PLANNING JUSTIFICATION REPORT ZONING BY-LAW AMENDMENT 256-258 Hespeler Road City of Cambridge Date: Prepared for: 258 Hespeler Cambridge Inc. Prepared by: MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC) 540 Bingemans Centre Drive, Suite 200 Kitchener, Ontario T: 519.576.3650 F: 519.576.0121 Our File 16195B
CONTENTS Introduction 1 1.0 Context 2 1.1 Site 1.2 Existing Planning Controls 1.3 Surrounding Land Uses 2.0 Description of Proposal 6 2.1 Proposed Site Plan 2.2 Official Plan Amendment 2.3 Zoning By-law Amendment 3.0 Planning Analysis 7 3.1 Provincial Policy Statement, 2014 3.2 Growth Plan for the Greater Golden Horseshoe, 2017 3.3 Region of Waterloo Official Plan, 2015 3.4 City of Cambridge Official Plan, 2012 3.5 City of Cambridge Zoning Bylaw 4.0 Urban Design Analysis 22 i
5.0 Public Consultation Strategy 33 6.0 Summary of Technical Studies 34 6.1 Environmental Impact Study 6.2 Noise Impact Study 6.3 Functioning Services and Stormwater Management Report 6.4 Geotechnical Investigation 6.5 Phase One Environmental Site Assessment 6.6 Phase Two Environmental Site Assessment 7.0 Conclusion 40 ii
LIST OF FIGURES After Page Figure 1 Location Map 1 Figure 2 Aerial Map 1 Figure 3 City of Cambridge Official Plan Map 1A Urban Structure 5 Figure 4 City of Cambridge Official Plan Map 2 General Land Use Plan 5 Figure 5 City of Cambridge Official Plan Figure 2 Community Node, Can- Amera/Hespeler Road 5 Figure 6 City of Cambridge Official Plan Map 15 Source Water Protection Areas 5 Figure 7 City of Cambridge Official Plan Map 9 Regional Environmental Features 5 Figure 8 Hespeler Road Secondary Plan Study Area 5 Figure 9 City of Cambridge Zoning By-law Map H10 5 Figure 10 Surrounding Land Uses 5 Figure 11 Proposed Site Plan 6 Figure 12 Proposed Elevations 21 Figure 13 Growth Plan for the Greater Golden Horseshoe Schedule 5 Moving People Transit 21 iii
INTRODUCTION MacNaughton Hermsen Britton Clarkson Planning Limited (hereinafter MHBC ) has been retained by 258 Hespeler Cambridge Inc., which is managed by JD Development Group (hereinafter the Owner ) to provide justification in support of applications to amend the City of Cambridge Zoning By-law to permit a proposed cluster row townhouse residential development. The property is municipally addressed as 256-258 Hespeler Road in the City of Cambridge and is hereinafter referred to as the subject lands. The residential proposal involves the development of three-storey cluster row townhouses containing a total of 49 units with single car garage parking and one driveway per unit, as well as 13 designated visitor parking spots. The proposed development has been designed to be of a density and scale that is compatible with the vision for the Hespeler Road and Can-Amera Parkway Community Node. The end units of the development that face onto Hespeler Road have been designed to provide an interesting façade and street frontage. A Zoning Bylaw Amendment is required to rezone the subject lands to implement the proposed Official Plan Amendment and establish the appropriate zone category to accommodate the development proposal. The purpose of the proposed Zoning By-law Amendment is to implement the changes in Official Plan Amendment 17, which changed the designation of the lands from Commercial Class 4 to Hespeler Road Mixed-Use Corridor which now permits residential uses. A Site Plan Approval application is also required and will be applied for at a later date. A Preconsultation Meeting was held with City and Regional Staff on January 26, 2017. The following Technical Studies were identified as required to form a complete application under the Planning Act: Planning Justification report Environmental Impact Study Salt Management Plan Functional Servicing Report Stormwater Management Report Noise Study (Transportation and Stationary) Site Grading and Servicing Plan Preliminary Site Plan In addition to these requested documents, the following have also been provided in support of the Zoning By-Law Application: Geotechnical reports (Site investigation; Phase One and Two Environmental Site Assessment) Urban design analysis (Section 4 of this report) A traffic report was not requested by the City, and thus not included in support of this application. 1
MAPLE GROVE RD HIGHWAY 401 PINEBUSH RD EAGLE ST FRANKLIN BLVD BLAIR RD CITY C.P.R. DUNDAS ST Grand River HESPELER RD GEORGE ST OF CAMBRIDGE CLYDE RD County of Wellington Region of Waterloo BLENHEIM RD Figure: 1 LEGEND DATE: Location Plan Subject Lands FILE: 16195B north SCALE 1 : 50,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 1 - LOCATION PLAN.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Base Map Source: SLRN - Region of Waterloo, 2011
d eler R Hesp on rvati nse s Co e i r f Dum Area kwy era P m A Can Mun Aerial Photo LEGEND Subject Lands ve DATE: north Figure: 2 ch A FILE: 16195B SCALE 1 : 5,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 2 - AERIAL PHOTO.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Base Map Source: Google Earth 2017
1.0 CONTEXT 1.1 Site The subject lands are approximately 1.13 hectares in size and located on the west side of Hespeler Road, north of Can-Amera Parkway (Figure 1) and are municipally addressed as 256-258 Hespeler Road. The subject lands are legally described as Lot 45 RCP 1376 Cambridge; s/t B32327; Cambridge; together with an easement over Part Lot 46 Plan 1376, Part 4 Plan 58R18750; Part Lot 47 Plan 1376, Part 6 Plan 58R18750; Part Lot 3 Concession 12, EGR North Dumfires, Part 7 Plan 58R18750, as in WR942973; City of Cambridge, Land Titles Division of Waterloo (No. 58), as identified by Property Identification Number 03793-0029(LT). The subject lands are located in the City of Cambridge, Regional Municipality of Waterloo and are located within the Can-Amera/Hespeler Road Community Node. An aerial image of the subject lands is enclosed as Figure 2 to this Report. A building that houses the YMCA Immigrant and Employment Services is currently located on the site, and is proposed to be demolished. The Chaplin Family YMCA is located to the immediate south of the subject lands. A portion of the lands is located within the Dumfries Conservation Area. The majority of the subject lands are currently paved over. There are no other structures on the property. The subject lands are currently serviced with full municipal services. 1.2 Existing Planning Framework The following provides an overview of the regional and municipal planning controls that apply to the Subject Site: Regional Official Plan (2015): The subject lands are located within the Urban Area and further designated as within the Built-Up Area in the Regional Official Plan. Lands within the Urban Area are intended to accommodate the majority of growth within the Region to the year 2031. A substantial portion of growth in the Urban Area is to be subsequently accommodated within the Built-Up Area. The subject lands abut onto the North Dumfries Conservation Area, which is regionally designated as a Core Environmental Feature on Map 4 Greenlands Network of the Regional Official Plan. The Greenlands Network 2
and the ecological functions it provides, contributes to maintaining the environmental health of Waterloo Region and the Grand River Watershed. City of Cambridge Official Plan (2012): The subject lands are located within the Built-Up Area as identified on Map 1A Urban Structure of the Official Plan (Figure 3). A significant portion of growth forecasted for the City is to be accommodated on lands in the Built- Up Area. Prior to Official Plan Amendment 17, the subject lands were designated Commercial Class 4 on Map 2 - General Land Use Plan of the Official Plan (Figure 4). The City of Cambridge Official Plan Amendment 17 (hereinafter OPA 17) designates the subject lands as Hespeler Road Mixed Use Corridor. The planned function of this designation is to provide opportunities for transitoriented development supportive of the Region of Waterloo s rapid transit initiative. Lands that are part of this designation may be developed for one or more of commercial, residential, office, and institutional uses. OPA 17 has been adopted by City Council and is pending full approval by the Region of Waterloo. The subject lands are located within the Can-Amera/Hespeler Road Community Node (Figure 5). Community Nodes are intended to provide services to surrounding neighbourhoods and are planned to be medium to high density mixed-use centres. The subject lands are also located within Wellhead Protection Area WPSA-8 on Map 15 Source Water Protection Areas (Figure 6). WPSA-8 delineates the area outside of the ten year time of travel to the limit of the total land area contributing water to a municipal drinking-water supply well. Many industrial uses are permitted within WPSA-8, with the exception of Category A uses (Very High Risk Uses). However, geothermal wells, mineral aggregate operations and wayside pits and quarries may be permitted subject to further study in accordance with the Regional Implementation Guidelines for Source Water Protection studies. The subject lands abut onto the North Dumfries Conservation Area, which is recognized as a Core Environmental Feature on Map 9 Regional Environmental Features of the Official Plan (Figure 7). Core Environmental Features (CEF) are those natural features identified or approved as being provincially or regionally significant. CEF are the most significant elements of the regional landscape in terms of maintaining, protecting and enhancing biodiversity and important ecological functions. 3
The subject lands are also included within the Can-Amera/Hespeler Road Community Node. This Community Node is planned as a mixed use node and will accommodate a range of housing including townhouses and apartment buildings. This node is a council-endorsed Major Transit Station Area and as such will be developed at transit supportive densities and at a pedestrian scale. Detailed land use policies and finalization of the Can-Amera/Hespeler Road Community Node boundaries will be established through a Secondary Plan (Figure 8) and implemented through a further amendment to the Official Plan. The policies of the Can-Amera Community Node restrict auto-oriented uses to the south-east quadrant of the intersection, and seek to reinforce the street and intersection with visually interesting facades using mixed-use multi-storey buildings along the Hespeler Road frontage. A Secondary Plan, and corresponding Land Use Plan, has not yet been completed for this node at this time. Various background studies such as the Comprehensive Citywide Commercial Policy Review, Central Transit Corridor Community Building Strategy and Groff Mill Creek Flood Plain Study, will be used as input to the Secondary Plan. City of Cambridge Zoning By-law 150-85: The subject lands are zoned Commercial Use Class 4 (Figure 9). Cluster row townhouse dwellings are not permitted in this zone category. 1.3 Surrounding Land Uses The subject lands are situated within the central part of the City and are surrounded primarily by commercial, institutional, and natural uses (Figure 10). Uses that immediately surround the subject lands include: North: Immediately abutting the subject lands to the north is the Dumfries Conservation Area. This area is expected to be maintained and remain preserved for natural uses for the foreseeable future. North of the subject lands along Hespeler Road is the Cambridge Centre, a large commercial shopping centre that serves the City as well as many restaurants. West: The Dumfries Conservation Area abuts the subject lands to the west. 4
South: To the south of the subject lands are the Chaplin Family YMCA, a retirement home, and several mid-to-high density residential uses. Townhouse residential uses are also found further south of the subject lands along Isherwood Avenue. East: To the east of the subject lands are several commercial uses including car dealerships, a flea market, and a paintball centre. Further east of the subject lands is the Wedges N Woods Golf Academy. Low density single-detached residential uses can also be found to the east of the subject lands. Community, transit and commercial amenities and public services in the vicinity of the subject lands include the following as further illustrated in Figure 10: Transit stops for the 51 Hespeler, 60 Cambridge Centre Station and the ixpress 200 Conestoga Mall/Ainslie Terminal transit routes, which provide access to shopping opportunities to the south, the Downtown/Ainslie Transit Terminal, and through Kitchener and Waterloo; Dumfries Conservation Area, and the Chaplin Family YMCA; Elgin Street Public School and Avenue Road Public School; Cambridge Centre at the northeast corner of Hespeler and Dunbar, which includes a Zehrs grocery store, financial services (bank), Hudson s Bay, and restaurants; and In summary, the site is well located relative to established residential neighbourhoods, existing commercial areas, and other amenities and services. The site is also located within an area that contains townhouse developments nearby and is included within the Secondary Plan boundary for the Hespeler Road Corridor Secondary Plan and the Can- Amera/Hespeler Road Community Node. 5
Figure: 3 LEGEND DATE: City of Cambridge Official Plan, Map 1A, Urban Structure (2012) Subject Lands Regeneration Areas Urban Area Boundary Built-Up Area Designated Greenfield Area Rivers and Lakes FILE: 16195B SCALE : 1:20,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURES - CAMBRIDGE OP.DWG north City Limits 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Source: City of Cambridge, Official Plan 2012
Figure: 4 LEGEND DATE: City of Cambridge Official Plan, Map 2, General Land Use Plan (2012) Subject Lands Low Density Residential High Density Residential Future Urban Reserve Commercial Class 1 Recreation, Cemetery and Open Space Natural Open Space Employment Corridor Business Industrial FILE: 16195B SCALE : 1:20,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURES - CAMBRIDGE OP.DWG north Commercial Class 3 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Commercial Class 4 Commercial Class 5 Source: City of Cambridge, Official Plan 2012
north Figure: 5 LEGEND DATE: City of Cambridge Official Plan Figure 2 Community Node, Can-Amera Parkway Hespeler Road Subject Lands Node Boundary Future Study Area for Inclusion in Node Boundary FILE: 16195B SCALE : NTS DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 5 - COMMUNITY NODE OP.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Source: City of Cambridge, Official Plan 2012
City of Cambridge Official Plan, Map 15 Source Water Protection Areas (2012) LEGEND Subject Lands FILE: 16195B SCALE 1 : 50,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 6 - MAP 15 SOURCE WATER PROTECTION.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo DATE: north Figure: 6 Base Map Source: City of Cambridge Official Plan
north Figure: 7 LEGEND DATE: City of Cambridge Official Plan, Map 9, Regional Environmental Features (2012) Subject Lands Core Environmental Features (RMW) Significant Valleys (RMW) Environmentally Sensitive Landscapes (RMW) Environmental Features outside City Boundary (RMW and Province) FILE: 16195B SCALE : 1:20,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURES - CAMBRIDGE OP.DWG Watercourse 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Source: City of Cambridge, Official Plan 2012
north Figure: 8 LEGEND DATE: Hespeler Road Secondary Plan Study Area Subject Lands FILE: 16195B SCALE 1 : 50,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 8 - HESPELER ROAD SECONDARY SCHOOL.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Base Map Source: SLRN - Region of Waterloo, 2011
Figure: 9 DATE: City of Cambridge FILE: 16195B Zoning By-Law, Map H10 Commercial Industrial SCALE : 1:20,000 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo LEGEND Subject Lands Institutional Low-Density Residential Medium-High Density Residential Open Space Source: City of Cambridge, Official Plan 2012 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 9 - ZONING.DWG north
tial iden De Low- Re nsity nd nt La Vaca Hesp d eler R hip s ealer Car D on rvati nse s Co e i r f Dum Area wy ra Pk Ame Can- A YMC Car D ship ealer alers e Car D hip ity Dens l w o L entia Reid ity Dens h g i H ial dent Resi Mun e hous Town ntial e Reid Polic e v ch A tion e Sta e hous Town ntial e Reid Surrounding Land Uses LEGEND Subject Lands FILE: 16195B Transit Stop ION Bus Route Bus Route 64 Bus Route 60 Bus Route 51 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo DATE: north Figure: 10 Base Map Source: Google Earth 2017 SCALE 1 : 5,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 2 - AERIAL PHOTO.DWG
2.0 DESCRIPTION OF PROPOSAL The following is a review of the proposed development and amendments to the City of Cambridge Zoning By-law to facilitate the proposed cluster row townhouse development. 2.1 Conceptual Site Plan The proposed site plan (Figure 11) provides for the establishment of eight, three-storey cluster row townhouse blocks containing a total of 49 three-bedroom units. Three unit types (A, B and C) are proposed, with Blocks 1 through 6 to be along the proposed roadway that enters from Hespeler Road. Block 7 is located on the north side of the roadway and Block 8 is located at the western end of the proposed development. A new driveway access and visitor parking area is to be established in the middle of the site central to the proposed townhouse blocks. Two end units will front Hespeler Road and have enhanced architectural design as contemplated in the design consultations. The proposed parking area will accommodate 49 resident parking spaces, and 13 visitor parking spaces for a ratio of 1.26 spaces per unit. In addition to each units driveway, garages are provided for each of the units as additional parking. Each unit will also have access to a private amenity area, in the form of a backyard and roof terrace. 2.2 Zoning By-law Amendment The purpose of the proposed Zoning By-law Amendment is to implement the changes in Official Plan Amendment 17, which changed the designation of the lands from Commercial Class 4 to Hespeler Road Mixed-Use Corridor, which now permits residential uses. Generally, the proposed Amendment will rezone the entirety of the subject lands to the RM3 Zone with site specific regulations to permit: A maximum net residential density of 60 units per hectare; A reduced minimum front yard setback; A reduced interior yard setback; and Permit the inclusion of rooftop terraces in the definition of private amenity area. The proposed Zoning By-law Amendment is discussed below in Section 3.5. 6
Figure 11
3.0 PLANNING ANALYSIS This section demonstrates that the proposed Zoning By-law Amendments are consistent with and conform to the applicable Municipal, Regional and Provincial planning regulatory framework. 3.1 Provincial Policy Statement, 2014 The Provincial Policy Statement (2014) (hereinafter referred to as the PPS ) applies to planning decisions made on or after April 30, 2014. As a result, the 2014 PPS is applicable to the proposed amendments and development of the subject lands. The PPS outlines policy for Ontario s long term prosperity, economic health, and social well-being. These directives depend on the efficient use of land and development patterns that support strong, livable and healthy communities that protect the environment and public health and safety, and facilitate economic growth. The PPS policies relevant to the proposal and subject lands have been reviewed and responded to as part of this analysis. Policy 1.1.1 of the PPS states that healthy, liveable and safe communities are sustained by the following: 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 (including second units, affordable housing and housing for older persons), employment (including industrial and commercial), institutional (including places of worship, cemeteries and long-term care homes), recreation, park and open space, and other uses to meet long-term needs; c) Avoiding development and land use patterns which may cause environmental or public health and safety concerns; d) Avoiding development and land use patterns that would prevent the efficient expansion of settlement areas in those areas which are adjacent or close to settlement areas; e) Promoting cost effective development patterns and standards to minimize land consumption and servicing costs; f) 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. 7
g) Promoting development and land use patterns that conserve biodiversity and consider the impacts of a changing climate. The proposal supports these objectives by: Intensifying urban residential land that is located within the Built-Up Area of the City of Cambridge, within a Community Node and connected to full municipal services to accommodate additional housing within the neighbourhood; Providing an alternative dwelling form (i.e. cluster row townhouses) to increase the mix of housing types in the neighbourhood; Providing a housing form that does not cause environmental or public health and safety concerns; Utilizing land within the Built-Up Area to accommodate additional residential growth that will support the function of the Community Node; Intensifying municipally-serviced urban residential land along an existing arterial road; and Facilitating development within the Built-Up Area that will have no impact on existing natural heritage features. Policy 1.1.3.1 states that settlement areas shall be the focus of growth and development, and their vitality and regeneration shall be promoted. The subject lands are within the Built-Up Area and are currently underutilized. The proposed amendments facilitate the intensification of the existing property to a medium density form of housing that will support the planned function of the Can- Amera/Hespeler Road area as a compact, mixed-use, pedestrian-friendly and transit-supportive node. 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, 6. are freight supportive; The proposed development will provide for an efficient use of land and resources by intensifying an underutilized property in a mature neighbourhood and accommodate more people living in close proximity to existing commercial/shopping opportunities. The development will efficiently use existing municipal infrastructure. The subject lands are located on an arterial road and in close proximity to 8
transit stops and bicycle routes that provide transportation options for new residents to nearby shopping and community amenities. Policy 1.1.3.4 states that appropriate development standards should be promoted which facilitate intensification, redevelopment and compact form. The proposed amendments seek to recognize the location and configuration of the subject lands by facilitating a development that is characterized by a compact housing form and a higher residential density than that which is currently contemplated for the area while still meeting minimum parking and amenity area requirements of the Zoning By-law. The proposed development will also contribute to the achievement of the City s residential intensification target. Section 1.4 provides the policy framework related to housing. Policy 1.4.3 requires planning authorities to provide for an appropriate range and mix of housing types and densities to meet projected requirements of current and future residents, including the provision of affordable housing. The development of new housing is also to be directed to locations with appropriate levels of infrastructure and public service facilities and at densities that efficiently use land and resources and support the use of transit under Policy 1.4.3. Generally, the proposed amendments facilitate the development of underutilized residential land that is currently connected to municipal services and has access to a range of public service facilities, community amenities, and public transit to a multiple housing form that ultimately contributes to the mix of housing in the surrounding neighbourhood. Intensification and redevelopment is promoted within settlement areas on existing municipal sewage and water services by Policy 1.6.6.1. The subject lands are serviceable by existing municipal services. The proposed amendment is consistent with the Provincial Policy Statement, 2014. 3.2 Growth Plan for the Greater Golden Horseshoe, 2017 The 2017 Growth Plan for the Greater Golden Horseshoe ( Growth Plan ) was released on May 18, 2017 and came into effect on July 1, 2017. The Growth Plan is a framework for implementing the Provincial Government s vision for building stronger, prosperous communities by better managing growth in the Greater Golden Horseshoe. The policies of the Growth Plan continue to centre on the key themes of directing growth to built up areas and the promotion of transit-supportive densities and a healthy mix of residential and employment land uses. Among the guiding principles of the Plan include: Build compact, vibrant and complete communities; Optimize the use of existing and new infrastructure to support growth in a compact, efficient form; and Provide for different approaches to managing growth that recognize the diversity of communities in the GGH 9
The built up area remains the focus for growth in settlement areas. As per Policy 2.2.2.3, the minimum residential intensification target of 45% for the City of Cambridge contained in the Regional Official Plan remains until the next Municipal Comprehensive Review is approved and in effect. The proposed development will contribute to the achievement of this residential intensification target and support the use of existing transit. Specific to transit, Policy 2.2.4.1 states that planning will be prioritized for major transit station areas on priority transit corridors, including zoning in a manner that implements policies of the Growth Plan. Urban growth centres and priority transit corridors are shown in Figure 13. The subject lands are located in the Can-Amera/Hespeler Road Community Node, which is a proposed major transit station area and thus contributes to provincial and regional intensification objectives. The proposed amendment conforms to the Growth Plan for the Greater Golden Horseshoe, 2017. 3.3 Region of Waterloo Official Plan, 2015 The Regional Official Plan ( ROP ) was approved by the Ministry of Municipal Affairs and Housing with modifications on December 22, 2010, and approved, with amendments, by Oral Decision of the Ontario Municipal Board on June 14, 2015. The ROP outlines a vision for growth and development within the Region and establishes a number of general policies to plan and manage growth and implement provincial land use policy. An overarching goal of the ROP is to promote balanced growth by directing a larger share of new growth to the Built-Up Area. Policy 2.C.2 establishes a minimum residential intensification target of 45% within the Built-Up Area for the City of Cambridge. The proposed amendments will provide for the development of 49 cluster row townhouse units, at a density of 60 units per hectare, in the Built-Up Area that ultimately contributes to the achievement of this target. The proposed development is subject to the General Development policies (Policy 2.D.1) of the Regional Official Plan. The proposed amendments and proposed site plan conform to these policies as they provide for development that: will accommodate residential growth within the Urban Area, and more specifically the Built-Up Area of the City of Cambridge; is serviced by municipal water, sanitary and stormwater services that have been deemed adequate to accommodate the proposed development; increases the range of housing types available in the surrounding neighbourhood, at a greater density than adjacent developments, in an effort to establish a more compact urban form that supports planned function of the Can-Amera/Hespeler Road node and the use of existing transit, walking and cycling; does not affect any existing natural or cultural heritage resources; respects the scale, physical character and context of the surrounding neighbourhood by minimizing the amount of surface parking visible from Hespeler Road; 10
situates additional residents within proximity to Farm Boy, Zehrs and FreshCo grocery stores, facilitating access to healthy foods; and provides an opportunity to incorporate green building technologies through new development. With respect to Source Water Protection, the subject lands are located within a Wellhead Protection Sensitivity Area (WPSA) 8 as identified on Map 6a of the ROP. WPSA-8 delineates the area outside of the ten year time of travel to the limit of the total land area contributing water to a municipal drinkingwater supply well. Many industrial uses are permitted within WPSA-8, with the exception of Category A uses (Very High Risk Uses) by Policy 8.A.18 of the ROP. A Notice of Source Protection Plan Compliance was issued under Section 59(2) of the Clean Water Act. The proposed development is not subject to either Section 57 (Prohibition) or Section 58 (Risk Management Plan) of the Act. The proposed amendment conforms to the policy direction of the Regional Official Plan, 2015. 3.4 City of Cambridge Official Plan, 2012 The City of Cambridge Official Plan was approved by the Region of Waterloo in November 2012. Parts of the Plan remain under appeal to the Ontario Municipal Board. Despite these appeals, the 2012 Official Plan represents the desired policy framework of the City to direct growth and development to 2031 and as such the proposed amendments shall be reviewed through the relevant policy framework. The subject lands are located within the Built-Up Area and designated as Hespeler Road Mixed-Use Corridor. Section 2.6.1 of the Official Plan provides the policy framework for intensification within the Built-Up Area. Future development within the Built-Up Area is to contribute to the achievement of the annual 45% reurbanization target. Policy 2.6.1.8 requires intensification and redevelopment within existing neighbourhoods to be minor in nature, designed to respect existing character, and provide connections and linkages where possible. Policy 2.6.1.6 further states that intensification within the Built-Up Area will be planned and designed to provide for a mix and range of housing that takes into account affordable housing needs; supports walking, cycling and transit; generally achieves higher densities than surrounding areas; and ensures an appropriate transition of built form to adjacent areas. Official Plan Amendment 17 was approved by City of Cambridge Council on November 15 th, 2016. 1 This amendment changed the designation of the lands from Commercial Class 4 to Hespeler Road Mixed- Use Corridor which now permits residential uses. Lands designated as Hespeler Road Mixed-Use Corridor may be developed for one or more of commercial, residential, office and institutional uses. This designation provides opportunities for transit oriented development supportive of the Region of Waterloo`s rapid transit initiative that will help the City achieve the growth management objectives as set out in Policy 2.2. Official Plan Amendment 17 facilitates the development of the subject lands in the form of cluster row townhouse dwellings, a permitted residential use in the Hespeler Road Mixed-Use Corridor designation. 1 The Region of Waterloo has yet to approve Official Plan Amendment 17. 11
The amendment provides for high density mixed-use development in the Hespeler Road corridor and the cluster row townhouse proposal will contribute to the range and mix of housing types in the surrounding neighbourhood and situate additional residents within walking distance of shopping, school, and outdoor amenities. This amendment also takes into consideration the vision for the Can- Amera/Hespeler Road Community Node. Through the ongoing development of the secondary play for the Hespeler Road Corridor, this vision includes increasing opportunities for intensification (including mixed use, medium density and high density residential) to support the planned investments in transit. The secondary plan will result in further amendments to the City`s Official Plan. Policy 8.4.6.8 states the following with respect to siting higher density development within the City: 8.4.6.8 The City will promote compatible higher density development in locations which meet the criteria for multi-unit residential development outlined in Section 8.4.3 of this Plan and compatibility criteria in Section 8.4.2 of this Plan. Policy 8.4.3 further states: 8.4.3 The City will encourage the use of lands in residential designations to provide sufficient units in multi-unit residential development to meet the policies in Section 2.8.2 [Range and Mix of Housing Types] of this Plan The multi-residential dwelling locational criteria established in Section 8.4.3 of the Official Plan are met by the proposed development as follows: a) Is located on an arterial or collector road, or is directly accessible to any such road through the local road network where it is not likely to generate sufficient traffic to disturb the peaceful and quiet enjoyment of neighbouring residential properties located on such local access road; Hespeler Road and Can-Amera Parkway are Arterial Roads as identified in Map 7A of the Official Plan. b) Is conveniently located within reasonable distance of public transit, recreational open space and shopping facilities and, if the building is proposed to be designed for occupancy by households with children, is also located within convenient walking distance to an elementary school; As illustrated in Figure 10, transit stops for the 51, 60 and 200 GRT transit routes are located within walking distance of the subject lands, respectively. The Cambridge Centre shopping centre is within walking distance of the site, providing access to financial establishments, shopping, restaurants and services. The Dumfries Conservation Area is located within walking distance to the north of the site, and Elgin Street Public School is located to the east. The 12
c) Has a suitable size and configuration to: i. Permit the separation or appropriate integration of on-site vehicular and pedestrian traffic; ii. Provide for adequate access and circulation by emergency vehicles; iii. Provide adequate on-site landscaping to: establish suitable outdoor amenities and recreational facilities for the building s occupants; screen parking areas; and provide effective buffering and screening to ensure the privacy of outdoor recreational areas on the site as well as on adjoining properties; iv. Provide adequate grading and stormwater management features to ensure the drainage of surface waters to on-site stormwater management facilities or to public storm drainage facilities and not to adjoining properties; Chaplin Family YMCA directly abuts the subject lands to the south. Existing commercial uses and properties in the Can-Amera/Hespeler Community Node are envisioned to intensify over time with additional uses and services. Generally, the subject lands are conveniently located close to a number of existing amenities and services. Two driveway accesses (one new and one using existing easement) and residential unit parking with shared visitor parking is proposed within the interior of the development with one sidewalk on the north side to ensure safe pedestrian movement throughout the site. A relocation of the existing pedestrian island in Hespeler Road may be required to accommodate the proposed site access and ensure safe traffic movements. The alignment of the pedestrian island, the internal sidewalk network and connection to the existing development will be further reviewed and confirmed through the site plan approval process. The conceptual site plan includes a sufficient turning point at the western end of the roadway. Emergency vehicles can enter/exit from either of the proposed entrances to the development. Suitable outdoor amenities are provided through the inclusion of rooftop terraces as additional private amenity space. The conceptual site plan demonstrates that the configuration of new buildings and proposed yard setbacks are appropriate to establish centralized common amenity areas that are screened from Hespeler Road and have minimal frontage along proposed parking areas. New buildings also screen the proposed parking area. Sufficient landscape areas in the side yards can be accommodated to screen 13
proposed amenity areas from adjacent properties. Proposed balconies and terraces for each unit generally face the internal road or proposed common amenity areas. A Functional Servicing Report/Stormwater Management Report has been prepared by WalterFedy, and concludes that the existing stormwater management facility in the northwest corner of the subject lands will continue to be utilized for a portion of the proposed development. Drainage of surface waters will be directed to the on-site facility as well as public storm drainage facilities. d) Is proposed to be developed in such a manner and at such a scale that the site and building design, building height, setbacks, landscaping and vehicular circulation will ensure the proposed development is compatible with existing development on adjoining lands, as outlined in Section 8.4.2 of this Plan; and e) Will include wherever possible the preservation and protection of the natural environment and cultural heritage resources. The proposed redevelopment has been evaluated with respect to the criteria outlined in Section 8.4.2 of the Official Plan in the following pages of this Report and is determined to be compatible with surrounding uses, the vision for the subject lands, and surrounding properties as presented in the City of Cambridge Official Plan. The subject lands are adjacent to the Dumfries Conservation Area. An Environmental Impact Study was prepared by LGL Ltd. and concluded that appropriate buffering distances have been established to ensure that the proposed development does not negatively impact the abutting core environmental features. Policy 8.4.3 d) requires that multi-unit residential developments are to be developed in a manner that is compatible with existing development on adjoining lands, as outlined in Section 8.4.2 of the Official Plan. Policy 8.4.2.1 identifies the factors to be considered in assessing the compatibility of a proposed development within residential neighbourhoods with respect to the density, location and character of surrounding land uses. The proposed redevelopment is compatible with the surrounding residential neighbourhood and meets the compatibility criteria established in Policy 8.4.2.1 of the Official Plan as follows: a) The density, scale, height, massing, visual impact, building materials, orientation and architectural character of neighbouring buildings and the proposed development; New buildings have been sited to front and face the interior road that is part of the proposed development. The proposed front yard setback for the lots is also sufficient to accommodate 14
b) The conservation, protection, maintenance and potential enhancement of the natural environment and cultural heritage resources; c) The continued viability of neighbouring land uses; appropriate landscaping to soften the visual impact of proposed buildings at street level. The proposed building height is consistent with the adjacent property (Chaplin Family YMCA) and meets the density requirements with a Floor Space Index of 1.0. The surrounding properties are intended to intensify over time and therefore it is anticipated that building scale between the proposed development and surrounding properties will be similar when they are redeveloped. It is noted the subject lands are included within an intensification node and as such increased density through new development is anticipated in this area. While architectural details of the development will be confirmed at the site plan approval stage, the preliminary site plan and streetscape design enclosed herein as Figure 11 and 12 demonstrate that the design of the development meets the Urban Design policies in Chapter 5 of the Official Plan. Please refer to the Urban Design Analysis (Section 4) for more details. The subject lands are adjacent to the Dumfries Conservation Area. Appropriate buffering distances have been established to ensure that the proposed development does not negatively impact the abutting natural heritage features. The proposed development will not affect the viability of neighbouring land uses. Pedestrian and vehicular movement and linkages, as well as parking requirements and design in both existing development and proposed developments; e) Landscaping, setbacks, sun and shadow effects, wind effects, signage, lighting and The proposed driveway access to Hespeler Road is located in the centre of the site and an internal sidewalk network connects all areas within the development and the external sidewalk. Required parking for the development as per the RM3 Zone is accommodated in the proposed parking area. The proposed reduced front yard setback is intended to establish a more pedestrian- 15
buffering of existing development and proposed developments; oriented streetscape along Hespeler Road in the Node. Matters such as shadow impacts, site lighting and landscaping will be addressed at the site plan approval stage. It is noted that the proposed yard setbacks are sufficient to accommodate adequate landscaping for buffering purposes as required. f) Noise attenuation; A Noise Impact Study was completed by Swallow Acoustics and concludes that through the incorporation of noise control measures, the noise impact of the transportation noise sources on the proposed development will meet MOECC/Region of Waterloo criteria. There are existing stationary sources (rooftop equipment at the YMCA) that may impact the project; however mitigation will reduce levels in order to meet noise level limits. Mitigation strategies will be confirmed through the site plan process of this development. g) Odour, dust and emission impacts; The site is not proposed to produce any odour, dust or other emissions. h) Transportation implications; and A Traffic Impact Study was not required to be undertaken in support of the proposed amendment. i) Transitions between different land uses and between sites having varying permitted uses. As a designated mixed-use corridor, a range of uses are permitted on and surrounding the proposed development. The Chaplin Family YMCA is south of the subject lands, with commercial/business uses located on the Eastern side of Hespeler Road, across from the proposed development. It is anticipated that uses in this corridor will evolve over time to include a range of residential, office, commercial and business uses. Landscaping will be utilized to improve the transition between surrounding uses. Policy 8.4.2.2 of the Official Plan establishes criteria to assess whether intensification and redevelopment within existing neighbourhoods is minor in nature and compatible with the surrounding neighbourhood. Due to Official Plan Amendment 17 and the intention to redevelop for medium density 16
residential uses as part of the Hespeler Road Corridor Secondary Plan Area, Policy 8.4.2.2 could be considered not applicable to the proposed development. However, given the Secondary Plan Area is not yet in effect, an analysis of the proposed development to the criteria of Policy 8.4.2.2 was undertaken. The proposed redevelopment satisfies the criteria outlined in Policy 8.4.2.2 and further supports the proposed zoning by-law amendment as follows: a) Comparable building height, generally within two storeys of neighbouring buildings; The proposed development has a building height of approximately 12 metres which respects the height of the neighbouring YMCA that abuts onto Blocks 4, 5 and 6. The primary building façade is within a comparable building height to adjacent buildings. b) Massing and scale; New buildings along Hespeler Road are separated by the driveway access and assist in breaking up building massing along the street. Beyond the adjacent YMCA, existing commercial/business buildings are set back from Hespeler Road. The YMCA adjacent to the subject lands is located south of the property has a greater set back from Hespeler Road than the proposed development. This interruption in building facades along Hespeler Road further assists in breaking up the massing and scale of new buildings along the street. c) Similar lot coverage and side yard setbacks to neighbouring housing; d) Maintaining the predominant or average front yard setback; e) Built form respects the façade details and materials of neighbouring housing, including garage width, porches, screening and architectural details; There are no adjacent residential uses. The proposed 3 metre front yard setback represents an approach to improve the street wall/pedestrian environment along Hespeler Road within the node while recognizing the design limitations based on the required 10 metre buffer between the proposed development and the Dumfries Conservation Area which abuts the north and west sides of the subject lands. The building height for the proposed cluster row townhouses is proposed to be 3 storeys to be compatible with the adjacent natural feature and to provide a more human scale at the street level. The units facing Hespeler Road are proposed 17
with architectural detail and design to appear as a 4 storey building. The proposed buildings will incorporate a variety of materials that complement the existing housing and development in the area. High quality, durable building materials are proposed. No blank walls are proposed and the townhouses have been designed to be visually interesting. The streetscape and elevations design is included herein as Figure 12. f) Transportation implications; There are no anticipated transportation implications on lands to the east. Hespeler Road is an arterial road. h) Appropriate parking arrangements and traffic movement. Parking and traffic/emergency vehicle movement is accommodated within the proposed development. The amount of traffic generated by the proposed development is not anticipated to affect traffic movement in and out of the proposed development. An easement is in place with the YMCA to provide for traffic movement through the site to the subject lands. With respect to Residential Lands, Section 2.8 of the Official Plan states that the City of Cambridge will: a) encourage the development of a wide range of housing unit types to accommodate the needs, preferences and economic resources of the city s households; d) establish residential densities which are both appropriate to existing and new neighbourhoods and result in the compact development of the city s residential lands;... e) promote balanced residential intensification including individual lot intensification that is compatible with existing and permitted uses on neighbouring properties, as well as any other key natural and cultural heritage resources; Policy 2.8.2.3 further states that the City will ensure the creation of 45% of new housing units through intensification of built up areas within the city, particularly in areas such as Nodes. As the subject lands are located within the Can-Amera/Hespeler Road Community Node, the proposed amendment assists in the achievement of the 45% residential intensification target. Residential intensification and the development of multi-unit residential development in nodes in encouraged through Policy 2.8.2.6.a as 18
it will help meet the varying needs of City residents while also achieving growth management objectives. Policy 8.7.2.A further states the Can-Amera/Hespeler Road Community Node is a proposed Major Transit Station Area, and as such will be developed at transit supportive densities and at a pedestrian scale. The proposed development will contribute to the vision for this Community Node by reinforcing the street and providing visually interesting facades. The proposed development will contribute to the existing mix of housing in the surrounding neighbourhood through the addition of cluster row townhouse dwellings, while also contributing to City density targets. The proposed development has been demonstrated to be compatible with existing uses on neighbouring properties and contributes to the vision of the Can-Amera/Hespeler Road Community Node. Based on the updated designation as a mixed-use corridor through OPA 17, the proposed development conforms with the City of Cambridge Official Plan and will contribute to the redevelopment of the Hespeler Road corridor. Urban Design policies are contained in Chapter 5 of the Official Plan. In addition, Policy 8.7.2.A.8 provides urban design principles specific to the Can-Amera/Hespeler Road Community Node. Section 4.0 herein provides the analysis of how the proposed development conforms to the relevant urban design policies and considers the urban design direction contained in the City of Cambridge Official Plan. A portion of the subject lands are located in a Wellhead Protection Sensitivity Area (WPSA) 8. ROP Policy 8.A.15 of Appendix A: Regional Official Plan Policies Modified for Source Water Protection in Cambridge to the Official Plan identifies a range of primarily industrial and industrial-related uses that are prohibited or restricted within WPSA-8 areas. None of these uses are permitted through the proposed amendments or included in the proposed development. As stated above, a Notice of Source Protection Plan Compliance was issued under Section 59(2) of the Clean Water Act. The proposed development is not subject to either Section 57 (Prohibition) or Section 58 (Risk Management Plan) of the Act. The proposed amendment conforms to the policies of the City of Cambridge Official Plan, 2012. 3.5 City of Cambridge Zoning By-law The proposed Zoning By-law Amendment will rezone the subject lands to the RM3 zone category with the following special provisions: A maximum net residential density of 60 units per hectare; A reduced minimum front yard setback; A reduced interior yard setback; and Permit the inclusion of rooftop terraces in the definition of private amenity area. 19
The RM3 Zone is the appropriate zone category to implement the proposed Site Specific Policy and permit row cluster townhouses on the subject lands. The following is a comparison of the proposed special provisions with the regulations of the RM3 Zone: Regulation Required in RM3 Zone Proposed Amendment Minimum Front Yard (along Hespeler Road) 6 metres 3 metres Minimum Interior Side Yard 7.5 metres, provided that the yard may be reduced to 3 m if the wall of a unit faces a zone other than an R-class or RS-class zone and subject to 3.1.2.6(h) 1.5 metres Minimum Amenity Area per unit 40 m 2 of private amenity area located, provided, however, that such private amenity area may be reduced to a minimum of 30 m 2 if a common amenity area is provided at a ratio of 3 m 2 per dwelling unit, but the common amenity area shall not be less than 75 m 2 total Inclusion of rooftop terraces in private amenity area definition Maximum Density (dwelling units per net residential hectare) 40 60 Generally, the proposed special provisions seek to facilitate a more intensive form of residential development that is consistent with the vision for the subject lands outlined in the Policy 8.7.2.A of the City s Official Plan for the Can-Amera/Hespeler Road Community Node. The purpose of the reduced front yard setback is to permit the siting of new buildings closer to Hespeler Road in order to establish a new street wall and achieve a more pedestrian-friendly environment along the arterial road, while recognizing the location of the established building line of adjacent properties within the Node and located along Hespeler Road. The reduced front yard remains adequate to accommodate enhanced landscaping, and entrances to new buildings. The purpose of the reduced interior side yard is to permit a more compact form of development. The special provision regarding amenity area is required to clarify through the Zoning By-law what amenity area components can be included in the calculation of private amenity area for the development. The RM3 zone currently includes a minimum private amenity area requirement for cluster development of multiple unit residential buildings of 40 m 2 per unit. Under the definition of 20
private amenity area in the Zoning By-law, this may include balconies and decks attached to such dwelling unit. The proposed development includes private amenity areas for each unit in the form of rooftop terraces and exceeds the minimum requirement of 40m 2. The proposed special provision allows for the inclusion of rooftop terraces in the current private amenity area definition. The proposed Zoning By-law Amendment establishes an overall maximum net residential density of 60 units per hectare for the site. The requested maximum density is greater than that which is permitted in the RM3 Zone. As previously noted, the configuration of the subject lands and proposed housing form allow for the establishment of a greater number of dwelling units beyond the maximum permitted density while staying within the maximum height provisions of Policy 2.8.3 of the City s Official Plan as well as the minimum setback, parking, landscaped area and amenity area requirements of the RM3 Zone. The difference between the 40 and 60 units per hectare density ratios translates into an additional sixteen dwelling units on the subject lands, and the parking and amenity area requirements for these units can be accommodated in the proposed development. A 60 unit per hectare density ratio is still considered within the range of medium density density ratios. The Bylaw predates the City s Official Plan and OPA 17, which both increase the density permission on the lands. Furthermore, Section 8.7.2 of the City s Official Plan outlines the land uses permitted in Community Nodes, which includes high density residential. Therefore, the request is an implementation of the City s policy direction. The proposed Zoning By-law Amendment complies with the intent of the City of Cambridge Zoning By-law and appropriately implements Official Plan Amendment 17. The proposed amendment further considers the vision for the lands and adjacent lands established in the Can- Amera/Hespeler Road Community Node, and facilitates the proposed development. 21
Figure 12
north SUBJECT LANDS Figure: 13 Schedule 5 Moving People Transit LEGEND DATE: FILE: 16195B SCALE 1 : 500,000 DRAWN: NZ K:\16195B\REPORT\DWG\FIGURE 13 SCHEDULE 5 MOVING PEOPLE TRANSIT.DWG 258 Hespeler Cambridge Inc City of Cambridge Region of Waterloo Base Map Source: Growth Plan for the Greater Golden Horseshoe