TABLE OF CONTENTS 1.0 INTRODUCTION... 3 1.1. BACKGROUND... 3 1.2. THE PROPOSAL... 5 2.0 EXISTING POLICY FRAMEWORK... 5 2.1. PROVINCIAL POLICY STATEMENT (PPS)... 5 2.2. CITY OF LONDON OFFICIAL PLAN (OP)... 6 2.3. CITY OF LONDON ZONING BY LAW NO. Z 1 (ZBL)... 9 3.0 PROPOSED ZONING BY-LAW AMENDMENT... 11 4.0 PLANNING ANALYSIS... 11 4.1. PROVINCIAL POLICY STATEMENT (PPS)... 11 4.2. CITY OF LONDON OFFICIAL PLAN (OP)... 11 5.0 CONCLUSION... 15 Page 2
1.0 INTRODUCTION 1.1. BACKGROUND, on behalf of, is pleased to submit this report in support of an application to amend the City of London Zoning By-law No. Z.-1. The application requests an increase in maximum height and the addition of a site specific bonus regulation for an increase in density, all in conformity with the City of London Official Plan. The application is required to enable the development of a mixed-use building in the Downtown Area that will include retail, office and residential uses. The lands that are the subject of the application (the subject lands ) are located at the northwest corner of Talbot Street and Fullarton Street and are comprised of two (2) parcels that total approximately 0.23 ha. (0.57 ac.) in size (See Figure 1). The parcels are known municipally as 475 Talbot Street and 100 Fullarton Street. There are no buildings located on 475 Talbot Street which is currently used for a surface parking lot. At 100 Fullarton Street there is a commercial building with a surface parking area to the north that has a two (2) storey component along the street-edge and a one (1) storey component to the rear, currently used for offices. Page 3
Figure 1: Subject Lands Subject Lands Land uses immediately adjacent to the subject lands include low-rise townhouse dwellings to the north and a surface parking lot to the west. Across Talbot Street to the east are the twin 20 storey office towers and 6 storey office tower of Talbot Centre above a commercial podium, and a separate 16 storey high-rise apartment building. Across Fullarton Street to the south is a Page 4
surface parking lot. In the broader surrounding area there is a mix of land uses that includes: single-detached and townhouse dwellings, some of which have been converted to office space; low-rise, mid-rise and high-rise commercial buildings consisting of a mix of retail and office space; surface parking lots; and open space associated with the Thames River Valley. Amenities in close vicinity within 500 metres walking distance included: Harris Park and the Thames Valley Parkway, the Forks of the Thames, Museum London, Covent Garden Market, Budweiser Gardens, Downtown and Richmond Row Shopping Areas, Victoria Park and 13 London Transit Commission bus routes. 1.2. THE PROPOSAL is proposing to construct one (1) mixed-use building on the subject lands that will include commercial, office and residential uses. The proposed building is 33 floors and approximately 108 metres (354 feet) in height. The proposed building will include 781 sq. m (8,405 sq. ft.) of commercial/retail space on the 1 st floor and 769 sq. m (8,281 sq. ft.) of office space on the 7 th floor, with above ground (structured) parking proposed between the 1 st and 7 th floors, and 248 residential units on floors 8 through 33. The density for the proposed development is 1,078 residential units per hectare. A small amount of surface parking will be located, with loading areas, in the interior of the block. The majority of on-site parking will be in above grade and below grade structured areas integrated into the building design. The on-site parking and loading areas will be accessed via the existing laneway located to the north of the subject lands. The use of the laneway and a portion of the subject lands will make a broader and more accessible right-of-way. The on-site parking areas proposed would accommodate 248 cars. 2.0 EXISTING POLICY FRAMEWORK 2.1. PROVINCIAL POLICY STATEMENT (PPS) The Provincial Policy Statement ( PPS ) came into effect on March 1, 2005 and applies to all applications, matters or proceedings commenced on or after the above-noted date. The PPS provides policy direction on matters of provincial interest related to land use planning and development and requires that decisions affecting planning matters shall be consistent with the policy statements within the PPS. The relevant PPS policies are as follows: PPS 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; Page 5
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 b) a range of uses and opportunities for intensification and redevelopment in accordance with the criteria in policy 1.1.3.3. PPS Policy 1.1.3.3 states that Planning authorities shall identify and promote opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites, and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs. PPS Policy 1.4.3 states that Planning authorities shall provide for an appropriate range of housing types and densities to meet projected requirements of current and future residents of the regional market area by: b) permitting and facilitating: 2. all forms of residential intensification and redevelopment in accordance with policy 1.1.3.3; c) directing the development of new housing towards locations where appropriate levels of infrastructure and public service facilities are or will be available to support current and projected needs; d) promoting densities for new housing which efficiently use land, resources, infrastructure and public service facilities, and support the use of alternative transportation modes and public transit in areas where it exists or is to be developed;. The PPS identifies that the development of vacant or underutilized lands at higher densities than currently exist, optimizing the use of land, resources and public investment in infrastructure and public service facilities, represents good planning and is desirable. 2.2. CITY OF LONDON OFFICIAL PLAN (OP) The City of London Official Plan ( OP ), as amended, came into effect on December 17, 2009 and provides direction for the allocation of land, provision of municipal services and facilities, and preparation of regulatory by-laws to control the development and use of land. The subject lands are designated Downtown Area according to Schedule A Land Use to the OP (Figure 2). Talbot Street and Fullarton Street are both identified as a Primary Collector according to Schedule C Transportation Corridors (Figure 3). Page 6
Figure 2: City of London Official Plan Schedule A Land Use *Boundaries and locations on figures are approximate. Subject Lands Page 7
Figure 3: City of London Official Plan Schedule C Transportation Corridors *Boundaries and locations on figures are approximate. Subject Lands Page 8
The role of the Downtown is identified in the OP as the primary business, office, institutional, entertainment and cultural centre for the City of London (Section 2.4.1 i)). High and medium density residential development will be directed to appropriate areas within and adjacent to the Downtown (Section 2.4.1 vi)). Permitted uses in the Downtown include a broad range of retail; service; office; institutional; entertainment; cultural; high density residential; transportation; recreational; and open space uses (Section 4.1.6). The relevant OP policies specific to the Downtown designation are as follows: Section 4.1.6. x) states, in terms of mixed use development, Mixed-use buildings that provide for the vertical integration of two or more permitted uses, other than light industrial, shall be a permitted form of development in all areas of the Downtown. Section 4.1.7. states, in terms of the scale of development, The Downtown will accommodate the greatest height and density of retail, service, office and residential development permitted within the City of London. Section 4.1.7. i) states, in terms of the scale of development, Increases in density may be permitted without amendment to this Plan provided the proposal satisfies density bonusing provisions of Section 3.4.3. iv) and 19.4.4 of this Plan, conforms to the Site Plan Control By-law and addresses standards in the Downtown Design Guidelines. Density in the Downtown may be permitted up to a maximum floor area ratio of 10:1 for commercial uses and will normally not exceed 350 units per hectares for residential uses. For parts of the Downtown that are located adjacent to lower density, residential areas height, density and site coverage limits in the Zoning By-law will provide an appropriate transition in the scale of development. Section 4.1.7. ii) states, in terms of design considerations, It is intended that Downtown development should enhance the street level pedestrian environment and contribute to the sensitive integration of new development with adjacent structures and land uses. Section 4.1.7. iii) states, in terms of street level wind impacts, New development should not alter the existing wind conditions to the extent that it creates or aggravates conditions of wind turbulence and velocity which hamper pedestrian movement, or which discourage the use of open space areas. 2.3. CITY OF LONDON ZONING BY-LAW NO. Z-1 (ZBL) The City of London Zoning By-law No. Z.-1 ( ZBL ), as amended, implements the objectives and policies contained in the OP, and regulates the development of land by specifying permitted uses and development standards for individual properties. The subject lands are predominately zoned Downtown Area (DA2) Zone with a Density (D350) Symbol and Holding (h-3) Symbol. Page 9
The exception is a small portion of the westerly parcel that extends north of the laneway and which is zoned DA2 but, does not include the D350 and h-3 symbols and, therefore, is unregulated with respect to specific density provisions (Figure 4). The D350 symbol permits a maximum residential density of 350 units per hectare. The h-3 symbols requires a wind impact assessment for development over 15 metres (49 feet) in the DA2 zone. Permitted uses in the DA2 zone include, but are not limited to, the following: apartment buildings; convenience stores; financial institutions; medical/dental offices; offices; personal service establishments; retail stores; restaurants; restaurants, outdoor patio; and supermarket. Figure 4: City of London Zoning By-law No. Z-1 *Boundaries and locations on figures are approximate. Subject Lands Page 10
3.0 PROPOSED ZONING BY-LAW AMENDMENT To permit the development of the proposed mixed-use building on the subject lands, the proposed ZBA would provide an increase in the maximum height from 90 metres (295 feet) to 108 metres (354 feet) and the addition of a site specific bonus (B- ) zone for an increase in density from 325 residential units per hectare to 1,078 residential units per hectare. 4.0 PLANNING ANALYSIS The following planning analysis provides rationale for the proposed amendment to the City of Zoning By-law No. Z-1. 4.1. PROVINCIAL POLICY STATEMENT (PPS) The development proposal for the subject lands is consistent with the PPS. The requested ZBA will permit the development of a mixed-use building on the subject lands that will contribute to an increase in density and mix of land uses in the Downtown that will optimize the use of land, resources and public investment in infrastructure and public service facilities consistent with the PPS (See Section 1.1.3.2 (a) 1. and 2, and Section 1.4.3 (c) and (d)). The subject lands are currently vacant or underutilized in terms of the planned intent for the Downtown. The proposed development represents intensification and redevelopment encouraged by the PPS (See Section 1.1.3.2 (b), Section 1.1.3.3) and (Section 1.4.3 (b) 2.)). 4.2. CITY OF LONDON OFFICIAL PLAN (OP) The development proposal for the subject lands conforms to the relevant policies contained in Section 4.1 Downtown Designation in the OP. The proposed mixed-use building is a permitted form of development in the Downtown; and the Downtown is intended to accommodate the greatest height and density of retail, service, office and residential development permitted in the City. Section 4.1.7 i) Downtown Designation, Scale Limitations in the OP allows Council to consider a proposal for higher density than would normally be permitted without an amendment to the OP, provided the development proposal satisfies the provisions of Section 3.4.3 iv) Multi-Family, High Density Residential, Density Bonusing and Section 19.4.4 Zoning, Bonus Zoning in the OP, the Site Plan Control By-law, and addresses standards in the Downtown Design Guidelines. Since the residential density of the proposed building exceeds the maximum cumulative bonusing permitted as-of right in Section 3.4.3. iv) Multi-Family, High Density Residential, Density Bonusing, a site specific bonus (B- ) zone is required. Bonus zoning will be used to support certain City objectives contained in Section 19.4.4 ii) Bonus Zoning, Objectives and urban design principles contained in Section 11.1.1 Urban Design Policies Design Principles; and these matters are addressed below. In return for the higher density, the development proposal must provide for Page 11
the provision of certain public facilities, amenities or design features that result in a public benefit. Section 19.4.4 ii) (c) The provision of underground parking The proposed development includes underground parking and five floors of above ground (structured) parking that is integrated into the design of the proposed building such that building coverage is maximized and surface parking minimized, making efficient use of land. The underground and above ground (structured) parking will be screened from view to enhance the pedestrian environment at the street level. Section 19.4.4 ii) (d) The provisions of landscaped open space contributing to aesthetically attractive residential development The podium component of the proposed building will be positioned at or near the front and exterior lot line, to maintain the spatial enclosure of the street as is appropriate in the Downtown area, as a result, there is limited opportunity for landscaped open space at grade other than within the public realm. Nevertheless, the proposed development will bring about investment in the public realm, in particular, improvements to sidewalk surface treatments and the addition of street-trees or other plantings as well as street-furniture that could include public art. Investments in the public realm as mentioned above would enhance the pedestrian experience along Talbot Street and Fullarton Street within the vicinity of the subject lands and would contribute to an aesthetically attractive mixed-use development. Landscaped open space/amenity space is proposed for the office use and residential use on the 7th and 8th floors respectively in the form of separate outdoor terraces. The outdoor terraces are to be multi-functional spaces that provide opportunities for gathering, outdoor eating, quiet enjoyment and causal lounging. The design of the outdoor terraces will have a contemporary aesthetic that complements the overall contemporary building design. The outdoor terraces will feature in the façade design, with the set back of the 7 th floor and the overhang of portions of the 8th floor creating areas of recess and shadow that convey a sense of depth and are highlighted by a change in cladding material. The outdoor terraces will contribute to the visual interest of the facades. Additional indoor recreational space will be provided for the residential uses on the 8 th floor. Section 19.4.4 ii) (h) The provision of innovative and environmentally sensitive development The residential density of the proposed development will make efficient use of land, resources, and public investment in infrastructure and public service facilities. In particular, the proposed development will increase the residential density in Downtown needed to support investments in public transportation and public facilities. The subject lands are proximate to 13 existing London Page 12
Transit Commission bus routes located along Talbot Street, Dundas Street, Richmond Street and Queens Avenue. Section 19.4.4 ii) (j) The provision of design features that provide for the universal accessibility Barrier-free access will be incorporated into the design of the proposed building. Elevators will provide barrier-free access to all floors and ramps will provide barrier-free access where the transition between levels is less significant. Section 11.1.1 iii) Open Views The division of the proposed mixed-use building into two principal built form components, a podium and tower, is preferred over a tall building that extends uninterrupted from the street. The tower component that consists of the 7 th through 33 rd floors is set back from the street line and has a more compact form than the podium component minimizing the obstruction of views from existing buildings that would otherwise be more significant if the proposed mixed-use building extended uninterrupted from the street. Section 11.1.1 iv) High Design Standards The selection of materials that have integrity, are durable and perform well, will contribute to a quality project and an attractive street presence. The building facades are highly articulated as a result of the interplay between transparent glass and solid materials and equal attention has been paid to all facades. The above ground (structured) parking that has been fully integrated into the building design is screened in a manner that the dynamic play of materials and colours will provide facades of enhanced visual interest. The screening of the above ground (structured) parking could also provide an opportunity to integrate public art into the building design. Section 11.1.1 v) Architectural Continuity The podium component of the proposed building that consists of the 1 st through 6 th floors will be built at or near the front and exterior lot line to maintain the spatial enclosure of the street. The tower component of the proposed building that consists of the 7 th through 33 rd floors will be built set back from the street line to maintain the sense of continuity with adjacent low and mid rise buildings. The proposed building has its own contemporary style that complements other contemporary mid-rise and high-rise commercial and residential buildings and, along with the overall height of the proposed building, will contribute to its landmark status in the Downtown. Section 11.1.1 vii) Pedestrian Traffic Areas The public sidewalk that run parallel to Talbot Street and Fullarton Street, and/or hardscaped areas that act as extensions to the public sidewalks, will function as the primary circulation space for pedestrians outside the proposed building. Areas of access and egress will be directly Page 13
to and from the sidewalks and are separated from parking and loading facilities and driveways located off the rear laneway to minimize any potential traffic conflicts. The podium component of the proposed mixed-use building is fundamental to the creation of a desirable pedestrian environment. The podium contributes to the spatial enclosure of the street, the perception of appropriate pedestrian scale from the public sidewalk consistent with the building height guidelines in the Downtown Design Guideline, and the articulation of building facades at a pedestrian relatable scale. A permanent awning above the pedestrian entrances on the 1 st floor will, in addition to providing protection for pedestrians from the elements, reduce the perceived height of the proposed building to enhance the pedestrian environment. The use of transparent glass as the primary cladding material on the 1 st floor allows pedestrians to see inside and will provide visual interest that will enhance the pedestrian environment. Section 11.1.1 ix) Access to Sunlight The tower component that consists of the 7 th through 33 rd floors will be built set back from the street line to minimize the extent and the duration of the shadow impacts. Section 11.1.1 xii) Enhances Accessibility Standards See earlier comments regarding Section 19.4.4 ii) (j) The provision of design features that provide for the universal accessibility. Section 11.1.1 xiii) Parking and Loading The vehicular entrances to the parking and loading facilities will be located to the rear of the proposed building and accessed via the existing laneway that extends along the northerly extent of the subject lands. The location of the entrances to the parking and loading facilities will minimize potential traffic conflicts on Talbot Street and Fullarton Street as a result of the development, and the disruption of pedestrian movement along the public sidewalks, consistent with the site design guidelines in the Downtown Design Guideline. The site design will allow full functional turning on site, so that the backing of vehicles onto Talbot Street will not be required. The surface parking that is proposed on the northerly tail of the westerly parcel is screened from the public realm by the existing low-rise townhouse dwellings located north and east of the subject lands. Section 11.1.1 xvii) Recreational Facilities In addition to the outdoor terraces that will be multi-functional spaces that provide opportunities for gathering, outdoor eating, quiet enjoyment and causal lounging for the office use and residential use, indoor recreational space will be provided for the residential uses on the 8 th floor. Page 14
100 Fullarton Street, London ON Mixed Use Tower Development Richmond Architects Ltd.
Shadow Impact June 21 st, 9am 11am June 21 st, 1pm 3pm June 21 st, 5pm
Site Plan Roof Top Plan
Renderings South West corner of Building South East corner of Building North West Corner of Building North East corner, View of Rooftop Patios