PLANNING RATIONALE
Proposal: Official Plan and Zoning By-law Amendments to Permit a Mixed-use Development
Location: 2211 Riverside Drive and 1330, 1340 and 1346 Bank Street
Prepared for: Cushman Wakefield Asset Services ULC 161 Bay Street, Suite 1500, Box 602 Toronto, ON M5J 2S1
Prepared by: Stantec Consulting Ltd. 400-1331 Clyde Avenue Ottawa, ON K2C 3G4
September 8, 2020
CONTENTS 1. OVERVIEW ...... 4 2. CONTEXTUAL ANALYSIS ...... 5 2.1 Surrounding Context ...... 5 2.2 Site Context ...... 7 3. PROPOSED DEVELOPMENT ...... 9 4. POLICY REVIEW AND JUSTIFICATION ...... 11 4.1 Provincial Policy Statement 2020 ...... 11 4.2 Official Plan ...... 14 4.2.1 Section 3: Designation and Land Use ...... 14 4.2.2 Section 2.2.2: Managing Intensification within the Urban Area ...... 18 4.2.3 Section 2.5.1: Designing Ottawa ...... 21 4.2.4 Section 2.5.6: Collaborative Community Building & Secondary Planning Processes 23 4.2.5 Section 4.11: Urban Design and Compatibility...... 24 4.2.6 Section 4.7.3: Erosion Prevention and Protection of Surface Water ...... 25 4.3 Bank Street Secondary Plan ...... 26 4.4 Bank Street Community Design Plan ...... 30 5. URBAN DESIGN GUIDELINES ...... 30 5.1 High-rise Buildings ...... 31 5.2 Development Along Arterial Mainstreets ...... 35 5.3 Complete Streets ...... 36 5.4 Transit Oriented Development ...... 36 6. ZONING REVIEW ...... 37 7. SUMMARY OF REQUESTED AMENDMENTS...... 40 8. PUBLIC ENGAGEMENT STRATEGY ...... 43 8.1 Urban Design Review Panel ...... 43 9. SUPPORTING DOCUMENTATION ...... 44 10. CONCLUSION ...... 45
FIGURES Figure 1. Location Plan ...... 5 Figure 2. Surrounding Context ...... 6 Figure 3. Site Context ...... 7 Figure 4. Google Streetview Perspectives of the Site ...... 8
Figure 5. Google Render of the Site ...... 9 Figure 6. Excerpt of Concept Site and Landscape Plan (Hobin Architecture) ...... 10 Figure 7. Conceptual Architectural Rendering (Hobin Architecture) ...... 11 Figure 8. Excerpt of Schedule B of the Official Plan ...... 15 Figure 9. Excerpt of Appendix A – Land Use ...... 26 Figure 10. Zoning Extract ...... 38
TABLES Table 1. Summary of Anticipated Full Build-out ...... 4 Table 2. Conceptual Development Statistics (anticipated full build-out) ...... 10 Table 3. AM8 Zoning Matrix ...... 38 Table 4. Parking Matrix & Drive Aisle Summary (Schedule 1A Area Z & Schedule 1 Area B) ...39 Table 5. Amenity Area Matrix ...... 40 Table 6. Proposed Official Plan Amendment ...... 40 Table 7. Proposed Zoning By-law Amendment ...... 41
1. OVERVIEW This planning rationale has been prepared in support of applications by Cushman Wakefield Asset Services ULC (applicant), on behalf of Capital City Shopping Centre Limited (owner), for Official Plan and Zoning By-law Amendments for the property described municipally as 2211 Riverside Drive and 1330, 1340, and 1346 Bank Street (the site). The site is located at the southwest corner of Bank Street and Riverside Drive [north] in the City of Ottawa.
The above applications are in support of a proposed mixed-use development, which consists of two separate high-rise buildings, an urban parkette, and below grade parking that is shared between the two buildings. The high-rise built form of the proposed buildings will consist of a stepped-back podium and tower design. The intended full build-out of the site is summarized below in Table 1.
TABLE 1. SUMMARY OF ANTICIPATED FULL BUILD-OUT Development Yield Feature North Building South Building TOTAL
Footprint 1,146 m2 1,415 m2 2,561 m2
Residential Units & 256 units 308 units 564 units Gross Floor Area (GFA) 18,332 m2 19,970 m2 38,302 m2 Ground Floor Non- NA 334.7 m2 (3,603 ft2) 334.7 m2 (3,603 ft2) residential GFA 292 vehicle stalls (21 surface, 271 below grade) Parking 283 bicycle spaces (282 residential, 1 commercial)
The proposed Official Plan Amendment is required in order to permit building and site design elements relating to height, floor space index, stepbacks, and street facing building wall policies within the Bank Street Secondary Plan. Similarly, the proposed Zoning By-law Amendment is to permit an increase in height and to address other proposal-specific performance standards. The proposed development will also require site plan approval, however, the intent is to first proceed with the Official Plan and Zoning By-law Amendments, and once the respective circulation comments are received, to then proceed with an application for site plan control.
It is our professional opinion that the proposed development represents good land use planning that is in the public interest, is consistent with the policies of the Provincial Policy Statement 2020, and is in conformity and compliance with the general intent and purpose of the City of Ottawa’s applicable Official Plan policies and zoning by-law regulations.
This report and the supporting material included with the application submissions, demonstrate that the proposed development and requested approvals are appropriate for facilitating a desirable and efficient use of underutilized land intended for mixed-use intensification.
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2. CONTEXTUAL ANALYSIS 2.1 SURROUNDING CONTEXT The site is located within Ward 17 – Capital, which is within the City’s Urban Policy Area. More specifically, the site is located in the community of Billing’s Bridge, which is generally bound by the Rideau River to the north, Heron Road to the south, Bronson Avenue to the west, and Alta Vista Drive to the east.
Dows Lake
SUBJECT SITE
FIGURE 1. LOCATION PLAN
As detailed below, this area of the City is characterized by distinct transitions in land use and built form, and by substantial transportation infrastructure: a. To the general southwest of the site is the Billings Bridge Shopping Centre, the RA Centre, Carleton University, and Confederation Heights. These landmarks and destinations present characteristics typical of 1960s-era planning (i.e., campus-like settings; substantial surface parking and building separation; vehicle-oriented; large parcels and single-use buildings). b. The lands to the south along Bank Street consist of a mix of low to high-rise residential, commercial, and office uses, which transition down to primarily low-rise residential neighbourhoods east and west of the mainstreet corridor.
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c. The lands to the east and north along Riverside Drive consist of a mix of residential and institutional uses which transition from lower to higher density building forms as Riverside Drive approaches Hurdman Station. d. The lands to the north of the site and the Rideau River make up the south portion of Old Ottawa South, one of Ottawa’s historic neighbourhoods where growth has been directed primarily along the Bank Street corridor, connecting to Billings Bridge to the south and Lansdowne and the Glebe to the north. e. The subject site and lands immediately surrounding it are characterized by a mix of uses and building forms, including an automobile dealership and garage, a fast-food restaurant, a former sit-down restaurant, a tailor shop, low to mid-rise office buildings, and a City of Ottawa water pumping station. These lands are unique in that they’re bound by a road network and pockets of greenspace that frame them into a distinct node at the intersection of Bank Street and Riverside Drive. f. The open space network to the north of the site connects large tracts of greenspace along the Rideau River, which are primarily lands owned by the National Capital Commission (NCC). This greenspace is the Rideau River Eastern Pathway, a popular multiuse pathway that extends from Hog’s Back Falls to Rideau Falls Park.
OLD OTTAWA SOUTH COMMUNITY
ALTA VISTA COMMUNITY SUBJECT SITE
BILLINGS BRIDGE CARLETON SHOPPING CENTRE UNIVERSITY
RA CENTRE
CONFEDERATION HEIGHTS
FIGURE 2. SURROUNDING CONTEXT
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2.2 SITE CONTEXT The site is made up of four abutting parcels with frontage along the west side of Bank Street and the south side of Riverside Drive [north]. The site consists of asphalt surface parking, manicured grass, and three buildings. There are five existing vehicle driveways to the site, four of which are along Bank Street and the other along Riverside Drive [north]. The site consists of the following details:
Area ± 5,432.72 m2 (0.54 ha / 1.34 ac) Frontage ± 104 metres on Bank Street (existing Arterial Road with a varied ROW) ± 78 metres on Riverside Drive [north] (existing Arterial Road with a 15 m ROW) Legal Des. Part of Lot 18, Junction Gore, Geographic Township of Gloucester, City of Ottawa 2211 Riverside: PIN 04145 – 0232 (LT) 1330 Bank: PIN 04145-0234 (LT) 1344 Bank: PIN 04145-0235 (LT) 1346 Bank: PIN 04145-0236 (LT)
SUBJECT SITE
FIGURE 3. SITE CONTEXT
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FACING SOUTH FROM BANK STREET
FACING SOUTH AT BANK AND RIVERSIDE NORTH
FACING WEST AT BANK AND RIVERSIDE SOUTH
FACING EAST FROM RIVERSIDE NORTH
FIGURE 4. GOOGLE STREETVIEW PERSPECTIVES OF THE SITE
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SUBJECT SITE
FIGURE 5. GOOGLE RENDER OF THE SITE
3. PROPOSED DEVELOPMENT The proposal is for a mixed-use development consisting of two high-rise buildings and an urban parkette. The buildings will consist of a podium and tower configuration, with the north building (34 storeys) containing only residential uses and the south building (31 storeys) containing non- residential uses on the ground floor with residential uses above. Parking will be located primarily below grade with a two-level garage that serves both buildings. The northeast corner of the site will contain the urban parkette framed by the Bank and Riverside North intersection, and this will function as a privately owned public space (POPS).
The proposal has gone through a number of iterations in response to various site constraints and comments from City staff, the community association, Ward Councillor, and the Urban Design Review Panel (UDRP).
For the purpose of the subject applications to amend the Official Plan and zoning by-law, the description of the intended detailed design of the site will remain conceptual in nature. This approach is common throughout the City with similar development proposals and will ensure that an appropriate level of flexibility is achieved through the Official Plan and zoning amendment processes. This flexibility ensures additional policy and regulatory relief will not be necessary to address minor design changes to reflect market demand by the time the owner is prepared to proceed with the site plan control application.
The proposal includes two bi-directional vehicle accesses, one along Bank Street and the other along Riverside Drive [north]. These accesses are connected by an internal drive aisle that
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provides access to limited surface parking, drop-off / pick-up locations, a loading /service area, and the entrance to the below-grade parking structure.
A POPS of approximately 973 m2 is proposed at the northeast corner of the site, providing a pedestrian node connecting to City sidewalks and internal pathways. This amenity feature provides a softened transition from the site towards the extensive greenspace network along the south bank of the Rideau River, and helps to offset the micro-climate conditions resulting from the abutting road network.
The below table details the conceptual development statistics for the full build-out of the site, while Figures 6 and 7 provide excerpts of the submitted concept site plan and architectural renderings.
TABLE 2. CONCEPTUAL DEVELOPMENT STATISTICS (ANTICIPATED FULL BUILD-OUT) PROVIDED PARKING STALLS USES GFA UNITS (detailed parking analysis provided in Section 6) Regular Accessible Bicycle Loading Apartment, high- 38,302 m2 564 rise 292 stalls 1 stall Non-residential (i.e., retail, retail (55 stalls will (surface turning 334.7 m2 2 food store, office, be visitor 8 stalls 283 spaces circle provides etc.) stalls; 26 stalls sufficient space for • 564 Dwelling Units are for small loading/servicing TOTAL 38,636.7 m2 • 2 Non-residential vehicles) and circulation) Units
FIGURE 6. EXCERPT OF CONCEPT SITE AND LANDSCAPE PLAN (HOBIN ARCHITECTURE)
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FIGURE 7. CONCEPTUAL ARCHITECTURAL RENDERING (HOBIN ARCHITECTURE)
4. POLICY REVIEW AND JUSTIFICATION 4.1 PROVINCIAL POLICY STATEMENT 2020 The Provincial Policy Statement (PPS) provides policy direction on planning matters for the Province of Ontario. This direction is for the planning of strong, sustainable, and resilient communities for all people, for clean and healthy environments, and for strong and competitive economies. Decisions affecting planning matters shall be consistent with the policies of the PPS.
The PPS was recently updated with the 2020 version coming into full force and effect on May 1, 2020. The updated PPS contains new and amended policies intended to address the following goals: • encourage an increase in the mix and supply of housing • protect the environment and public safety • reduce barriers and costs for development and provide greater certainty • support rural, northern and Indigenous communities • support the economy and job creation
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The below review demonstrates that the proposed development and amendments to the Official Plan and zoning by-law are consistent with the applicable policies of the PPS.
SECTION 1.0 Building Strong Healthy Communities Section 1.1.1 of the PPS sets out the criteria whereby healthy, livable, and safe communities are sustained. In short, these include: promoting efficient development and land use patterns; accommodating an appropriate affordable and market-based range and mix of residential types; avoiding development and land use patterns which may cause environmental or public health and safety concerns; promoting cost-effective development patterns; improving accessibility by identifying, preventing, and removing land use barriers; ensuring there is necessary infrastructure; promoting development and land use patterns that conserve biodiversity; and, preparing for the regional and local impacts of a changing climate.
Section 1.1.3.2 of the PPS states that land use patterns within settlement areas shall be based on densities and a mix of land uses which efficiently use land and resources.
Section 1.4.1 of the PPS states that planning authorities shall provide for an appropriate range and mix of housing types and densities required to meet projected requirements of current and future residents of the regional market area, and that such housing types and densities be directed towards lands that are suitably zoned and serviced to accommodate them.
Section 1.4.3 of the PPS states that planning authorities shall provide for an appropriate range and mix of housing options and densities to meet projected market-based and affordable housing needs of current and future residents of the regional market area by: 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; and, promoting densities for new housing which efficiently use land, resources, infrastructure and public service facilities, and support the use of active transportation and transit in areas where it exists or is to be developed.
Section 1.5.1 of the PPS states that health, active communities should be promoted by: planning public spaces to be safe, meet the needs of pedestrians, foster social interaction and facilitate active transportation and community connectivity.
Section 1.6.6 of the PPS states that planning for sewage and water services shall direct and accommodate expected growth or development in a manner that promotes the efficient use and optimization of existing municipal sewage services and municipal water services.
Section 1.6.7.4 states that a land use pattern, density and mix of uses should be promoted that minimize the length and number of vehicle trips and support current and future use of transit and active transportation.
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Section 1.6.8.1 of the PPS states that Planning authorities shall plan for and protect corridors and rights-of-way for infrastructure, including transportation, transit and electricity generation facilities and transmission systems to meet current and projected needs.
Section 1.6.8.3 of the PPS states 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 corridor and should be designed to avoid, mitigate or minimize negative impacts on and from the corridor and transportation facilities.
Section 1.7.1 of the PPS states that long-term economic prosperity should be supported by: promoting opportunities for economic development and community investment-readiness; and, where possible, enhancing the vitality and viability of downtowns and mainstreets.
The proposed mixed-use development is consistent with and supportive of the above policy statements of Section 1.0, as it will help to support and contribute to the following: • encourage healthy and efficient modes of transportation, as well as a reduction in personal vehicle trips given the abundance of nearby complimentary uses and infrastructure (i.e., public transit and cycling network, office, restaurant, shopping centre, recreational facilities and open space, institutional, etc.) • support the viability of surrounding uses by expanding and diversifying the local consumer base with the provision of high-density housing; • contribute to the supply of rental apartments to address the City’s lack of available housing; • provide an appropriate and desirable renewal of assembled and serviceable land within a node identified for intensification; • allow for appropriate transition of uses and building mass towards the primarily low-density residential neighbourhoods north of the Rideau River and to the east, outside of the Bank Street corridor;
SECTION 2.0 Wise Use and Management of Resources Section 2.0 of the PPS states that Ontario’s long-term prosperity, environmental health, and social well-being depend on conserving biodiversity, protecting the health of the Great Lakes, and protecting natural heritage, water, agricultural, mineral and cultural heritage and archaeological resources for their economic, environmental, and social benefits.
The subject site is not anticipated to contain any of the above noted resources, as it has been developed and redeveloped with various land uses since at least 1928 as shown in City of Ottawa aerial imagery. The site has limited vegetation and consists primarily of parking lots and buildings, but is however, within proximity to green space along the south shore of the Rideau River.
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Accordingly, the City has requested that an Impact Assessment of Endangered Species be submitted as part of the future site plan control application. Other relevant studies and plans, such as a geotechnical and slope stability study, an erosion and sediment control plan, and a stormwater management study, have been provided in support of the proposed OPA and ZBLA applications.
SECTION 3.0 Protecting Public Health and Safety Section 3.0 of the PPS states that development shall be directed away from areas of natural or human-made hazards where there is an unacceptable risk to public health or safety or of property damage, and not create new or aggravate existing hazards.
Although a small portion of the site (less than 1%) along its northern property line is within the regulation area of the Rideau River floodplain, in accordance with supporting plans and studies, the proposal is not anticipated to result in any unacceptable risk to public health and safety. The required submissions include a stormwater management study and review of potential flood events, and these findings will be reviewed and further discussed, if necessary, through consultation with City of Ottawa and Rideau Valley Conservation Authority staff.
The proposal will introduce a desirable mixed-use development to the site, which among other benefits, will contribute to housing stability, economic vitality, and the efficient use of land and public infrastructure. For these reasons, and the ones noted in the above review, the proposal is consistent with the policies of the PPS 2020.
4.2 OFFICIAL PLAN The City of Ottawa Official Plan is the primary long-term policy document that guides growth and development within the City. The current Official Plan was enacted in 2003 and has since gone through a number of major updates to comply with legislative requirements and to adapt to evolving context at a provincial-wide, City-wide, and community-wide scale. The City is currently in the process of preparing a new Official Plan, with implementation targeted for late 2021.
Although the proposal includes an Official Plan Amendment to permit an increased maximum building height, the following policy review demonstrates how the proposed development conforms to the general intent and purpose of the in-force Official Plan.
4.2.1 Section 3: Designation and Land Use The subject site is designated Mixed Use Centre in Schedule B of the Official Plan (see Figure 8); this designation permits a wide range of uses and densities, with a focus on achieving higher density mixed-use development that exhibits quality urban design and is supportive of the City’s existing and future transit network.
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The proposed development conforms to the policies of this land use designation and is appropriately located along two Arterial Roads that are listed in Annex 1 of the Official Plan as having protected ROW widths of 37.5 metres (Bank between Riverside and Hunt Club, and Riverside between Smyth and Heron). It is important to note that the Riverside ROW abutting the site represents only half of the roadway, as the roadway forks into one-way lanes between the RA Centre entrance east of the site and Neil Way west of the site.
SUBJECT SITE
FIGURE 8. EXCERPT OF SCHEDULE B OF THE OFFICIAL PLAN
Section 3.6.2 of the Official Plan provides policy direction for Mixed Use Centres, and includes the below description for lands subject to this designation:
“Town Centres and Mixed Use Centres occupy strategic locations on the Rapid-Transit network and act as central nodes of activity within their surrounding communities and the city as a whole. These centres are a critical element in the City's growth management strategy, being areas with potential to achieve high densities and compact and mixed-use development oriented to rapid transit. More jobs and housing at these locations will increase transit ridership and draw more commuter travel to these locations. In the long term the centres will become complete, liveable communities that attract people for the jobs, leisure, lifestyle, and business opportunities they provide.”
The below policies from Section 3.6.2 are particularly relevant to the proposal, as they speak to the intent for Mixed Use Centre developments to support multi-modal connectivity, high-quality urban design (i.e., landscaping, amenities, and the public realm), and appropriate building
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relationships to the street. These policies are further detailed in Sections 2.5.1 and 4.11 of the Official Plan, which speak to the design quality and compatibility of new development.
“Policies 1. […] Mixed Use Centres are designated on Schedule B […] [and] meet the following criteria: a. Most of the centre is within an 800m walking distance of one or more rapid transit stations, and contains one or more arterial roads with all day, frequent transit service; b. There is opportunity to achieve high densities of jobs and housing through intensification and redevelopment of older sites and development of vacant land; c. High-Rise Buildings of 10 storeys and more can be accommodated in a manner that provides appropriate transition to the surrounding area; e. The area is or can become transit-oriented, as described in this section; f. The area is suitable for a mix of uses and could be linked within the area’s greenspace network.
3. Mixed Use Centres are priority areas for undertaking more detailed Secondary Plans. These plans may: a. Provide for minimum and maximum buildings heights; b. Apply the target density for the area […] c. Develop area-specific design considerations
4. In order to achieve the employment targets for Mixed Use Centres and the target density within walking distance of existing and proposed stations on the City’s Rapid Transit System, a range of building heights including High-Rise may be considered. […]
5. Mixed Use Centres will permit a broad variety of land uses at transit-supportive densities, such as […] high- and medium-density residential uses and mixed-use development […].
8. Community Design Plans will require that residential uses be a component in all Mixed-Use Centres.
9. All development applications and Community Design Plans for Mixed-Use Centres will be reviewed in the context of this Plan and in particular: a. Will be evaluated in the context of the Design Objectives and Principles in Section 2.5.1 and the criteria set out in Section 4.11, particularly with regard to achieving a compact, mixed-use, transit-oriented, pedestrian-friendly environment and creating a place with visual interest; b. Will, where possible, contribute to a range of housing options in the area.
10. Mixed-Use Centres will optimize the use of land through provisions for compact mixed-use development. The Zoning By-law and community design plans will:
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a. Require employment and housing as part of a larger mix of uses and permit a mix of uses within a building or in adjacent buildings; b. Require residential uses in the form of apartments and other multiples at a medium or high density; c. Provide for the potential for shared parking arrangements among uses that peak at different time periods; d. Allow for the potential redevelopment of surface parking areas; f. Ensure that an appropriate transition in built form between the Mixed-Use Centre and any surrounding General Urban Area occurs within the Mixed-Use Centre site
11. Plans, public works and development proposals for Mixed-Use Centres will enhance opportunities for walking, cycling and transit and in particular will: a. Give priority to walking and cycling in public rights-of-way; b. Provide direct, barrier-free connections for pedestrians and cyclists linking transit and other developments in the Mixed Use Centre along public rights-of-way, off-road pathways and open space connections; c. Use public art and the design of public streets and spaces to create attractive public areas; d. Provide adequate, secure, and highly visible bicycle parking at rapid transit stations and throughout the Centre; e. Design transit shelters, seating and other facilities that contribute to attractive public areas and that enhance personal security through such measures as described in Section 4.8
13. In order to demonstrate its commitment to development within Mixed-Use Centres, the City will consider them to be priority locations for: b. The assembly of land to ensure an adequate supply that is strategically located for redevelopment or community improvement purposes; c. Increasing the capacity of transit service and water, stormwater and wastewater services to support new development; d. Investing in new facilities for pedestrians and cyclists; e. Comprehensive traffic management plans and strategies to reduce the need for parking; h. Partnerships between the public and private sectors. [Amendment #150, October 19, 2018]
14. Preserving a grid pattern of roads and rights-of-way is key to preserving the potential of the centres to intensify and become more transit and pedestrian-friendly over time. Through its planning and development review processes, the City will establish a grid pattern of rights-of- way for public roads within the centres that defines blocks for current and future development. The City will pursue the following policies to achieve this objective: a. The grid pattern will define walkable blocks to support walking, cycling and transit use; b. Rights-of-way that have been secured to date in secondary plans and subdivisions will be retained and opportunities will be sought to extend or intensify the network;
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c. A secondary network of vehicular and pedestrian routes on a grid pattern will be required within development parcels to increase safety, improve connectivity within and between sites, and define development parcels for future infill or redevelopment; d. Buildings will be located within the grid pattern of public rights-of-way and the secondary network in such a way that they do not preclude future development opportunities;”
As demonstrated through the above references, the proposal conforms to the intent and purpose of the Mixed Use Centre designation and its applicable policies found within Section 3.6.2 of the Official Plan. The proposal will utilize a land assembly to introduce a high-rise mixed-use development to an area intended for intensification to support the existing and future transit network and to complement surrounding land uses (i.e., open space, recreation use, office use, institutional use, shopping centre use, etc.).
As the proposed Official Plan Amendment relates to maximum building height permissions from the Bank Street Secondary Plan (50 metre maximum, or approximately 16 storeys), it is important to note that high-rise heights in excess of 10 storeys, are contemplated in the above policies as an appropriate design component for achieving the type of development intended within Mixed Use Centre designations.
The lands surrounding the site are designated Mixed Use Centre and Arterial Mainstreet, which subjects them to the same policies relating to mixed-use intensification, multi-modal connectivity, compatibility of land uses, and high-quality urban design. Collectively, the redevelopment of these lands, as proposed for the subject site, will contribute to a mixed-use node that plays an important role in supporting the City’s objectives for intensification along Transit Priority Corridors, as designated on Schedule D of the Official Plan.
4.2.2 Section 2.2.2: Managing Intensification within the Urban Area Section 2.2.2 states that the Official Plan supports intensification throughout the urban area where there are opportunities to accommodate more jobs and housing and increase transit use. Intensification is directed to Target Areas for Intensification which have the potential to develop at moderate to high densities in a compact form. The following policies of Section 2.2.2 speak to intensification targets for Mixed Use Centres and situations that provide opportunity for achieving intensification through greater building heights.
“Policies: Target Areas for Intensification 3. Target areas for intensification are the Central Area, Mixed Use Centres, Mainstreets, and Town Centres defined on Schedule B, and the Community Core in Riverside South. These areas are located on the Rapid Transit and Transit Priority Network as defined on Schedule D.
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4. The City’s target for residential intensification, as defined in Policy 1, is the minimum proportion of new residential dwelling units and accommodation based upon building permit issuance by calendar year in the urban area. […]
5. Minimum density targets, expressed in jobs and people per gross hectare, are set out in Figure 2.3 and applied to those target areas with the greatest potential to support the Rapid Transit and Transit Priority Networks.
Figure 2.3 Billings Bridge Minimum Density Target: 160 jobs and people per gross hectare.
6. All new development within the boundaries of the intensification target areas listed in Figure 2.3 will be required to meet the minimum density targets. Higher or lower densities may be permitted in a secondary plan for a target area where that Plan that re-allocates density among sites to achieve the overall objective of people and jobs. Where phased development is proposed the proponent must demonstrate how the density target will be achieved at build out. Where implemented through secondary plans and zoning, the targets in Figure 2.3 will be converted from gross density to net density and from people and jobs per hectare to dwelling units and gross floor area equivalents.
Policies: Intensification and Building Height 10. Intensification may occur in a variety of built forms from low-rise to high-rise provided urban design and compatibility objectives are met. Denser development, that often means taller buildings, should be located in areas that support the Rapid Transit and Transit Priority networks and in areas with a mix of uses. […]
11. The distribution of appropriate building heights will be determined by: a. The location in a Target Area for Intensification identified in policy 4 above or by proximity to a Rapid Transit station or Transit Priority corridor, with the greatest density and tallest building heights being located closest to the station or corridor; and b. The Design and Compatibility of the development with the surrounding existing context and planned function, as detailed in Section 4.11, with buildings clustered with other buildings of similar height
15. High-Rise 31+ buildings will only be permitted where they are identified in a secondary plan that addresses the requirements of Section 2.5.6; or permitted by an amendment to an existing secondary plan that already allows High-Rise buildings; and where the High-Rise 31+ buildings will be: a. located generally within 400 metres walking distance of a Rapid Transit Station identified on Schedule D to maximize transit use; and
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b. separated from planned low-rise residential areas by a suitable transition as required by Section 4.11 policies 11 and 12.
16. The Location of High-Rise and High-Rise 31+ buildings is influenced by the need to provide an adequate separation distance from other existing and potential future High-Rise buildings. Separation distances between buildings are to be considered when considering sites for development of High-Rise buildings and High-Rise 31+ buildings. The City may implement separation distances through the Zoning By-law. In areas with a small or narrow lot fabric, consolidation of two or more lots may be in order to address separation distance requirements.
17. For Official Plan amendments to increase building heights that are established in Section 3 of this Plan, or in a secondary plan, the proponent must demonstrate that the following criteria are met: a. the impacts on the surrounding area (e.g. the community design plan study area) have been assessed comprehensively; b. the direction in policy 10 above is met; c. the requirements of Section 2.5.6 where the proposal involves a High-Rise or High-Rise 31+ building; and d. an identified community amenity is provided.”
The proposal conforms to the applicable growth management policies of Section 2.2.2. Policies 3 to 6 of this section speak to density targets for areas designated for intensification. The minimum density target of 160 jobs and people per hectare for Billings Bridge applies to the entire portion of that area designated Mixed Use Centre, which includes large tracts of vacant and underutilized land as well as the subject site. The Bank Street Secondary Plan specifies that the Billings Bridge Shopping Centre will be a major contributor to achieving the City’s intensification goals.
The proposed development is situated in an ideal area to accommodate high-rise building heights for contributing towards the density target for the Billings Bridge target area. By assembling parcels in need of revitalization, and by being uniquely surrounded by wide ROWs and open space, the subject site is an appropriate candidate for increased building height, where such heights can fit well and work well with surrounding uses and features.
Although the proposal contributes primarily to the housing aspect of the density target, it is our opinion that the proposal maintains conformity with Policy 6 of Section 2.2.2, as the subject site is not located directly adjacent to the Billings Bridge Rapid Transit Station within the target area, which is the specific location where the intent of this policy aims to achieve both aspects of the density target (people and jobs) given optimal access to transit. In the case of the Billings Bridge target area, the lands where the Billings Bridge Shopping Centre is located would be the lands where new development would be intended to meet both aspects of the density target.
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Policy 10 states that denser development, which often means taller buildings, should be located in areas that support the Rapid Transit and Transit Priority networks and in areas with a mix of uses. The proposed high-rise mixed-use development conforms to this policy by supporting the transit infrastructure along Bank Street (Transit Priority Corridor) and in proximity to Billings Bridge (Rapid Transit Station).
Policy 15 allows for Official Plan amendments to Secondary Plans to permit high-rise building heights of 31 or more storeys where such Secondary Plans already permit high-rise heights (as in the case with the Bank Street Secondary Plan which permits 50 metres in height for the subject site). Two conditions, as detailed under Policy 15, must be met to permit such an amendment to a Secondary Plan, both of which are achieved by the proposed development.
Similar to Policy 15, Policy 17 speaks to building height amendment criteria, but rather than being specific to heights proposed to 31 or more storeys, it is more general to any proposed high-rise increase in permitted height. The following points summarize how the proposal meets these criteria for consideration of a height amendment: • it includes evaluation of potential impacts to the surrounding area (i.e., built form, Rideau River, existing and planned infrastructure, etc.) through the submission of supporting plans and studies complementing the rationale of this report (potential impacts will again be assessed through the eventual site plan control process) • demonstrates conformity with Policy 10 of Section 2.2.2 by providing a mixed-use high- density development along a Transit Priority Corridor (Bank Street) and within approximately 400 metres of a Rapid Transit Station (Billings Bridge) • demonstrates conformity with the Official Plan Policies of Section 2.5.6 relating to high- rise buildings, and Secondary Plan policies pertaining to such buildings • includes the provision of a community amenity, which is in the form of a privately owned public space (urban parkette)
The proposal conforms to Section 2.2.2 of the Official Plan, as the requested Official Plan and Zoning By-law Amendments to permit the mixed-use high-rise development will facilitate high-rise intensification within a Target Area (Mixed Use Centre adjacent to an Arterial Mainstreet) in a form that is desirable and appropriate for the use of the land.
4.2.3 Section 2.5.1: Designing Ottawa The proposal conforms to the applicable design and compatibility policies of Section 2.5.1 of the Official Plan. This Section of the Official Plan provides general direction, through City-wide objectives and high-level policies, for the implementation of quality urban design within target areas. The intent of these objectives and policies is to ensure that areas targeted for growth can appropriately evolve over time while ensuring a compatible relationship with the established surrounding character. Specifically, this Section states the following with respect to growth and design:
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“As the City grows and changes over time, design of these elements should work together to complement or enhance the unique aspects of a community’s history, landscape and its culture. Encouraging good urban design and quality and innovative architecture can also stimulate the creation of lively community places with distinctive character that will attract people and investment to the City.
[…] The objectives of this Plan are to direct growth and intensification to identified rapid transit and transit priority locations and to develop those areas with a mix of uses and a greater focus on active transportation. Good urban design is critical in making these places enjoyable places to live, work and socialize. Many of these areas contain existing communities. New development must enhance the existing character and the way they function”
Section 2.5.1 provides the following design objectives: • To enhance the sense of community by creating and maintaining places with their own distinct identity; • to define quality public and private spaces through development; • to create places that are safe, accessible and are easy to get to, and move through; • to ensure that new development respects the character of existing areas; • to consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice; • to understand and respect natural processes and features in development design; and, • to maximize energy-efficiency and promote sustainable design to reduce the resource consumption, energy use, and carbon footprint of the built environment.
As demonstrated by the architectural submissions and the contents of this report, the proposal is in general conformity with the design objectives of Section 2.5.1 by contributing to, providing, or maintaining the following: • providing a high-density mixed-use development that will contribute to the success of the Bank Street Transit Priority Corridor; • contributing to the rental market to address demand for housing availability and a broadened range in unit options; • providing ground-floor commercial units which are sized and dimensioned to maximize flexibility for a variety of potential tenants, and to allow for adaptation to a changing marketplace; • contributing to the beautification of the Bank and Riverside North intersection by providing a publicly accessible at-grade urban parkette, human-scaled building podiums with active frontages for commercial units, and high-rise expressions that create a visually appealing gateway into the Billings Bridge node; and, • contributing to the renewal and planned function for this mixed-use node by proceeding with an appropriate land assembly to achieve a desirable mixed-use development.
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It is important to note that the purpose of the subject applications is to permit primarily increased height for a mixed-use development. Accordingly, the submissions in support of the Official Plan and Zoning By-law Amendments, especially the architectural submissions, are tailored to address higher-level policy and regulatory objectives, whereas the detailed urban design policies will be more thoroughly addressed through the subsequent site plan control process.
4.2.4 Section 2.5.6: Collaborative Community Building & Secondary Planning Processes Section 2.5.6 contains policies on the matter of secondary planning processes that are intended to guide the development of large redevelopment sites or whole communities in a manner that implements the policies of the Official Plan.
Within this Section, Policies 13 and 15 are specific to the provision of high-rise buildings, and state the following:
“Provisions for High-Rise and High-Rise 31+ Buildings 13. The City intends that the highest density of development, including High-rise buildings, locate where rapid transit is being provided. Secondary plans and community design plans should locate high-rise buildings proximate to rapid transit stations to support that objective. High- rise buildings are also a built form that requires detailed attention to urban design and their impacts on the existing communities into which they are located. Building design and appropriate transitions, such as those identified in Section 4.11, should be provided to reduce impacts on existing developed areas.
15. Consider the following: a. A prominent location or locations fronting on streets, lanes, public open space and other public land preferably and good transportation access; b. Avoiding or mitigating negative shadow or microclimate impacts such as the creation of excessive wind and providing insufficient sunlight in adjacent public spaces; c. The provision of a mix of uses within the building or the surrounding area to service residents or business tenants within the building and the broader community; e. Building transition and the mitigation of impacts on adjacent low-rise neighbourhoods through building design, massing as per Section 4.11. f. The identification of priority community amenities or public institutional uses that may be required and the mechanisms by which they will be provided. g. Mechanisms to encourage architectural excellence and sustainable design. h. Any specific requirements identified during the secondary planning process.”
The proposal conforms to the applicable policies of Section 2.5.6. The subject property was central to the Bank Street community design and secondary planning processes that identify the it as a site within a node intended for intensification, as per the following factors:
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• Collection of uniquely concentrated lots within optimal proximity to the Billings Bridge Transit Station and shopping centre, Confederation Heights Government office campus, Carleton University, and major transportation infrastructure for personal vehicles and active modes of transit • consists of vacant and underutilized lots surrounded primarily by public ROW, thus providing substantial opportunity for land assembly and additional building height • consists primarily of a desirable form of residential use that will be mutually complementary with the existing surrounding land uses (i.e., shopping centre, institutional, employment, open space, etc.)
The proposed design is the result of extensive consultation and review, which included discussion with City staff, the local Councillor and Community Association, and an informal pre-consult with the UDRP. Through the above processes, consideration of the applicable policies of Section 2.5.6 were had, and will be further assessed at the time of a formal site plan control application.
4.2.5 Section 4.11: Urban Design and Compatibility The proposal conforms to the applicable policies of Section 4.11 of the Official Plan. This Section contains a number of design policies that seek to address the matter of compatibility between new and existing development. This relationship is primarily assessed by reviewing design elements relating to built form and functionality. In the context of the proposal, the purpose of the policies of Section 4.11 are to set the stage for requiring design excellence, as the subject site is located within a Design Priority Area. Accordingly, the design and compatibility of the proposal will be evaluated in the context of the design objectives of Section 2.5.1, which were addressed previously in this report. Section 4.11 lists the following over-arching design themes to be addressed, where applicable, through proposed development: • Views • Building design • Massing and scale • High-rise buildings • Outdoor amenity areas • Public art • Design priority areas • First Nations Peoples design interests
As demonstrated by the architectural submissions and the contents of this report, the proposal is in general conformity with the policies of Section 4.11 by contributing to, providing, or maintaining the following: • contributing a high-density mixed-use development to a Mixed Use Centre and Arterial Mainstreet intersection, which will support transit and provide incentive for reduced
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automobile use, will strengthen the viability of the surrounding shopping centre and service type land uses, and will contribute to the desirable renewal of underutilized sites; • providing ground floor store fronts that address Bank Street with unit sizes and layouts that provide opportunity for tenants and their spaces to evolve over time to adjust to market changes; • introducing a building height and massing that is sensitive to the surrounding uses and built-form, and that can achieve appropriate transition to adjacent areas (the large natural open space and extensive road network surrounding the site helps to achieve this) • orienting and articulating building towers to have the effect of reducing visual mass and cumulative sun shadowing, and reducing potential impacts relating to microclimates; • introducing a building form and materiality that will enhance visual interest and create a landmark identity of prestige for the streetscape and skyline; • working with existing grades and accessibility features to achieve a public realm that is human-scaled, safe, well-animated and landscaped, and accessible for people of all ages and capabilities; • providing a landscaped focal point at the northeast corner, which will be in the form of a publicly accessible urban parkette offering both a functional and aesthetic purpose.
The proposed development conforms to Sections 2.5.1 and 4.11 of the Official Plan, and will function as a mixed-use landmark of high-quality design along the intersection of Bank Street and Riverside Drive.
As noted previously in this report, the proposal has gone through a number of iterations in response to various site constraints and comments from City staff, the local community association and Ward Councillor, and the Urban Design Review Panel (UDRP). At this point, the submitted Planning Act applications are for Official Plan and Zoning By-law Amendments pertaining primarily to building height.
The detailed design for the proposed development will be determined as part of the eventual site plan control application. At that time, the architectural package submitted for a site plan control application will be subject to formal consultation with the UDRP.
4.2.6 Section 4.7.3: Erosion Prevention and Protection of Surface Water Section 4.7.3 of the Official Plan contains policies with the intent of preserving and enhancing the environmental quality of stream and river corridors and their aquatic habitat, as well as reducing risks from natural hazards associated with watercourses.
The subject site is located approximately 25 metres from the banks of the Rideau River and 15 metres from the floodplain overlay, whereas Policy 2 of Section 4.7.3 requires minimum setbacks greater than what can be reasonably achieved on the site. Riverside Drive [north] separates the
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site from the noted demarcations, and the site itself has contained various buildings since at least 1928, as demonstrated by City of Ottawa aerial imagery.
Given the context of the ROW buffer and historical land use and redevelopment patterns of the subject site and surrounding infrastructure, an exception to the minimum setbacks of Policy 2 of Section 4.7.3, as permitted by Policy 6, is worthy of consideration by the City of Ottawa in consultation with the Rideau Valley Conservation Authority and in review of applicable technical studies and plans (i.e., grading and slope stability plan, geotechnical investigation, etc.). If the proposed alternative setback provided in the submitted concept site plan is deemed acceptable through the technical circulation and resolution process, then the setback would be permitted by Policy 6 and 7 of Section 4.7.3 and would therefore not be required to form part of the proposed OPA.
4.3 BANK STREET SECONDARY PLAN The site is subject to the Bank Street Secondary Plan, which was completed in 2012, and designates the site as Node 1 on Appendix A – Land Use. In Section 1.5.1 of the Plan, the north portion of the Node 1 designation, which includes the subject site, is described as an appropriate location for mid to high-rise mixed-use buildings that use special design elements and architecture to communicate their prominent gateway location in the Bank Street Secondary Plan area.
SUBJECT SITE
FIGURE 9. EXCERPT OF APPENDIX A – LAND USE
Section 1.5.1 of the Plan also contains policies on the matters of land use, built form, design, parking, and circulation. These policies are directed primarily at development on and immediately around the Billings Bridge Shopping Centre, however, some of these policies, such as the ones listed below, are relevant to the subject site and proposed development.
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“Land Use 3. Mixed-use development with street-related retail uses on the ground floor is encouraged […] along Bank Street.
Built Form 2. The maximum building height is 50 metres for development along the Bank Street frontage. Fifty metres is approximately a 16-storey mixed-use building.
Design 1. Mid to high-rise buildings located at the north end of node 1 should have a signature architectural design given their visible and important location along the Rideau River. 2. Proposed development occurring close to the Rideau River will be circulated to the National Capital Commission for comment.”
Section 1.4 of the Plan contains general land use and design policies to be applied throughout the Secondary Plan area wherever area-specific policies (i.e., Node 1: Riverside Drive and Billings Bridge) are not provided. Relevant policies have been referenced below:
“Land Use 2. Mixed-use development with street-related retail uses on the ground floor is encouraged and preferred along the Bank Street frontage […]. 3. Residential or office uses should be considered the primary use for all buildings and located on the upper floors of mixed-use buildings. If mixed-use development cannot be achieved within an individual building, a mix of uses in a cluster of single-use buildings is a reasonable alternative approach. 6. Public and private open spaces are permitted along Bank Street where a strong design rationale is submitted. These places may serve as gateways, entrance features, gathering places, focal points, connections, etc. 7. A range of housing types and tenures are encouraged for residential uses.
Built Form 3. A maximum floor space index (FSI) of 2.0 is permitted for properties zoned as Arterial Mainstreet Zone. If 80% of the required parking is provided below grade, the maximum FSI is 3.5. 4. A well-defined streetwall of two to four-storeys is encouraged along Bank Street to create a visually continuous streetscape and a strong street edge. 5. Mixed-use buildings should have a high ground floor-to-ceiling measurements to allow for a range of uses (e.g. 4.5 metres from floor-to-ceiling). 6. Height transitions shall be maintained between high-rise buildings, mid-rise buildings and existing low-rise buildings. Transitions in heights can be achieved by: locating tall buildings
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away from low buildings, having a generous separation space between buildings, and having upper storeys of building stepped-back away from low buildings.
Design 1. For Nodes, at least 70% of the lot width along Bank Street should be occupied by one or more building wall(s). Lot width should be measured at the front yard building setback […]. 2. A step back is required at the second, third or fourth storey of mid- to high-rise buildings to ensure a pedestrian-oriented environment is upheld […]. 4. Buildings with longer street frontages should be designed with architectural features to break up and enliven the façade. At a minimum, the building should not have any length greater than 20 metres without some form of articulation, courtyard or other architectural feature that achieves a break in the visual appearance of the length. 5. Buildings along Bank Street should have front doors that are easily accessible from the sidewalk for pedestrians. Additional rear or side doors may also be provided. 7. High-rise towers should be point towers with floor plates that do not to exceed 750 m2, with a generous separation distance between towers. A minimum separation distance of 30 metres is recommended. 11. Trees shall be used to improve the overall aesthetics and unique identity of the study area. Trees should be planted every 7 to 10 metres along Bank Street and side streets to establish an avenue of mature trees which gives character, identity and distinction to Bank Street as an important pedestrian and automobile route. When site conditions make it impossible to achieve this in the public right-of-way, private landowners shall plant trees in the front yard setback areas to complement the public realm plantings.
Parking and Access 2. Shared parking arrangements between buildings are encouraged, especially for land uses that operate at different times. 3. Parking lots should be accessed via rear lanes or local streets. A driveway from Bank Street may be permitted if a rear lane or local road is not available for access. 8. The number of individual driveways onto the street needs to be minimized to improve the efficiency of traffic moving along Bank Street and to improve pedestrian and cycling continuity, Shared driveways are encouraged and will allow access to multiple developments with less impact to the street and sidewalk.”
The proposed mixed-use development conforms to the Bank Street Secondary Plan, with the exception of four policies that are to be amended by the proposed Official Plan Amendment. The conceptual site plan submitted for the Official Plan and Zoning By-law Amendments consists of the following: • human-scaled podiums with street-oriented commercial space fronting Bank Street; • articulated building podium along Bank Street to break up and enliven the façade along the public realm;
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• landmark towers that are appropriately separated, and that will complement the Rideau River with visually interesting skyline vistas; • building profiles that present a strong base, middle, and top expression; • urban parkette at the northeast corner of the site to provide a softened gateway between the Billings Bridge Node and the open space corridor along the Rideau River as well as the Bank Street bridge to Old Ottawa South; • a reduction in private accesses to the site to improve efficiency and safety relating to transportation circulation; • parking located below-grade with the exception of surface visitor and loading spaces; • highly visible and conveniently located building accesses; • coordinated improvement of the Bank Street frontage with the City’s Complete Street initiative for the ROW.
Requested Amendments 1. Built Form Policy 2 in Section 1.5.1 of the Plan: the proposal requests that this Policy be amended to permit heights of up to 106 metres in accordance with the proposed zoning detailed in Section 7 of this report. • This proposed amendment to the maximum permitted building height is both desirable and appropriate, as it represents the primary design mechanism for achieving the Official Plan’s objectives for greater intensification, housing availability, and the compact mixing of complementary uses within target areas supported by existing and proposed transit infrastructure.
2. Built Form Policy 3 in Section 1.4 of the Plan: the proposal requests that this policy be amended so that the site is not subject to a maximum FSI. • This change would align the Secondary Plan policy with the site’s current zoning, which does not have a cap on FSI.
3. Design Policy 1 in Section 1.4 of the Plan: the proposal requests that this policy be amended so that a building wall along the site’s Bank Street frontage can cover less than the requirement of 70% of the site’s lot width. • This proposed amendment is appropriate for the site given that the only portion of the site that will not contain building wall along Bank Street will be at the corner of Bank and Riverside North where a proposed POPS (urban parkette) and access to the site is to be located, which provides an appropriate use of space along the intersection (softened transition between the site’s high-rise buildings to the south and west and the NCC open space lands to the north along the Rideau River).
4. Design Policy 2 in Section 1.4 of the Plan: the proposal requests that this policy be amended so that a building step back is only required at the sixth storey, whereas a step back is required at the fourth storey.
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• This proposed amendment is appropriate for the site given the overall height and scale of the proposed buildings, the proposed new ROW width and works for Bank Street, and the additional step backs provided at various storeys of the buildings.
Accordingly, save and except the required amendments noted above, the proposed mixed-use development is in conformity with the general intent and purpose of the Bank Street Secondary Plan.
4.4 BANK STREET COMMUNITY DESIGN PLAN The site is subject to the Bank Street Community Design Plan (CDP) which was completed in 2012. A CDP is a Council-approved design and visioning document that does not have the same legislative authority under the Ontario Planning Act as the Official Plan and its subsidiary plans. These documents are intended to guide change in areas of the City that are targeted for growth and improvement as directed by the Official Plan. Typically, the guidance provided in CDPs translates into Secondary Plans that form part of the Official Plan.
The Bank Street CDP contains the same objectives for the subject site as those identified in the Bank Street Secondary Plan. As such, the same rationale provided in the review of the Bank Street Secondary Plan, Sections 4.11 and 2.5.1 of the Official Plan, and the applicable Urban Design Guidelines apply to this section in support of the applications.
The CDP contains the same or similar language as the Secondary Plan with respect to maximum building heights, maximum FSI, and required stepbacks for the subject site; however, as the CDP does not form part of the Official Plan, a Planning Act application to amend it is not required as part of the subject applications for the proposal.
Save and except the above noted policy language, the proposal conforms to the Bank Street CDP, as it will introduce a mixed-use development that respects the envisioned land use and planned function intended for this area along Bank Street. The proposal achieves this by utilizing increased building heights and quality design for desirable density, which allows for greater opportunity to provide a robust and revitalized pedestrian environment supportive of the City’s streetscape and infrastructure objectives along this portion of Bank Street.
5. URBAN DESIGN GUIDELINES The purpose of the City’s Urban Design Guidelines is to provide urban design guidance at the planning application stage in order to assess, promote, and achieve appropriate development within specified areas throughout the City. Where these guidelines apply, their objectives will not necessarily be relevant in all cases or in their entirety. Compliance with the guidelines is not a statutory requirement, as in the case of policies of the Official Plan or regulations of the zoning by-law, but instead, is encouraged to promote quality design and consistency throughout the City.
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There are four specific guidelines that apply to the subject site and proposed development, which include: High Rise Buildings, Development Along Arterial Mainstreets; Complete Streets; and, Transit Oriented Development. These guidelines apply to varying degrees, and due to the nature of the proposal, result in substantial overlap in design objectives. These guidelines will be explored in greater detail through the site plan control process, as the architectural submissions for the proposed Official Plan and Zoning By-law Amendments have been designed to a detail appropriate for the subject applications.
5.1 HIGH-RISE BUILDINGS Ottawa City Council adopted the Urban Design Guidelines for High-Rise Buildings in 2018. The guidelines apply to all proposed high-rise development throughout the City, with the purpose of the guidelines being to provide urban design guidance at the planning application stage in order to assess, promote, and achieve appropriate high-rise development. These guidelines are not intended to be used as a checklist for evaluating a proposal, nor are all guidelines always applicable.
The context of each development proposal will inform the application of, and the emphasis on, the particular guidelines that are relevant to the site. There are six objectives of the guideline, which are listed below. • Address the compatibility and relationship between high-rise buildings and their existing or planned context; • Coordinate and integrate parking, services, utilities, and public transit into the design of the building and the site; • Encourage a mix of uses and open spaces that contribute to the amenities of urban living; • Create human-scaled, pedestrian-friendly streets, and attractive public spaces that contribute to liveable, safe and healthy communities; • Promote high-rise buildings that contribute to views of the skyline and enhance orientation and the image of the city; • Promote development that responds to the physical environment and microclimate through design.
These guidelines are particularly relevant to the proposal, as the requested amendments to the Official Plan and zoning by-law are primarily for increased building height. The proposal satisfies the general intent and purpose of the above objectives as detailed below.
Context • Guideline 1.1 – The site is located along a Scenic Entry Route, as identified in the Official Plan, and provides opportunity to complement existing and new views and vistas with its well-designed building form. • Guideline 1.4 – The proposed buildings will be landmark buildings and a context analysis is provided as part of the Design Brief submission.
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• Guideline 1.5 – The context analysis includes a review of the relationship with the surrounding neighbourhood. As identified in the Bank Street Secondary Plan and CDP, the site is located in a mixed-use node intended for revitalization and intensification. The functional design of the site responds to the complexity of the surrounding area (i.e., road network, parcel fabric, and the City pumping station) and the relationship of the site to the Rideau River. These matters are elaborated on in the submitted Design Brief. • Guideline 1.7 – The buildings are located in a prominent location, being a major intersection (Bank Street and Riverside Drive) that is adjacent to the Rideau River and that represents the north boundary of the Billings Bridge community. • Guideline 1.8 – The building design is of distinct character and expression, with care and consideration being demonstrated through the design process. • Guideline 1.11 – Considering the context of the area (i.e., adjacent existing and proposed high-rise buildings, and substantial rise in grade going south and north along Bank Street from the site), the proposed heights relate to and respect built form in the area. • Guideline 1.12 – Currently, a streetwall does not exist at the intersection of Bank and Riverside. The two proposed buildings will introduce bases in the form of four and five storey podiums that will improve the streetscape by providing a consistent streetwall. • Guideline 1.13 – The site is in a unique position in that there are no immediately surrounding uses except a City of Ottawa pumping station. Nevertheless, the design reflects a thorough understanding of the surrounding space, as it utilizes the use of building step backs and mass segmentation to maintain the prominence of the NCC open space, pathways, and the Rideau River. • Guideline 1.15 – The site abuts and will contribute to the public realm as it is located at the intersection of Bank Street and Riverside Drive. • Guideline 1.16 – The site is not subject to the setbacks from adjacent residential properties, as it represents an assemblage of land bound by wide multi-lane ROWs. Nevertheless, appropriate tower separation distances will be provided.
Built Form • Guideline 2.1 – The pedestrian experience along Bank Street is in need of significant improvement, as indicated in the Bank Street CDP. The proposed development seeks to create a POPS (urban parkette) at the northeast corner of the site which will provide additional views to the Rideau River and adjacent pathways, and will create a softened transition from the site’s built form to the NCC open space north of Riverside Drive. Along with the parkette, the pedestrian experience along Bank Street will be improved by both City (complete street project) and proponent led initiatives (uses oriented towards the street, new street trees, sidewalks, lighting and signage, etc.). • Guideline 2.2 – The proposal will introduce attractive landmark buildings to a gateway- type area for the Billings Bridge community. The expression of the upper portions of the buildings will enrich the existing skyline while respecting the surrounding urban fabric,
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while the lower portions will contribute to an improved public realm and pedestrian experience. • Guideline 2.3 – The design of the buildings provides a base, middle, and top, with tower floor plates and podium heights having been reduced since the informal consult with the UDRP to better address building expression and experience. • Guideline 2.13 – The orientation of the proposed buildings will frame the Bank and Riverside public realm. The existing area is disjointed, as the parcels making up the subject lands were historically developed in isolation. The proposal will provide building and functional continuity, which has been made possible by a land assembly. • Guideline 2.14 – Additional setbacks from the Bank and Riverside intersection are present within the conceptual site plan to enhance safety and sightlines, and to accommodate the urban parkette. • Guideline 2.15 – The adjacent ROW widths are in excess of 20 metres, which would translate to a comfortable maximum podium height of approximately six storeys, whereas the proposed podium heights are four (north building) and five storeys (south building). • Guideline 2.16 – Additional stepbacks and setbacks are provided in the conceptual building design which contributes to the appropriateness of the proposed building heights. • Guideline 2.17 – The base will be four storeys. • Guideline 2.20 – An existing character and rhythm in the area is not clearly established. Nevertheless, the proposal includes architectural articulation, fenestration, and massing to introduce a desirable character and rhythm along Bank Street as it begins at the north boundary of the Billings Bridge community. • Guideline 2.21 – High-quality, durable, and environmentally sustainable materials will be used as much as possible to achieve visually interesting facades. • Guideline 2.22 – Where feasible, bird-friendly best management practices will be implemented. • Guideline 2.23 – Ground floor fenestration, materiality, and architectural articulations will result in a highly animated and desirable building base that frames the pedestrian environment. • Guideline 2.24 – The two tower floorplates will transition into narrower forms as the height increases, which will maintain and enhance views, and minimize the impacts of shadowing and wind. • Guideline 2.25 – The development proposes an appropriate tower separation in excess of 30 metres. • Guideline 2.29 – Various step backs are proposed on both towers, which allows the bases to be the primary elements of the site and adjacent public realm, and helps to minimize impacts of shadowing and wind. • Guideline 2.31 – The tower orientation and shape prioritizes the proposed urban parkette, the pedestrian environment, and views of the Rideau River to the north.
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• Guidelines 2.32, 2.34 & 2.37 – The proposed buildings, and their design materials and elements, will contribute significantly to the enhancement of the area’s skyline and streetscape. • Guideline 2.36 – Roof-top features will be incorporated into the top of the buildings where possible. • Guidelines 2.38 - 2.44 – Exterior building illumination will be addressed through the future site plan control process. Nevertheless, exterior illumination will be designed to required industry standards for the proposed uses and built form, with consideration of the impact it will have on the immediate and surrounding area.
Pedestrian Realm • Guidelines 3.1 & 3.2 – Efforts in conjunction with the City have been made to improve the pedestrian experience along Bank Street. This segment of Bank Street poses a significant challenge to provide an attractive and functional pedestrian environment while addressing matters of vehicular circulation and aging infrastructure. The proposal looks to address these challenges by providing wider sidewalks, new street trees, and appropriate lighting and signage, among other elements, to support the City-led initiative of a complete street along this portion of Bank Street. The future site plan control process will provide further detail on the streetscape. • Guidelines 3.4 - 3.6 – The concent site plan proposes an urban parkette at the northeast corner of the site. This urban parkette will be designed to provide a visual and physical connection between the site, the adjacent streets intended to evolve into more complete streets over time, and to the NCC open space to the north. This corner feature will be a privately owned public space with opportunity for seasonal amenities such as watersport rentals or local food trucks, with detailed design to be addressed through the future site plan control process. • Guideline 3.11 – Clearly defined pedestrian connections leading to main entrances from sidewalks will be provided. • Guideline 3.12 – The pedestrian environment will be animated through active ground- oriented commercial spaces, amenity spaces such as the urban parkette, and complete street elements providing improved functionality and aesthetics. The location of the site provides many opportunities for a variety of users by being in proximity to Billings Bridge Transit Station, Billings Bridge Shopping Centre, the RA Centre, NCC open space and the Rideau River, and Old Ottawa South’s vibrant traditional mainstreet. • Guideline 3.13 – The proposal will apply CPTED principles that will be further detailed through the future site plan control process. • Guideline 3.14 – Other than drop-off and most visitor spaces, which will be at grade, all parking will be located in the underground parking garage. • Guidelines 3.15 to 3.20 – Loading and service areas are located away from streets and the primary pedestrian environment, and will be screened as much as possible, where
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feasible. Further details will be determined at the time of the future site plan control process. • Guidelines 3.21 & 3.22 – mechanical equipment and public transit infrastructure will be appropriately located and screened, if applicable, where feasible. • Guideline 3.23 – In collaboration with the City, Bank Street will undergo streetscape improvements and the proposed development will include improved sidewalks and street tree plantings. • Guideline 3.25 – Accessibility design requirements of the Ontario Building Code and Accessibility for Ontarians with Disabilities Act will be met. Additional standards and guidelines will be explored and implemented, where feasible. • Guidelines 3.26 & 3.27 – A wind and shadow study was completed and submitted as part of the subject applications. • Guidelines 3.28 - 3.30 – Pedestrian weather protection has been considered through the design of the pedestrian realm (i.e., street trees, urban parkette features, building entrances, etc.), and will be further addressed through the future site plan control process. • Guideline 3.31 – Efforts will be made to incorporate pedestrian-scale lights, signage, street numbering and other features oriented towards improving the pedestrian experience.
5.2 DEVELOPMENT ALONG ARTERIAL MAINSTREETS The Urban Design Guidelines for Development along Arterial Mainstreets was completed in 2006. The purpose of these guidelines is to provide urban design guidance at the planning application stage in order to assess, promote, and achieve appropriate development along Arterial Mainstreets. There are six objectives of the guidelines, which are listed below. • To foster compatible development that will contribute to the recognized or planned character of the streets; • To promote a comfortable pedestrian environment and create attractive streetscapes; • To achieve high-quality built form and establish a strong street edge along Arterial Mainstreets; • To facilitate a gradual transition to more intensive forms of development on Arterial Mainstreets; • To accommodate a broad range of uses including retail, services, commercial, office, institutional and higher density residential; and, • To enhance connections that link development sites to public transit, roads and pedestrian walkways.
The proposal satisfies the general intent and purpose of the above objectives by contributing to, providing, or maintaining the following: • a safe and comfortable street edge defined by a mix of soft and hard landscaping, appropriate lighting and signage, street-facing storefronts along Bank Street, human- scaled podiums, and an urban parkette that addresses the northeast intersection;
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• provision of universally accessible pathways and spaces that provide a seamless connection from the ROW (i.e., crosswalks, transit stops, etc.) to the ground floor commercial units along Bank Street; • internalized below-grade resident parking, and limited visitor parking, is out of sight from the adjacent streets, which allows visual attention to be drawn to the design elements and the land uses of the proposal. Drop-off and the majority of visitor parking is located at- grade, with stalls situated nearest to the proposed buildings, and segmented into smaller rows to reduce the visual prominence of a larger singular parking lot; and • appropriately sized ground-floor non-residential units to permit tenant/use flexibility.
5.3 COMPLETE STREETS The Design Guidelines for Complete Streets was completed in 2015 and is supplemental to the Traffic Impact Assessment Guidelines completed by the City. The guidelines provide information on how to safely integrate multiple modes of transportation. Complete streets incorporate the physical elements of a street to offer safety, comfort, and mobility for all users, regardless of age, ability, or mode of transportation.
Complete streets accommodate multiple modes of transportation, incorporate context-sensitive design principles, and can be used as a tool to improve neighbourhoods and support liveability. Each mode, such as pedestrian, bicycle, transit, truck, and vehicular, have different levels of service. Each level of service assesses different degrees of comfort, timing, level of risk/stress, movement, reliability, and utilization. Each service tool is measured differently and do not necessarily cover the same spectrums of conditions.
The proposed development, and how it addresses the applicable guidelines, will be evaluated through the submitted Traffic Impact Assessment (TIA) and through consultation with City transportation staff. These processes are to ensure that all modes of transportation can safely, effectively, and comfortably move throughout the proposed development.
The scope of this review process is limited for the purpose of the proposed Official Plan and Zoning By-law Amendments and will be explored in greater detail during the eventual submission of a site plan control application.
5.4 TRANSIT ORIENTED DEVELOPMENT The Transit-Oriented Development Guidelines was completed in 2007 with the purpose of providing guidance to assess, promote, and achieve appropriate Transit Oriented Development within the City of Ottawa. These guidelines are to be applied throughout the City for all development within a 600 metre walking distance of a rapid transit stop or station, which includes the subject site, as it is located an approximately 400 metre walking distance from the Billings Bridge Transit Station.
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The Transit-Oriented Development guidelines are organized into six themes that are summarized below: • Land Use – type and intensity of uses for supporting transit efficiency • Layout – development, accessibility, and circulation patterns for supporting transit use • Built Form – place making to establish attractive public realms around transit infrastructure • Pedestrians & Cyclists – prioritizing the pedestrian experience • Vehicles & Parking – efficient and safe designs for streets and parking environments • Streetscape & Environment – attractive sidewalks, walkways, and transit stops
The proposed development provides balance between built form (i.e., building mass and height) and the pedestrian environment. By proposing greater building heights, the site can achieve targeted intensification while ensuring ample space is available to provide an animated pedestrian environment focused on attractive and functional landscaping and circulation features. This balance provides additional benefits such as feasibility to allocate resident parking below grade, conditions that encourage increased transit ridership, and an improved relationship between the site and the abutting transportation network (i.e., reduction from five existing vehicle accesses to two proposed accesses – one per frontage; integration with the planned complete street project for this portion of Bank Street).
Although the subject site is not immediately adjacent to the Billings Bridge Rapid Transit Station, it is within an approximately 400 metre walking distance from it and is along the Bank Street Transit Priority Corridor. As such, the high-level site design discussed above appropriately addresses the general objectives of the Transit-Oriented Development Guidelines for the purpose of the proposed applications, with a more detailed review to be performed at the time of the future site plan control application.
6. ZONING REVIEW The subject site is zoned AM8 – Arterial Mainstreet Subzone 8 within City of Ottawa Zoning By- law 2008-250. The purpose of the AM8 Zone is to accommodate a broad range of uses and densities in primarily mixed-use buildings. The development standards for this zone are intended to promote intensification to support the City’s applicable Official Plan policies and vision for Arterial Mainstreets.
The proposed mixed-use development complies with the general intent and purpose, as well as the land use permissions, of the AM8 Zone. As detailed in Table 3, the proposal requires zoning relief in the form of a minor zoning by-law amendment to permit proposal-specific performance standards primarily relating to building height and setbacks.
As per the lot line definitions of Section 54 of the By-law, the subject site has been reviewed on the following basis:
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• Front Lot Line: Riverside Drive [north] frontage • Corner Side Lot Line: Bank Street frontage • Rear Lot Line: Riverside Drive [south] frontage • Interior Lot Line(s): remaining lot lines without frontage on a public street
SUBJECT SITE
FIGURE 10. ZONING EXTRACT
TABLE 3. AM8 ZONING MATRIX BY-LAW PROVISIONS REQUIRED & PERMITTED PROPOSED COMPLIANCE NOTES SECTION
Minimum lot area 185(3)(a) No Minimum ± 5,432.72 m2 Compliant
± 104 m (Bank) & Minimum lot width 185(3)(b) No Minimum Compliant ± 78 m (Riverside) Minimum front and 185(3)(c)(i) - FY (Riverside North) = 1.75 m No Minimum Compliant corner side yard setback & 186(8)(e) - CSY (Bank) = 0 m
Maximum front yard 186(8)(e) Maximum front yard setback along Bank Street is 3.0 metres NA (Bank Street frontage is setback along Bank currently classified as a corner Compliant Street for non-residential Where overhead hydro wires and hydro poles exist, the side lot line and not the front lot 186(8)(f) and mixed-use buildings maximum front yard setback along Bank Street is 5.0 metres line per zoning definition) Minimum interior side 185(3)(d)(ii) No Minimum 0.18 m Compliant yard setback Non-compliant – TBA Minimum rear yard RY (most southerly lot line) = 185(3)(e)(i) 3 m though the proposed setback 0.17 m zoning amendment Where the building height is greater than 4 storeys the Various building stepbacks will second, third or fourth storey must be stepped back a further Non-compliant – TBA Building stepback be provided above the fourth 186(8)(g) 2.5 metres from the front wall of the storey below and each though the proposed requirements and fifth storeys of each storey above the fourth storey is to have the same minimum zoning amendment building stepback as required for the fourth storey The southerly building will have At least 70% of the lot width measured at the building setback building wall along along Bank Street must be occupied by one or more building approximately 50% of the site’s walls, and in the case of a phased development where all Bank Street frontage, whereas Non-compliant – TBA Building streetwall phases are shown on a site plan approved pursuant to 186(8)(h) the remainder of the frontage though the proposed requirements Section 41 of the Planning Act, each phase itself does not will be occupied by pedestrian zoning amendment have to comply with this clause, provided that those and vehicle access requirements are satisfied upon the completion of all phases infrastructure, landscaping, and of development a POPS
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Non-compliant – TBA Maximum building height 186(8)(d)(v) 50 metres 106 m though the proposed zoning amendment Maximum floor space 185(3)(h)(ii) None ± 9.4 Compliant index Non-compliant – TBA 11 to 99 spaces where the 3 metres ± 2 m though the proposed Minimum width of landscaped buffer abuts a street zoning amendment landscaped area around Table 110 11 to 99 spaces where the a parking lot landscaped buffer does not abut 1.5 metres ≥ 1.5 m Compliant a street Minimum percentage of 15% - can include landscaped buffer and interior landscaping ≥ 15% (landscaped area landscaped area within 110(1) such as landscaped islands, landscaped medians, pedestrian accounts for 41% of lot Compliant and surrounding a pathways or public plazas coverage) parking lot (a) 30 m to the normal Watercourse setback as per (2) Except for flood or erosion high-water mark of any proposed concept site plan. control works, or a public bridge watercourse or or a marine facility, no building or waterbody, or The proposed development is structure, including any part of a (b) 15 m to the top of to be subject to site plan sewage system, which does not the bank of any control, and as noted in Section require plan of subdivision, or watercourse or 4.2.6 of this report, it is site plan control approval, shall waterbody, whichever is anticipated that an alternative be located closer than: the greater. setback, as permitted through Minimum setbacks from the Official Plan, will be 69 TBD a watercourse considered by the City of Ottawa during the technical (3) Development requiring a plan of subdivision or that is review process. If the subject to site plan control must provide the watercourse or alternative setback is deemed waterbody setbacks set forth in subsection (2) unless, as appropriate, then the proposed established through conditions of approval, a different setback would be permitted by setback is determined to be appropriate in accordance with Section 69(3) of the Zoning By- the criteria set forth in the Official Plan. law and would therefore not be required to form part of the proposed ZBLA.
TABLE 4. PARKING MATRIX & DRIVE AISLE SUMMARY (SCHEDULE 1A AREA Z & SCHEDULE 1 AREA B) PARKING APARTMENT, HIGH RISE (564 Dwelling Units) COMMERCIAL (334.7 m2 of GFA) TYPE Required Provided Compliance Required Provided Compliance None 237 None Regular (see additional provisions and Compliant 0 Compliant (Sec.101(2)) notes regarding small vehicles) (Sec.101(2)) 0.1 / DU (first 12 DU excluded) = 55 Visitor 55 Compliant NA
Sec.102(2) Required: 200-299 provided spaces = 3 Provided: 8 (compliant) Accessible
By-law 2017-301: Part C, Sec. 111(2) 0.5 / DU = 282 1 / 250 m2 of GFA = 1 Bicycle 282 Compliant 1 Compliant Table 111A(b)(i) Table 111A(e) Required: none Loading Provided: 1 (compliant) Additional Provisions & Notes
Small Vehicles (By-law Sec. 106(3)) • 26 non-visitor and non-parallel spaces are proposed as small vehicle spaces sized 2.6 metres by 4.6 metres (Compliant) • Although the wording of Sec. 106(3) relates to permitting small vehicles as a percentage of “required” parking, it is our opinion that the intent of the By-law is not to exclude this permission from “provided” parking not required under the By-law. Instead, the intent is to limit the amount of required parking that can be provided as small vehicles spaces, and not to limit the number of provided small vehicle spaces where no minimum parking requirement applies.
Non-residential Parking Rates (By-law Sec. 111A(e)) • Required rate is based on land use types from Table 111A(e) as the specific non-residential land use types won’t be determined until leasing.
Maximum Permitted Parking (By-law Sec. 103) • Residential use: 1.75 per dwelling unit (combined total of resident and visitor parking) • Office: 2.2 per 100 m2 of gross floor area • Retail Store & Retail Food Store: 3.6 per 100 m2 of gross floor area • Medical Facility: 5.0 per 100 m2 of gross floor area
Drive aisles have been designed to comply with applicable provisions (By-law Sec. 107) • Minimum driveway width for a single traffic lane providing access to parking spaces not in a parking lot or garage (i.e., less than 4 spaces): 2.6 m • Minimum driveway width for a single traffic lane providing access to a parking lot: 3.0 m • Minimum driveway width for a double traffic lane providing access to a parking lot: 6.7 m • Minimum driveway width for a double traffic lane providing access to a parking garage: 6 metres • Minimum aisle width for providing access to parking spaces • 56-90 degree parking: 6.0 m
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TABLE 5. AMENITY AREA MATRIX PROVISION BY-LAW SECTION REQUIRED PROPOSED
Total Amenity Communal Total Amenity Communal Amenity Section 137 Area Amenity Area Area Area
A minimum of 50% of the (rates are the same for both 6 m2 per DU 2,260.3 m2 Amenity Area required total amenity area Mixed-use Buildings of 9 or 3,502 m2 more dwelling units and for = 6 (564 DU) (1,004.6 m2 indoor & = 0.5 (3,384) high rise apartment buildings) = 3,384 m2 1,255.7 m2 outdoor) = 1,692 m2
i. Amenity area must be provided for a residential use that is a permitted use in the zone in which it is located, in accordance with Table 137. ii. Amenity area must be located on the same lot as the use for which it is provided. iii. Amenity area provided outdoors must not be located in a required front or corner side yard. Additional iv. Where amenity area is located outside at grade, it may be included in the calculation of landscaped area requirements.
provisions v. Minimum required communal amenity area may only be included as part of a required landscaped buffer where it is aggregated into areas of 54m2 or more. vi. Layout of communal amenity area: aggregated into areas up to 54 m2, and where more than one aggregated area is provided, at least one must be a minimum of 54 m2.
7. SUMMARY OF REQUESTED AMENDMENTS The proposed development requires multiple Planning Act approvals, including an Official Plan Amendment (OPA), a minor Zoning By-law Amendment (ZBA), and a future site plan approval. The approach being taken is to address the OPA and ZBA first, and once those applications are approved and in full force and effect, then work will proceed on the site plan control application.
The below tables summarize the details of the requested OPA and ZBA, which are the applications that this report has been prepared to provide rationale for. The OPA will be in the form of a site-specific policy exception, whereas the ZBA will be in the form of an urban exception and zoning schedule. The proposed zoning schedule will be prepared in coordination with City staff during the review and comment process following the notice of the applications being deemed adequate and placed on circulation.
TABLE 6. PROPOSED OFFICIAL PLAN AMENDMENT VOLUME 2A – SECONDARY SECTION POLICY PROPOSED RELIEF STRUCTURE OF REQUESTED AMENDMENT PLANS
Notwithstanding the maximum permitted building 1.5.1 Node 1: The maximum building height is 50 metres for height prescribed in Built Form Policy 2 of Section Riverside Drive Maximum permitted development along the Bank Street frontage. 1.5.1 of the Bank Street Secondary Plan, the and Billings Bridge building height of 106 Fifty metres is approximately a 16-storey subject lands are subject to the building height metres mixed-use building. provisions prescribed by Schedule XXX of Zoning Built Form: Policy 2 By-law 2008-250
1.4 General Land A maximum floor space index (FSI) of 2.0 is Notwithstanding the maximum FSI prescribed in Use and Design permitted for properties zoned as Arterial Built Form Policy 3 of Section 1.4 of the Bank Bank Street Policies Mainstreet Zone. If 80% of the required No maximum FSI Street Secondary Plan, the subject lands are not Secondary Plan parking is provided below grade, the maximum subject to a maximum FSI Built Form: Policy 3 FSI is 3.5. For Nodes, at least 70% of the lot width along Notwithstanding the minimum requirement of 70% Bank Street should be occupied by one or 1.4 General Land No minimum of lot width along Bank Street to be occupied by more building wall(s). Lot width should be Use and Design percentage of building building wall, as prescribed in Design Policy 1 of measured at the front yard building setback. A Policies wall is required to be Section 1.4 of the Bank Street Secondary Plan, phasing plan, submitted to the satisfaction of located along the Bank No minimum percentage of building wall is the Planning and Growth Management Design: Policy 1 Street frontage required to be located along the Bank Street Department, may demonstrate how this policy frontage. will be achieved over time.
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A step back is required at the second, third or Building step backs fourth storey of mid- to high-rise buildings to are per Zoning ensure a pedestrian-oriented environment is 1.4 General Land Schedule XXX Notwithstanding the required podium step back upheld. Where possible, the upper-storey Use and Design provisions prescribed in Design Policy 2 of step-back should be designed at the same Policies [5th storey step back Section 1.4 of the Bank Street Secondary Plan, storey as those established in the immediate for the north building the step back requirements for the subject lands area to create a cohesive visual pattern of Design: Policy 2 and 6th storey step are per Zoning Schedule XXX development. Step backs at the upper storeys back for the south help achieve a human scale and allow more building] light on the sidewalks.
The proposed amendments to the Bank Street Secondary Plan are to alter design-related provisions to allow for the proposed development to achieve the planned function for the subject lands. With respect to the height and FSI amendments, this report has demonstrated that the proposed height and FSI represent appropriate means for achieving the type of intensification planned for the node, and that matters of compatibility have been adequately addressed.
The proposed building locations and podium forms achieve the desired building-to-street relationship intended for the site without requiring a minimum percentage of building wall/façade along the Bank Street frontage. The portions of the site’s Bank Street frontage where building façade is not proposed is primarily for the provision of a community amenity in the form of a POPS that will serve a number of benefits noted throughout this report.
With respect to the podium step back amendment to allow building step backs to reflect the concept site and landscape plan (north building step back at the fifth storey and the south building step back at the at the sixth storey), the request will allow for flexibility in building design while preserving the intent of the policy, which is to ensure the scale relationship between building podium and ROW width is appropriate for establishing a comfortable human-scale along the street wall.
TABLE 7. PROPOSED ZONING BY-LAW AMENDMENT EXCEPTION PROVISIONS EXCEPTION APPLICABLE NUMBER ZONE ADDITIONAL LAND LAND USES PROVISIONS USES PERMITTED PROHIBITED
- Maximum building height is 106 metres as per SXXX - The following lot lines apply: i. Bank Street frontage: front lot line ii. Riverside Drive [north] frontage: corner side lot line iii. Most southerly property line: rear lot line XXXX AM8[XXXX] iv. All other lot lines: interior lot lines
(By-law 20XX-XX) SXXX - No minimum required setback from any lot line - No maximum required setback from any lot line - No minimum required setback from a watercourse - Building step backs are as per SXXX - No minimum percentage of building wall is required to be located along the Bank Street frontage
The proposed urban exception and zoning schedule are appropriate means for implementing the proposed zoning amendment. The proposed performance standards identified in Table 7, and to be detailed in a forthcoming zoning schedule, represent minor deviations from the By-law that will allow the site to accommodate a desirable redevelopment that has been carefully planned and designed in accordance with the general intent and purpose of applicable policy and regulations.
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The following summarizes the rationale for each proposed performance standard forming part of the zoning amendment.
Maximum permitted building height • Allows for desired intensification without compromising other priorities (i.e., pedestrian environment; land use and built form compatibility; skyline vistas; transit-supportive development; mobility and connectivity; etc.)
Re-classifying the site’s lot lines so that the Bank Street frontage is the front lot line • Ensures the general orientation and functionality of the proposed development towards Bank Street is reflected by the assignment of lot lines and yards, especially in light of the proposed ROW modifications for this portion of Bank Street which are intended, in part, to improve the pedestrian environment.
Minimum and maximum yard setbacks • The proposal requests that there be no minimum required setback for any yard. The site’s current zoning, as it would apply to the proposal, has no minimum required setback for any yards except for the rear yard, which would require a setback of 3 metres. The request is negligible, as the site is surrounded along all yards by public roadways, except for the land to its immediate west and south, which is open space surrounding a City pumping station. • Maximum yard setbacks will be detailed by the forthcoming zoning schedule that will form part of the site’s proposed new zoning. Maximum setbacks are common along Arterial Mainstreets such as Bank Street, as they help to support the City’s objectives for enhancing the public realm and generating streetscape vibrancy by having active frontages with building facades that frame and interact with the streetscape, especially on lots that are deep and have potential to detract from these objectives through building placement. The context of the site ensures that that the above noted objectives will be met by the proposed development without the need for maximum setbacks, as the property has limited space and depth for flexibility in building placement. The south building will be situated up against the site’s Bank Street lot line, with the remainder of that lot line consisting of a landscaped vehicle access and a POPS that continues around the northeast corner of the site and along portions of the site’s Riverside Drive [north] frontage.
Building step backs are as per SXXX • The proposal contains buildings with four and five storey podiums respectively, which is appropriate given the scale of the buildings and the proposed width and cross-section of the Bank Street ROW. The current building designs, including step backs at the fifth (north building) and sixth storeys (south building), have been revised since the formal pre- application consultation to address comments from City urban design staff and the UDRP, and now also provide step backs at various floor levels above the podium.
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No minimum percentage of building wall is required to be located along the Bank Street frontage • The proposed building locations and podium forms achieve the desired building-to-street relationship intended for the site without requiring a minimum percentage of building façade along the Bank Street frontage. The portions of the site’s Bank Street frontage where building façade is not proposed is primarily for the provision of a community amenity in the form of a POPS that will serve a number of benefits noted throughout this report.
These minor deviations will allow for the site to accommodate a desirable development which addresses a number of City wide objectives relating to housing availability, transit supportive development, well-designed spaces and built form, and the revitalization of underutilized lands within a node targeted for intensification.
8. PUBLIC ENGAGEMENT STRATEGY As part of the due diligence for the project, consultation was undertaken to explore and evaluate design options and early feedback regarding the proposal. These engagement processes include a formal pre-application consultation with City staff and a representative of the Community Association, consultation with the local Ward Councillor and the NCC, and informal pre- consultation with the Urban Design Review Panel (UDRP). It is important to note that extensive discussion has been maintained with City staff throughout the pre-application stage.
Following each of the above noted consultation processes the design of the proposal was modified to address comments, where possible, while maintaining project feasibility given challenges associated with existing site conditions and the surrounding road network.
8.1 URBAN DESIGN REVIEW PANEL Following the August 12, 2019 formal pre-application consultation, it was recommended by City staff that the project be reviewed by the UDRP through its informal pre-consultation process. Accordingly, on December 6, 2019, the project architect presented the following design option to the panel: • Two buildings: south mixed-use building consisting of 27 storeys with a 6-storey podium, and the north residential building consisting of 29 storeys and a 4-storey podium (± 500 total dwelling units) • Two-level below-grade parking garage with limited surface parking intended for visitors and loading/service • Community amenity in the form of a privately-owned public space along the northeast corner of the site to provide a softened frame for the busy intersection, enhance the public realm, create a soft transition from the site to the adjacent open space along the Rideau River, and to provide opportunity for a flex-space (i.e., seasonal amenities, events, pop- up uses, etc.)
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The summary comments received from the UDRP were generally supportive and spoke to design elements relating to the building towers and podiums, urban parkette, and site access and circulation. The design of the current proposal takes into account the comments and recommendations received by City planning staff and the UDRP, as detailed through this report as well as the submitted conceptual architectural drawings. A formal presentation to the UDRP is intended to take place during the future site plan control process.
9. SUPPORTING DOCUMENTATION As part of a complete submission for the proposed development and requested planning approvals, and through consultation with City staff, the following plans and reports have been prepared and submitted, some of which are summarized below. • Assessment of Adequacy of Public Services • Transportation Impact Assessment • Geotechnical and Slope Stability Study • Phase 1 Environmental Site Assessment • Transportation Noise Feasibility Assessment • Pedestrian Level Wind Study • Shadow Analysis • Design Brief • Planning Rationale • Architectural Building Elevations • Concept Site and Landscape Plan • Floor Plans (includes parking garage layout) • Survey Plan
Assessment of Adequacy of Public Services Novatech prepared an Assessment of Adequacy of Public Services report dated September 4, 2020 in support of the proposed development and applications. The report provides the following conclusion:
“Based on our analysis of the information available, the existing municipal sanitary and storm sewers should have enough capacity to service the proposed mixed-use development. On-site stormwater management will be implemented to meet the requirements of the City of Ottawa and the Rideau Valley Conservation Authority (RVCA). The City of Ottawa has acknowledged that infrastructure upgrades to the municipal watermain network will be required to provide redundancy and adequate fire flow to the surrounding area, including the proposed development. We are currently discussing watermain options with the City of Ottawa and working towards finding a feasible solution for the proposed development. Further details will be provided as part of the Site Plan Control application.”
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Please see the report for further detail.
Transportation Impact Assessment Parsons prepared Transportation Impact Assessment dated September 2020 in support of the proposed development and applications. The report provides the following conclusion:
“In summary, the subject development is located in close proximity to existing rapid transit and active transportation networks, and although situated within the middle of the unusual configuration of the Bank/Riverside intersection, the vehicle access is well integrated and the development is forecasted to generate traffic volumes that do not adversely impact the performance of the nearby study area intersections. The development is recommended from a transportation perspective.”
Please see the report for further detail.
10. CONCLUSION The proposed mixed-use development for the subject site (2211 Riverside Drive and 1330, 1340 and 1346 Bank Street) represents a permitted and desirable land use that will contribute to a process of rejuvenation for an important node within the City that is targeted and ideally situated for intensification. The proposed development requires an Official Plan Amendment and minor Zoning By-law Amendment to accommodate proposal-specific performance standards.
As demonstrated by this report and other technical submissions included with the required applications, the proposal represents a timely, appropriate, and carefully planned development that will fit well and work well on the site and within the surrounding context.
It is our opinion that the proposed development and requested amendments represent good land use planning that is in the public interest, is consistent with the PPS, and is general conformity and compliance with the Official Plan and zoning by-law. As such, we recommend the amendments for approval.
Respectfully submitted,
Stantec Consulting Ltd.
Prepared by: Reviewed by:
Barrett L. Wagar RPP, MCIP, M.PL Molly Smith MCIP, RPP, B.LA Nancy Meloshe MCIP, RPP
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