario Provincial Policy Statement (PPS) provides policy direction on matters of provincial interest related to land use planning and development. The PPS is issued under Section 3 of the Planning Act. Section 1.0 of the PPS contains policies for Building Strong Healthy Communities. Healthy, liveable and safe communities are sustained by elements including: a) Promoting efficient development and land use patterns which sustain the financial well-being of the Province and municipalities over the long term; b) Accommodating an appropriate range and mix of residential, employment, institutional, recreation, park and open space, and other uses to meet longterm needs; c) Avoiding development and land use patterns which may cause environmental or public health and safety concerns; e) Promoting cost-effective development patterns and standards to minimize land consumption and servicing costs; and PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 5
g) Ensuring that necessary infrastructure, electricity generation facilities and transmission and distribution systems, and public service facilities are or will be available to meet current and projected needs. Policy 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; 3. Minimize negative impacts to air quality and climate change, and promote energy efficiency; 4. Support active transportation; 5. Are transit-supportive, where transit is planned, exists or may be developed; and b) A range of uses and opportunities for intensification and redevelopment in accordance with the criteria in policy 1.1.3.3, where this can be accommodated. Policy 1.1.3.3 requires planning authorities to identify and promote opportunities for intensification and redevelopment. Section 1.3 of the PPS contains policies for employment in the province. Policy 1.3.1 requires planning authorities to promote economic development and competitiveness by: a) Providing for an appropriate mix and range of employment and institutional uses to meet long-term needs; b) Providing opportunities for a diversified economic base, including maintaining a range and choice of suitable sites for employment uses which support a wide range of economic activities and ancillary uses, and take into account the needs of existing and future businesses; c) Encouraging compact, mixed-use development that incorporates compatible employment uses to support liveable and resilient communities; and d) Ensuring the necessary infrastructure is provided to support current and projected needs. Policy 1.5.1 of the PPS states that healthy, active communities should be promoted by planning and providing for a full range and equitable distribution of publiclyaccessible built and natural settings for recreation, including facilities, parklands, public spaces, open space areas, trails and linkages, and, where practical, water-based resources. Section 1.6.8 contains policies for transportation and infrastructure corridors. Specifically, Policy 1.6.8.3 requires that planning authorities shall not permit development in planned corridors that could preclude or negatively affect the use of the corridor for the purpose(s) for which it was identified. New development proposed on adjacent lands to existing or planned corridors and transportation facilities should be compatible with, and supportive of, the long-term purposes of the PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 6
corridor and should be designed to avoid, mitigate or minimize negative impacts on and from the corridor and transportation facilities. The proposed development meets the policies of the 2014 PPS as the proposed use is intended to encourage a healthy and active community. The proposed instructional and recreational facility will provide an additional amenity to the neighbourhood, thereby adding to a mix and range of uses to meet current and projected needs. Furthermore, the development is being proposed on vacant lands that will capitalize on existing transportation corridors and municipal services. The site is therefore compatible with, and supportive of, the long-term vision for the area, and has been designed to avoid any negative impacts on the existing community. CITY OF OTTAWA OFFICIAL PLAN (2003, AS AMENDED) The subject lands are designated Enterprise Area on Schedule B Urban Policy of the City of Ottawa Official Plan. FIGURE 3: Extract from Official Plan, Schedule B Similar to the Employment Area designation, the purpose of the Enterprise Area is to ensure that sufficient areas of land are reserved primarily for places of business and PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 7
economic activity over the long term. Envisioned uses include offices, manufacturing, warehousing, distribution, research and development facilities and utilities. Uses should be easily accessible from the surrounding community so that residential uses can be well integrated, both within the Enterprise Area itself and with the adjoining residential area. It is highlighted that complementary uses such as service commercial, are appropriate in both Employment and Enterprise designations to meet the day-today needs of employees and residents such that their travel time is reduced. Enterprise Areas are areas of employment that may accommodate the integration of housing without detracting from the employment potential of the lands. Policy 1 of Section 3.6.5 requires that each Enterprise Area provide for the concentration of at least 2,000 jobs at a range of densities. Permitted uses will be governed through the zoning by-law. Policy 2 of Section 3.6.5 permits a variety of ancillary uses, such as recreational, health and fitness uses, child care, and service commercial uses. Section 2.5.1 (Urban Design and Compatibility) contains policies for urban design and compatibility. A set of design objectives is established, each with a set of principles. An explanation of how the proposed development meets each objective is listed below: 1. To enhance the sense of community by creating and maintaining places with their own distinct identity. The overall design of the proposed development respects and responds to its surroundings and setting. The proposal reflects and integrates within the surrounding context by proposing a similar built form to adjacent buildings. The proposed development will enhance the sense of community by creating a gathering space and providing a service that will be used by the surrounding residential communities. 2. To define quality public and private spaces through development. The proposed development allocates a privately-owned instructional and recreational facility to residents and employees in the area. The development is well-defined in its location, and is framed by a street edge. The lands will be heavily landscaped, and will include an outdoor amenity that will enhance the overall aesthetic of the project and could be used for outdoor recreational activities. 3. To create places that are safe, accessible and are easy to get to, and move through. The location of the site will capitalize on several road and pathway connections, including the Trans-Canada trail, to ensure mobility and accessibility for users on the site. 4. To ensure that new development respects the character of existing areas. The proposed development has been designed to be compatible within its surroundings. The proposed building will be within the prescribed zoning height of 12 metres, and will share a similar footprint with the other office and retail uses buildings along Michael Cowpland Drive. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 8
5. To understand and respect natural processes and features in development design. The existing easement is maintained across the subject lands. In addition, the sizeable landscaped area will allow for buffering of the project from the adjacent transmission corridor and additional outdoor program space Section 4.11 (Urban Design and Compatibility) of the Official Plan establishes criteria on the basis of which compatibility of proposed developments is evaluated. Criteria used to evaluate compatibility includes: traffic; vehicular access; parking requirements; outdoor amenity areas; loading areas, service areas, and outdoor storage; lighting; noise and air quality; sunlight; microclimate; and supporting neighbourhood services. The table provided below outlines how the proposed development meets the criteria for urban design and compatibility. Compatibility Criteria (Policy 2, Section 4.11) Traffic Vehicular Access Proposed Development The proposed development will not generate significant traffic. Notwithstanding the above, Michael Cowpland has been designed and programmed as a Major Collector Road and can sufficiently support any traffic generated by the proposed development. Vehicular access to the facility is proposed off of Michael Cowpland Drive. Additionally, a drop-off zone will be located directly in front of the proposed building which will allow for vehicles to enter and exit the site in an efficient manner. Parking Requirements The proposed development includes 25 parking spaces to service the Kanata Rhythmic and Gymnastics Facility. In addition, the proposal includes 10 bicycle parking spaces to support alternative modes of transportation. Outdoor Amenity Areas Loading Areas, Service Areas, and Outdoor Storage Noise and Air Quality The proposed development will have an outdoor amenity area in the rear yard to support outdoor recreational activities in the spring-summer seasons. Service and storage areas will be provided on site and will be screened with a fence. The proposed development will be heavily landscaped in addition to having generous setbacks from the adjacent uses. These measures ensure that impacts related to noise, odour, and other emissions are mitigated or PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 9
Lighting Sunlight Microclimate Supporting Neighbourhood Services significantly reduced. Lighting impacts on adjacent properties are not anticipated, and any potential impacts can be mitigated at the Site Plan Control stage for the development of each lot. Due to the low-rise nature of the proposed development, sun shadowing impacts are not anticipated. Due to the low-rise nature of the proposed development, impacts related to wind, snow drifting, and temperature on adjacent properties are not anticipated. The proposed development is served by a range of community services, including parks, schools, day cares, public transit, and commercial areas. A forthcoming Site Plan Control Application will provide more information related to buildings design and architecture. However, the following images are a sample of similar instructional and recreational use buildings which will provide inspiration for future architectural design of the Kanata Rhythmic Gymnastics Facility. FIGURES 4 & 5: Architectural examples of similar use buildings Overall, the proposed Concept Plan and Zoning Amendment is consistent with Official Plan policies related to the Enterprise Area as the instructional/recreational facility would be a complementary use that is appropriate in the Enterprise Area designation to meet the day-to-day needs of employees and residents. Further, as briefly discussed, the proposed use meets the urban design and compatibility policies of the Official Plan and the use will not have any undue adverse effect on the adjacent area. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 10
OFFICIAL PLAN AMENDMENT (OPA) 150 Official Plan Amendment 150 was adopted in 2014 and is currently under appeal at the Ontario Municipal Board. The City of Ottawa requires that development applications have regard for the new policies in OPA 150, which indicate the direction of Council for land use planning. The existing policies of Section 3.6.5 (Employment Area and Enterprise Area) are generally maintained in OPA 150. Policy 1 is revised to clarify that some Employment Areas may not be contiguous as a result of natural or human-made barriers, or existing land uses. Policy 4 is revised to establish a maximum building height of four (4) storeys in the Enterprise Area designation. Greater building heights may be permitted by a secondary plan, existing zoning or near a rapid transit station or transit priority corridor. As demonstrated above, the general intent of the OPA 150 is met through this proposal. The proposed use compliments the residential, office, and retail uses within the Enterprise Area. Other employment targets can be achieved on other vacant lots along Michael Cowpland Drive. REGULATORY FRAMEWORK The subject lands are currently zoned Business Park Industrial Subzone 4 (IP4). The subzone is crafted specifically for the South Kanata Business Park. The purpose of the IP Zone is to: 1. Accommodate mixed office, office-type uses and low impact, light industrial uses in a business park setting, in accordance with the Enterprise Area designations of the Official Plan. 2. Allow in certain Enterprise 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 Enterprise, Employment or General Urban Area, the general public in the immediate vicinity, and passing traffic; 3. Prohibit retail uses in areas designated as Enterprise 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; 4. Prohibit uses which are likely to generate noise, fumes, odours, or other similar obnoxious impacts, or are hazardous; and 5. Provide development standards that would ensure compatibility between uses and would minimize the negative impact of the uses on adjacent non-industrial areas. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 11
Figure 6: Snapshot of existing zoning The permitted uses in the IP4 subzone include: Broadcasting station Production studio Day care Research and development centre Drive-through facility Restaurant, full service Emergency service Service and repair shop Light industrial uses Small batch brewery Office Technology industry Park Training centre Printing plant Warehouse Office uses are limited to a total gross floor area of 5,500 square metres. Drivethrough facilities are only permitted in association with a permitted use when the permitted use is located within a building containing other permitted uses. The Table below demonstrates provisions within the IP4 zone: PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 12
ZONING MECHANISMS PROVISIONS PROVIDED COMPLIANCE (OR ) Minimum Lot Area 4,000 m 2 4,274.4 m 2 Minimum Lot Width 45 m 60 m Minimum Front Yard and Corner Side Yard Minimum Interior Side Yard and Rear Yard Maximum Building Height Maximum Lot Coverage Minimum width of landscaping Abutting a Residential or Institutional Zone 12 m 12.12 m * 7.5 m 7.5 m 22 m 8.5 m 55% 55% 11 m 18 m Abutting a Street 3 m 3 m In all other cases No Minimum 18 m * Given the requirement for a 26 metre road widening on Michael Cowpland Drive, the Minimum Front Yard Setback may be reduced at the time of Site Plan Control, effectively creating a legal non-complying setback. PROPOSED ZONING BY-LAW AMENDMENT The primary purpose of the application is to add the two (2) following uses by way of exception to the subject property; recreational and athletic facility and instructional facility. Even though the proposed use could be solely categorized as an instructional facility, the applicant requests both uses on the subject lands for additional flexibility. It should be noted that the parent IP Zone includes instructional facility and recreational and athletic facility as a permitted uses, however the IP4 subzone does not. It is also important to note that the majority of the properties along both Terrance Matthews Crescent and Michael Cowpland Drive permit instructional facility and recreational and athletic facility as permitted uses by way of an exception to the PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 13
IP4 Zone. The surrounding zoning would indicate that these uses (recreational and athletic facility and instructional facility) are compatible with the IP4 uses in the context of the Kanata South Business Park. As complimentary uses to the Kanata South Business Park and surrounding area, the Kanata Rhythmic and Gymnastics Facility will provide an additional, yet an important amenity for nearby employees and residents. Parking Parking requirements in Section 101 of the Zoning By-Law for Recreational and Athletic Facilities are: four (4) per alley, court, ice sheet, game table or other game surface, plus 10 per 100m 2 of gross floor area used for dining, assembly or common areas. Parking requirements for Instructional Facilities in Section 101 of the Zoning By-law are: 3.4 per 100 m² of Gross Floor Area. The contemplated design includes a Building Footprint of 988 m² and an additional 295 m² on the mezzanine level for a total Gross Floor Area of 1,283 m². However, it should be noted that, as per the City s definition of Gross Floor Area, the following area is excluded from the GFA. These are: Floor area occupied by shared mechanical, service and electrical equipment; Common hallways, corridors, stairwells and other voids, steps and landing; Common storage and washroom facilities, and; Common amenity areas and play areas accessory to the principal use. Given the project has not reached the detailed architectural design phase, floor plans have not yet been developed. Therefore, for the purpose of calculating the parking requirements FOTENN has assumed a 15% reduction in the GFA for areas excluded from the GFA calculation as per the City s definition. For an instructional facility at a parking rate of 3.4/100m², the proposed gymnastics facility would require approximately 37 spaces. A parking calculation was not calculated for a recreational and athletic facility due to the need for additional information. In addition, the parking definition states 4 per alley, court, ice sheet, game table or other game surface, however it is not clear how this would be applied towards the proposed use. As a result, the Zoning Amendment requests a parking reduction as it relates to an instructional facility. It should be noted that the primary use of this facility is for instruction and training of female gymnasts ranging in age from 5 to 20 years old. Given that the majority of the children visiting the Kanata Rhythmic and Gymnastics Facility will be dropped off by their parents or guardians, there is a lesser demand for parking. Although the studio will have a spectator seating and viewing area, for the most part, parents will drop off their children at the front door and return when the classes are finished. The current design proposes 25 spaces on-site which the applicant believes will be sufficient to facilitate the operation of the Kanata Rhythmic Gymnastics Facility. Based on their existing off-site operations, the Kanata Rhythmic and Gymnastics Facility requires approximately 10-15 parking spaces with some minor demandfor PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 14
additional parking during evenings and weekends. Accordingly, the current proposal for 25 spaces is more than sufficient for their typical operations. Lastly, the KRGF anticipates their clients to also use alternative modes of transportation, including bus service, cycling routes and the pedestrian network. Overall the proposed Zoning By-law Amendment to add instructional facility and recreational and athletic facility is consistent with the underlying intent of the IP4 Zoning. CONCLUSION In assessing the appropriateness of the proposed Zoning By-law Amendment, it is FOTENN s professional opinion that the applications represent good land use planning, are appropriate for the site, and are in the public interest for the following reasons: The proposed development is consistent with the Provincial Policy Statement which promotes healthy and active communities. By providing a recreational and instructional facility in proximity to both residential and employment areas, an appropriate mix and range of uses to meet current and projected needs is established. The proposal capitalizes on an opportunity within a built up area where services are readily available, promotes recreation and contributes to more sustainable land use patterns. The proposed development would intensify a portion of a vacant parcel of land that is located along a major collector road, within close proximity to existing residential and employment areas. The proposed development achieves the goals, policies, and objectives of the City of Ottawa Official Plan, specifically the applicable policies of the Enterprise Area designation, a designation which encourages complimentary uses to the employment and residential function of the designation. The proposed development also complies with the proposed policies of Official Plan Amendment 150. The proposed Zoning By-law Amendment would rezone the subject lands to allow complimentary uses in the Enterprise Area. The uses are considered appropriate and suitable in the Kanata South Business Park. The proposed Zoning By-law Amendment would permit a minimum of 25 parking spaces on the subject lands. These spaces are sufficient and adequate for the proposed use of the facility. Overall, the proposed Zoning By-law Amendment is consistent with the intent of the City s Zoning by-law (2008-250). The application is supported by independent studies completed in accordance with the Official Plan requirements. These studies demonstrate that the proposed development is appropriate within the subject site s context. The proposed development will contribute to the encouraging a healthy and active community and will achieve a good fit within the Kanata South Business Park setting. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 15
Overall, the proposed Zoning By-law Amendment is appropriate for the site, is in the public interest and represents good planning. If you have any questions or concerns, please feel free to contact Nader Alkadri at 613.730.5709 x240. Nader Alkadri, MCIP RPP Planner FOTENN Consultants Inc. Matthew McElligott, MCIP RPP Planner FOTENN Consultants Inc. PLANNING RATIONALE 190 MICHAEL COWPLAND DRIVE 16