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Report to Rapport au:
Planning Committee Comité de l'urbanisme 26 June 2018 / 26 juin 2018
and Council et au Conseil 11 July 2018 / 11 juillet 2018
Submitted on 11 June 2018 Soumis le 11 juin 2018
Submitted by Soumis par: Lee Ann Snedden, Director / Directrice Planning Services / Services de la planification Planning, Infrastructure and Economic Development Department / Direction générale de la planification, de l’infrastructure et du développement économique
Contact Person / Personne ressource: Andrew McCreight, Planner / Urbaniste, Development Review Central / Examen des demandes d’aménagement centrale (613) 580-2424, 22568, Andrew.McCreight@ottawa.ca
Ward: SOMERSET (14) File Number: ACS2018-PIE-PS-0072
SUBJECT: Official Plan Amendment and Zoning By-law Amendment – 133 Booth Street, 301 and 324 Lett Street
OBJET: Modification au Plan officiel et modification au Règlement de zonage – 133, rue Booth, 301 et 324, rue Lett
REPORT RECOMMENDATIONS
1. That Planning Committee recommend Council:
a. approve an amendment to the Official Plan, Volume 2a, Central Area Secondary Plan, with site-specific policies to allow for a mixed-use 2
designation and development concept with five high-rise towers ranging in height from 25 to 45 storeys, as detailed in Document 2; and,
b. approve an amendment to the Zoning By-law 2008-250 for 133 Booth Street, 301 and 324 Lett Street, to permit a mixed-use development with five high-rise towers ranging in height from 25 to 45 storeys, through a Mixed-Use Downtown zone with increased building heights, site-specific provisions and a holding symbol, as detailed in Document 3.
2. The Planning Committee approve the Consultation Details Section of this report be included as part of the ‘brief explanation’ in the Summary of Written and Oral Public Submissions, to be prepared by the City Clerk and Solicitor’s Office and submitted to Council in the report titled, “Summary of Oral and Written Public Submissions for Items Subject to Bill 73 ‘Explanation Requirements’ at the City Council Meeting of 11 July 2018,” subject to submissions received between the publication of this report and the time of Council’s decision.
RECOMMANDATIONS DU RAPPORT
1. Que le Comité de l’urbanisme recommande au Conseil :
a. d’approuver une modification au Plan officiel, Volume 2a, Plan secondaire de l’Aire centrale, en ajoutant des politiques propres à l’emplacement permettant une désignation polyvalente et un projet d’aménagement comprenant cinq tours d’une hauteur variant entre 25 et 45 étages, comme l’expose en détail le document 2;
b. d’approuver une modification au Règlement de zonage 2008-250 visant le 133, rue Booth et les 301 et 324, rue Lett, afin de permettre un aménagement polyvalent constitué de cinq tours d’une hauteur variant entre 25 et 45 étages, dans le cadre d’un zonage polyvalent assorti de hauteurs de bâtiment accrues, de dispositions propres à l’emplacement et d’un symbole d’aménagement différé, comme l’expose en détail le document 3.
2. Que le Comité de l’urbanisme donne son approbation à ce que la section du présent rapport consacrée aux détails de la consultation soit incluse en tant que « brève explication » dans le résumé des observations écrites et 3
orales du public, qui sera rédigé par le Bureau du greffier municipal et de l’avocat général et soumis au Conseil dans le rapport intitulé « Résumé des observations orales et écrites du public sur les questions assujetties aux ‘exigences d'explication’ aux termes du projet de loi 73 , à la réunion du Conseil municipal prévue le 11 juillet 2018», à la condition que les observations aient été reçues entre le moment de la publication du présent rapport et le moment de la décision du Conseil.
EXECUTIVE SUMMARY
Assumption and Analysis
The subject Official Plan and Zoning By-law amendments designate and rezone the lands to permit mixed-use development and increase the maximum permitted building heights. The amendments allow a development concept with five high-rise towers with building heights ranging from 25 to 45 storeys, with approximately 1,600 dwelling units and a range of commercial and institutional uses contained within the building podiums. Intensification and a mix of land uses will support the Central Area designation and proximity to the Pimisi O-Train Station.
Public Consultation/Input
Notification and public consultation was undertaken in accordance with the Public Notification and Consultation Policy approved by Council for Development Applications. Approximately 35 individuals/groups commented on the proposal as a result of the notification process. Supportive comments were received regarding the mix of uses (notably grocery store) proposed, the treatment of surrounding greenspaces and pedestrian connectivity, and adding more residential units in LeBreton Flats. Concerns/opposed comments were focused on height and density, parking, traffic, shadowing/views, and impacts from project phasing, construction, property value and infrastructure. In addition to comments submitted, the Department received a petition signed by approximately 260 individuals opposed to the application for reasons associated with transportation impacts, building heights and urban design.
The ward councillor organized a public open house that was focused on building complete communities and an open discussion about how the LeBreton Flats area is to evolve over time. The open house was primarily focused on the broader picture planning discussions, but the event also included three active development proposals, including these applications. The applicant team and staff were available at display 4 boards to take questions. The meeting was held on April 26, 2018, and approximately 140 members of the public attended.
RÉSUMÉ
Hypothèse et analyse
Ces modifications au Plan officiel et au Règlement de zonage attribuent aux biens- fonds visés des désignations et un zonage qui permettent des aménagements polyvalents et d’augmenter les hauteurs de bâtiment maximales. Ces modifications permettent un projet d’aménagement comprenant cinq tours d’une hauteur variant entre 25 et 45 étages, qui contiendraient environ 1 600 unités d’habitation et une variété d’utilisations commerciales et institutionnelles occupant les socles des tours. La densification et la diversité des utilisations du sol conviennent à la désignation d’Aire centrale et à la proximité de la station Pimisi du TLR.
Consultation publique et commentaires
Les membres du public ont été avisés et consultés conformément à la politique en la matière adoptée par le Conseil municipal pour les demandes d’aménagement. Environ 35 personnes ou groupes ont commenté la proposition à la suite du processus de consultation. Les commentaires favorables reçus avaient trait à la variété d’utilisations proposées (notamment en ce qui concerne l’épicerie), au traitement des espaces verts et des liens piétonniers environnants, et à l’arrivée de nouvelles unités d’habitation sur les plaines LeBreton. Les préoccupations ou les commentaires d’opposition émis concernaient essentiellement la hauteur et la densité du projet, le stationnement, la circulation, l’ombrage et les points de vue ainsi que les répercussions découlant de l’échelonnement du projet, des travaux de construction, de la valeur des propriétés et des infrastructures. Outre les commentaires émis, la Direction générale a reçu une pétition signée par environ 260 personnes opposées à la demande pour des raisons liées aux répercussions sur le transport, aux hauteurs de bâtiment et au design urbain.
BACKGROUND
Learn more about link to Development Application process - Zoning Amendment
Learn more about link to Development Application process – Official Plan Amendment
For all the supporting documents related to this application visit the link to Development Application Search Tool. 5
Site location
133 Booth Street, 301 Lett Street, and 324 Lett Street.
Owner
Claridge Homes
Applicant
Urban Strategies Inc.
Description of site and surroundings
The subject site is located east of Booth Street, between Fleet Street to the north, Lett Street to the east, and the heritage aqueduct and confederation O-Train line to the south, in LeBreton Flats.
With the exception of a sales centre and associated parking, the lands are currently vacant. The following land uses surround the subject site:
North: National Capital Commission (NCC) owned land currently developed as a passive public green space known as Pindigen Park is across Fleet Street to the north, with the Holocaust Memorial and Canadian War Museum across Sir John A. MacDonald Parkway / Wellington Street, and Chaudière and Victoria Islands (Zibi development lands) further north.
East: East of the subject site exists the first two phases of the East Flats neighbourhood constructed by Claridge Homes, which contains two residential apartment buildings, eight and 13 storeys in height with approximately 450 dwelling units.
South: Immediately south of the site is the heritage aqueduct, and the light rail transit (O-Train) Confederation Line with the future Pimisi Station at Booth Street. Further south includes the lands selected for the new Ottawa Public Library / Library and Archives Canada facility and a mixed-use development concept. Further south is a predominantly low-rise residential neighbourhood south of Albert Street.
West: West of Booth Street includes vacant lands in LeBreton Flats owned by the NCC that will ultimately be subject to the Illumination LeBreton proposal.
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Summary of requested Official Plan and Zoning By-law amendments
The proposal includes a mixed-use development concept with five high-rise towers, ranging in height from 25 to 45 storeys. The plan includes a variety of apartment unit sizes, affordable housing, a childcare facility, as well as a range of commercial uses, such as the potential for restaurants, a grocery store, and other neighbourhood servicing uses.
The Official Plan Amendment (OPA) seeks to amend the Central Area Secondary Plan by re-designating the block bound by Fleet Street, Lloyd Street and Lett Street from Residential to Mixed-Use and increasing the maximum permitted building heights to allow a range of 25 to 45 storeys, whereas the current Secondary Plan (Map 4) permits six to ten storeys. The application also results in site-specific policies for the subject lands.
The subject lands are currently located in two General Mixed Use (GM) zones and a Residential Fifth Density (R5) zone with maximum building heights ranging from 20 to 40 metres. The GM zones applicable to portions of the subject site permit a range of residential, commercial and institutional uses. The R5 zone applicable to a portion of the site permits a range of residential uses and some limited commercial uses.
The Zoning By-law amendment application had requested to rezone the subject site to a new Transit Oriented Development (TD) zone that would permit a variety of residential and commercial uses with building heights ranging from 25 storeys (80 metres) to 45 storeys (140 metres).
However, the Zoning By-law amendment (ZBLA) being recommended in this report brings all of the lands into a Mixed-Use Downtown Zone (MD) and includes the following details.
The first phase of development is primarily delineated by development Area A in Schedule XXX but will also include the podium (up to 18 metres) within development Area B. The proposed 30-storey mixed-use building includes the following zoning recommendations:
Rezone the site to MD with a maximum permitted building height of 95 metres (30-storeys).
The zone permits a wide range of commercial, institutional and residential uses. 7
Limit the gross floor area (GFA) in accordance with the development concept to 28,000 square metres.
Acknowledge that a maximum of one tower is permitted in each respective development phase as per Schedule XXX.
The balance of the lands, which includes Areas C, D and E in Schedule XXX as well as the building above the podium in Area B, will be placed in a holding zone for the remaining phases, and generally includes the following zoning recommendations:
Rezone the lands to MD to permit a wide variety of commercial, institutional and residential uses.
Increase the maximum permitted building heights to allow a range of towers from 25 to 45 storeys as per Schedule XXX.
Limit the combined GFA in accordance with the development concept to 92,000 square metres.
Use a holding symbol (-h) that requires additional review and analysis for future development including updated studies, monitoring the applicability of Section 37 and consistency with the site-specific East Flats policies.
Brief history
While the proposed development concept has not been subject to a City Council decision historically, the lands are subject to a Plan of Subdivision agreement. Several conditions within the said agreement will influence the proposed development, including the requirement for affordable housing and a childcare facility, both of which will be included in the first phase of development and secured through conditions of approval of the corresponding Site Plan application. Provided affordable housing units will be subject to an affordable housing agreement and must satisfy the subdivision agreement and Central Area Secondary Plan. The first phase of development will also include a childcare facility that will be at minimum, designed for at least 50 children with 465 square metres of interior space and 280 square metres of exterior playground space, as per the agreement.
For informational purposes, as an explanation of the application of Section 37, the zoning details amend the maximum permitted GFA on the subject lands (assuming a 17 per cent exclusion) to a combined total of 120,000 square metres. Compared to the current as-of-right GFA, which was 76,710 square metres at the time of reviewing this 8 application. While the proposed development concept as a whole triggers Section 37 requirements, it is important to note that the first phase of development does not exceed a 25 per cent increase in GFA. The rezoning has been set up to monitor each phase of development respective to Section 37, and once triggered, a minor rezoning application will be required to execute the Section 37 agreement and to lift the holding symbol of the said phase. When this occurs, possible contributions may include funding towards the parkland abutting the lands, providing a community facility or recreational space and/or contributions towards an affordable housing account in accordance with the City’s Section 37 Implementation Guidelines. Starting with the second phase of development, the details of Section 37 will be determined with each phase of development and contributions must be above and beyond requirements stemming from the said subdivision agreement. For further clarity, the as-of-right zoning analysis is shown in Document 5.
DISCUSSION
Public consultation
Notification and public consultation was undertaken in accordance with the Public Notification and Consultation Policy approved by Council for Development Applications. Approximately 35 individuals/groups commented on the proposal as a result of the notification process. Supportive comments were received regarding the mix of uses (notably grocery store) proposed, the treatment of surrounding greenspaces and pedestrian connectivity, and adding more residential units in LeBreton Flats. Concerns/opposed comments were focused on height and density, parking, traffic, shadowing/views, and impacts from project phasing, construction, property value and infrastructure. In addition to comments submitted, the department received a petition signed by approximately 260 individuals opposed to the application for reasons associated with transportation impacts, building heights and urban design.
Information on the applications was also added to the City website ottawa.ca/lebretonflats, which is focused on development in LeBreton Flats.
The Ward Councillor organized a public open house that was focused on building complete communities and an open discussion about how the LeBreton Flats area is to evolve over time. The open house was primarily focused on the broader picture planning discussions, but the event also included three active development proposals, including these applications. The applicant team and staff were available at display boards to take questions. The meeting was held on April 26, 2018, and approximately 140 members of the public attended. 9
For this proposal’s consultation details, see Document 5 of this report.
Official Plan (OP) designation
The site is located within the Central Area designation as shown on Schedule B of the Official Plan. Other applicable schedules include C - Primary Urban Cycling Network, D - Rapid Transit Network, Booth Street is an Arterial Street as shown in Schedule F, and part of the Scenic Entry Routes on Schedule I.
Other applicable policies and guidelines
The Central Area Secondary Plan in Volume 2a of the Official Plan applies. Within this plan, the site is located within the LeBreton Flats Character Area, which is noted as a unique site that is critical to the future of the heart of the Nation’s Capital and the Central Area of the City. Schedule Q currently designates the lands as either mixed-use or residential, and Map 4 permits building heights in the range of six to 10 storeys across the subject site. Official Plan amendments are required to bring all the lands into the mixed-use designation, increase building heights and provide site-specific policies for the subject lands.
The Urban Design Guidelines for Transit-Oriented Development apply as the site is within 600 metres of a rapid transit station. The guidelines aim to provide a mix of uses and densities that complement both transit users and the local community; ensure that the built form is designed and orientated to facilitate and encourage transit use; manage the safe circulation of pedestrians, cyclists, vehicles and parking; and create quality public spaces that provide direct, convenient, safe and attractive access to transit.
Also applicable to the site are the Urban Design Guidelines for High-Rise Housing. Particularly relevant to the proposal are the guidelines specific to building orientation, human-scale, building mass, active at-grade uses, public realm, tower separation and floor-plate size. The recommended Official Plan amendment and zoning details address these items.
Urban Design Review Panel (UDRP)
The subject site is located within a Design Priority Area as defined by the Official Plan. The applicant presented their proposal during pre-consultation to the UDRP for an informal review on January 12, 2017.
The proposal shown at that time was a similar concept compared to the details considered through these applications, but included the tallest tower at 55 storeys. 10
Informal review focused on comments regarding massing, views, public realm and connectivity.
In response to initial UDRP recommendations, the tallest tower was reduced to 45 storeys, a range of key views were analyzed, podiums were defined for human- scale, connectivity was improved and the public realm was acknowledged. Through the overall planning process, each phase of development will return to the UDRP for formal review, and if necessary a focused review, with each respective Site Plan application.
Staff are confident that the recommendations contained within this report for the Official Plan and Zoning By-law amendments will result in good planning and setup a framework that is consistent with the key items that the panel flagged for further consideration.
Planning Rationale
Provincial Policy Statement (PPS)
Staff have reviewed this proposal and have determined that it is consistent with the Provincial Policy Statement, 2014.
Official Plan Policies
The applications have been reviewed under the consolidated Official Plan (2003), policies in effect contained within Official Plan Amendment 150 (OPA 150) and with regard for Council-approved amendments in OPA 150.
The site is designated as Central Area (Section 3.6.6), which is a target area for intensification and a designation that permits a wide variety of uses that encourage day/night and year-round activities. Walking, cycling and transit are a priority during peak traffic periods, and the policy framework places a strong emphasis on quality urban design, human-scale development and an enhanced pedestrian realm.
Section 3.6.6, Policy 2 contains policies supporting economic, cultural and national activities such as focusing on tourism, business, retail, housing and major community facilities while also protecting important views and vistas, such as the Parliament Buildings. Policy 3 promotes a vital and active place by encouraging a wide range of activities and supporting the Central Area as the main tourist destination and an area with improved access to public streets, open spaces and amenities.
Section 2.1 acknowledges the importance of managing growth within the urban area and directing intensification where it can be accommodated in a compact and mixed- 11 use development and served with quality transit, walking and cycling facilities. Section 2.2.2 recognizes the Central Area as an intensification target area and supports height and density through mixed-use developments and promotes strong urban design with enhanced pedestrian environments. Adding new development on vacant land in designated growth areas that complete an existing community will strengthen the city’s liveable communities.
Sections 2.5.1 and 4.11 provide policy direction for urban design and compatibility. Section 2.5.1 is broad in nature with design objectives such as defining quality spaces, ensuring safety and accessibility, respecting the character and considering adaptability and sustainability.
Section 4.11 also provides direction on the building profile for high-rise development in the Central Area. It allows high-rise development in areas characterized by high-rises, within 600 metres of a rapid transit station, where a Secondary Plan or Council- approved document identifies high-rise locations and in areas where the built form is appropriate. The building profile measures compatibility using scale and massing, the quality of architecture and reviewing how the proposal enhances the public realm.
Having regard to OPA 150, especially with respect to high-rise development (30 and more storeys), new policies acknowledge that tall buildings should be located in areas that support rapid transit, with a mix of uses and where large-scale intensification can be accommodated. The tallest buildings should be concentrated around rapid transit stations with height decreasing as you move further away. A stronger emphasis is placed on human-scale and pedestrian-oriented street environment through measures such as a podium design, which is generally two to six storeys and responds to the surrounding character; tower(s) are stepped back. Tower design and separation is important to minimize wind and sun shadowing impacts as well as to maintain privacy and preserve public views and sky views.
The proposed amendments conform to the OP and are consistent with OPA 150. The mixed-use development concept concentrates height and density around the Pimisi O- Train Station and in a manner that improves connectivity and provides active frontages enhancing the public realm. Despite the bridge condition of Booth Street, the proposal manages to widen and activate the public realm with sufficient room for street trees, wider sidewalks, street furniture and active ground floor uses that will encourage community services and amenities while maintaining accessibility.
The subject site is not located within any view protection corridors as defined by the OP. Despite this, the applicant was asked to analyse various views to and from the site to 12 understand the potential skyline impacts and important views such as to the Parliament Buildings. The initial dialogue of important views was discussed during informal review with the UDRP. The tallest tower was reduced in height as it had the potential of appearing within the extrapolated background views of Parliament when looking from east of Parliament towards LeBreton Flats. Staff are satisfied that important views are maintained, and the emerging skyline in LeBreton Flats will show a concentration of height around rapid transit that is distinct from downtown, especially given the contextual break at the escarpment.
Concentrating a mixed-use development on the currently vacant lands will serve to continue establishing the neighbourhood of LeBreton Flats and promote the vitality of the Central Area as a liveable community. The proposed amendments support connectivity and demonstrate how the development will integrate with the wider community through a strong focus on walkability and quality transit. The site will be well integrated into a network of pathways and open spaces for pedestrian and cyclist connectivity to various destinations. Although auto-dependence is of a lower priority, a Transportation Study was submitted to ensure that the first phase of development could be built with no adverse impacts, including from a vehicular perspective. The zoning recommendations will use a holding symbol for the balance of the lands as opportunity to monitor the modal split targets from the first phase of development. Each phase of development, including the first, will require further transportation review through Site Plan Control.
The recommended amendments provide an appropriate framework to ensure quality urban design with human-scaled podium designs, active frontages, tower separation, and built form principles in conformity with Policies 2.5.1 and 4.11. The proposal is consistent with OPA 150, which contains more prescriptive polices. It has demonstrated the ability to focus height and density around rapid transit and in a compatible manner with point towers on podiums, a strong pedestrian realm with active frontages and a mix of uses where intensification can be accommodated and fit within the existing context and planned function.
Secondary Plan
As per the Central Area Secondary Plan, the site is located within the LeBreton Flats Character Area. The Official Plan amendment has the effect of bringing all the subject lands into the Mixed-Use designation and increasing the maximum building profile (heights). Given the parent Central Area designation and emerging context with the introduction of Pimisi O-Train Station and vision for transit-oriented development in 13
LeBreton Flats, the amendments are appropriate and better align with the broader OP policies and PPS 2014.
The Mixed-Use designation in the LeBreton Flats Character Area encourages a balance of jobs and housing with a more efficient use of valuable land and infrastructure. New opportunities for quality design and medium to high densities will be offered within the Central Area and provide a diverse range of uses and activities where people can live, work, socialize and play. The use of transit facilities is encouraged along with mixed-use developments and a pedestrian-oriented realm.
The proposed amendments to the secondary plan represent good planning by recognizing the importance of community-building and concentrating a range of uses, including services and amenities, within walking distance to rapid transit.
The amendment encourages appropriate intensification that promotes a vibrant and lively community. The site-specific policies for the East Flats, as detailed in Document 2, provide a framework that recognizes the benefit of mixed-use development in proximity to quality transit, cycling and walking facilities while also providing policy direction to ensure quality design and compatibility. The subject lands are well positioned to thrive as per the Central Area designation and will be developed in a manner that ensures integration and connectivity with the surrounding community through active frontage and improved access to public transit, pathways and amenities.
The amendments to redesignate the lands to mixed-use and associated site-specific policies, including increased building heights, are consistent with Council-approved guidelines such as those for high-rise developments and transit-oriented developments. The relevant guidelines speak to encouraging development that is walkable with easy access to amenities and public transit and provides for built form transition, enhanced pedestrian realms such as wider sidewalks, active frontages, minimizing parking to the amount required and quality urban design with tower separation and human-scale street-level design. The mixed-use development proposal supported by the recommended amendments helps achieve these important city-building objectives and encourages the revitalization of a new LeBreton Flats community.
Furthermore, the amendments to the current secondary plan are consistent with the PPS 2014. Healthy, liveable and safe communities are sustained in manners such as promoting efficient land use patterns, accommodating an appropriate range and mix of uses and improving accessibility. Density and a mix of land uses efficiently uses land and infrastructure, supports active transportation and promotes intensification within a specified target area. An appropriate range of housing and employment types are also 14 encouraged as well as planning for healthy active communities through public spaces, recreation, parks, trails and open spaces. The recommended amendments, as detailed in Document 2, are consistent with this summary of important provincial policies.
Official Plan Amendment
The department supports the proposed amendment to the Central Area Secondary Plan. In addition to concentrating density and a mix of uses near rapid transit, the recommend OPA provides for site-specific policies that ensure quality urban design and appropriate built form measures. Additionally, policies include a strong emphasis on active frontages, promoting connectivity and integration through improved public streets, open spaces and parkland. Collectively, the OPA and corresponding zoning details represents good planning that conforms with the broader Official Plan policies and is consistent with PPS 2014.
Recommended Zoning Details
As detailed in Document 3, the proposed Zoning By-law amendments have the effect of bringing the lands into the Mixed-Use Downtown zone (MD). The purpose statements of the MD zone specifically note Character Areas, such as LeBreton Flats, in the Central Area and acknowledge that such areas will continue to serve as primary business or shopping area and maintain their distinct character. With this direct acknowledgment in the Zoning By-law, the MD zone is recommended to apply to the lands.
The applicant has described the proposed development concept as a plan that could take about 15 years to build out fully. The zoning details, through the use of a holding symbol, have been framed to ensure that each phase of development works on its own merit but also as a function of the broader planning implications.
The following summarizes the site-specific zoning provisions and planning rationale:
First phase of development (exception xxx1)
Rezoning the site to MD is consistent with the Zoning By-law (purpose statement of MD zone) and better aligns with the Central Area designation and PPS 2014 to permit a wide variety of residential, commercial and institutional uses with a height and density that supports intensification in a target area and is located within 600 metres of a Rapid Transit Station.
In conjunction with the recommended Official Plan Amendment, the first phase of development will result in a mixed-use building using a tower and podium design. 15
The proposed GFA, as formalized in Document 2, does not trigger Section 37 but will contribute to the overall density of the subject lands. The maximum GFA of 28,000 square metres is to ensure clarity and avoid an as-of-right situation that would potentially allow a sufficiently larger built form.
Referencing a maximum of one tower per development area ensures consistency with the development concept.
Subsequent phases (Exception xxx2)
Rezoning the site to MD for the reasons outlined above.
The maximum GFA of 92,000 square metres represents the built form shown in the application’s development concept and ensures that the recommended MD zone would not allow for sufficiently greater development. The density is supported at this location with the ability to build upon a new community and support quality transportation in a walkable neighbourhood.
Referencing a maximum of one tower per development area ensures consistency with the development concept.
The recommended building heights, along with the associated policies, allow for built form transition and quality urban design and compatibility in accordance with OP Section 2.5.1 and 4.11.
Section 37 will be triggered at some point beyond the first phase and zoning details through the holding symbol have been added to ensure that the calculation is analysed with each phase and implemented accordingly when triggered. Document 6 was added to this report to add clarity for current as-of- right development potential and shall be used as the baseline against all applications associated with the subject lands.
The holding symbol is being used to address some concerns that were identified beyond the first phase of development to ensure that the site as a whole works in all aspects. Lifting the symbol in part may allow additional phases to be built where all conditions are satisfied. For example, the development concept may occur over a period of 15 years and the transportation impacts and review may vary considerably over that time. The development, as it should, has been designed for an active community with a greater emphasis on active modes of transportation, such as public transit, walking and cycling. Subsequent studies 16
need to monitor the impacts from the first phase and adjust accordingly to ensure that there are no adverse impacts.
RURAL IMPLICATIONS
There are no rural implication associated with this report
COMMENTS BY THE WARD COUNCILLOR
Councillor McKenney provided the following comments:
“This proposed development is perfectly positioned for a transit oriented development approach, making this growing community well situated to accommodate increased residential and commercial activity with a wide range of land uses in close proximity to our soon to open O-Train network. The proposed amendment to institute a compatible mixed-use zone, will allow for amenities necessary to attract and retain families such as parks, recreation facilities, childcare services, and commercial spaces to provide for daily needs.
The current zoning permits heights ranging from 20 to 40 metres whereas this proposal requests more than triple those heights on the entirety of the site. At these heights, the subsequent impacts on the existing community cannot be adequately addressed through the use of tower spacing and setbacks. Although I support intensification in close proximity to transit stations, I believe the building heights should be reconsidered for this proposal. It is also crucial to transition height from the existing community with some lower rise buildings.
Traffic and mobility constraints have been a constant theme during my discussions with community members on this project. The transportation network should be designed to connect to the larger network and transition logically to the surrounding communities. A key element of the design of this project should be substantial connectivity with the future O-Train Station and pedestrian and cyclist networks.
The condition within the original 2007 Subdivision Agreement for the applicant to include considerable affordable housing units within the development is appreciated and crucial to creating a truly diverse and vibrant community. Furthermore, the agreed provision to also include childcare space is very welcoming and I look forward to discussing the design details of this space as the process unfolds.
The future zoning for the Park, Recreational, and Public Space should facilitate a wide range of active and programed uses while maintaining ample green space and 17 substantial landscaping. Impacts on shadowing, accessibility, sight lines, and safety should also be considered in the discussions on how building scale, height, location, and massing impact our streets and open spaces.”
LEGAL IMPLICATIONS
In accordance with Bill 139, if the proposed Official Plan amendment and Zoning By-law are adopted, the official plan amendment can only be appealed on the basis of inconsistency with the Provincial Policy Statement and the zoning amendment can only be appealed on the basis of inconsistency with the Provincial Policy Statement or lack of conformity with the official plan. Were the official plan amendment and/or Zoning By-law appealed, the preparation of the necessary documentation for the Local Planning Appeal Tribunal and the making of submissions to the Tribunal could be done within staff resources.
If the official plan and/or zoning amendment is/are refused, reasons must be provided. Due to the limited timeframes now associated with Local Planning Appeal Tribunal matters, the City Clerk and Solicitor Department would seek to retain an external planner to provide an affidavit in support of the refusal for the initial Tribunal review of the item(s) should an appeal of the refusal be forthcoming. For an appeal of a refusal of an official plan amendment to succeed, the appellant must show that the existing official plan policies are inconsistent with the Provincial Policy Statement. For an appeal of the refusal of a zoning application to succeed, the appellant must show that the existing zoning is inconsistent with the Provincial Policy Statement and/or does not conform to the Official Plan.
RISK MANAGEMENT IMPLICATIONS
There are no risk management implications.
FINANCIAL IMPLICATIONS
Section 37 will be triggered at some point beyond the first phase. The details of Section 37 will be determined with each phase of development, and in accordance with the City’s Section 37 Implementation Guidelines.
Funding for the park is to be determined, but may be accomplished through the use of contributions towards Section 37 requirements, or Cash-in-Lieu of Parkland monies (Ward account only) resulting from the development. Any City funding required for the park would be brought forward for Council consideration through the annual budget process. 18
In the event the official plan and/or zoning amendment is/are refused and appealed, an external planner would be retained. This expense would be absorbed from within Planning, Infrastructure and Economic Development’s operating budget.
ACCESSIBILITY IMPACTS
Through subsequent Site Plan applications, proposed development must be accessibility as per the City of Ottawa Municipal Accessibility Plan and Accessibility for Ontarians with Disabilities Act.
TERM OF COUNCIL PRIORITIES
The proposed amendments address the following Term of Council Priorities:
EP1 – Promote Ottawa
EP 2 – Support growth of local economy
TM3 – Integrate the rapid transit network into the community
HC4 – Support Arts, Heritage and Culture
APPLICATION PROCESS TIMELINE STATUS
This application was processed by the "On Time Decision Date" established for the processing of Zoning By-law amendment applications.
SUPPORTING DOCUMENTATION
Document 1 Location Map
Document 2 Details of Recommended Official Plan Amendment XX
Document 3 Details of Recommended Zoning
Document 4 Schedule XXX
Document 5 Consultation Details
Document 6 Density Analysis
CONCLUSION
The recommended Official Plan and Zoning By-law amendments result in the lands being designated for mixed-use development and increasing the maximum permitted 19 building heights. For managing growth within Ottawa, the amendments directly respond to the Official Plan for concentrating a mix of uses in the Central Area and providing for density and a range of activities within walking distance of quality public transit. The development has the ability to animate all frontages, enhance the public realm and develop vacant lands into a more complete community with a variety of services and amenities. The recommendations of this report promote a lively mix of uses intended to support a vibrant, healthy and desirable community. The amendments represent good planning, are consistent with the Provincial Policy Statement, conform to the Official Plan and are recommended for approval.
DISPOSITION
Legislative Services, Office of the City Clerk and Solicitor to notify the owner; applicant; Ottawa Scene Canada Signs, 1565 Chatelain Avenue, Ottawa, ON K1Z 8B5; Krista O’Brien, Tax Billing, Accounting and Policy Unit, Revenue Service, Corporate Services (Mail Code: 26-76) of City Council’s decision.
Zoning and Interpretations Unit, Policy Planning Branch, Economic Development and Long Range Planning Services to prepare the implementing by-law and forward to Legal Services.
Legal Services, Office of the City Clerk and Solicitor to forward the implementing by-law to City Council.
Planning Operations Branch, Planning Services to undertake the statutory notification.
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Document 1 – Location Map
For an interactive Zoning map of Ottawa visit geoOttawa.
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Document 2 – Details of Recommended Official Plan Amendment XX
Official Plan Amendment XX to the
Official Plan for the
City of Ottawa
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INDEX
THE STATEMENT OF COMPONENTS
PART A – THE PREAMBLE
Purpose
Location
Basis
Rationale
PART B – THE AMENDMENT
Introduction
Details of the Amendment
Implementation and Interpretation
PART C – THE APPENDIX
Schedules 1 and 2, Map 6, of Amendment XX – Official Plan for the City of Ottawa
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Statement of Components
PART A – THE PREAMBLE introduces the actual amendment but does not constitute part of Amendment No. XX to the Official Plan for the City of Ottawa.
PART B – THE AMENDMENT constitutes Amendment XX to the Official Plan for the City of Ottawa.
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PART A – THE PREAMBLE
1. Purpose
The purpose of this amendment is to amend the Central Area Secondary Plan, specific to 133 Booth Street, 301 and 324 Lett Street, by bringing the entirety of the site into the mixed-use designation, increasing the maximum permitted building heights, and by adding a new site-specific policy section applicable to the subject lands.
The summary of the proposed amendments and changes to the Central Area Secondary Plan made through this amendment are as follows:
a. Redesignate 301 Lett Street as “Mixed-Use”;
b. Increase maximum permitted building heights from six and ten storeys to allow a range of towers from 25 to 45 storeys;
c. Add a new Map specific to the subject lands highlighting maximum building heights and approximate tower locations, and active frontage requirements; and
d. Add a new site-specific policy section within the LeBreton Flats Character Area applicable to the subject lands.
2. Location
The proposed Official Plan amendment includes changes only applicable to 133 Booth Street, 301 and 324 Lett Street. The subject lands are bound by Fleet Street to the north, Lett Street to the east, the heritage aqueduct to the south, and Booth Street to the west.
3. Basis
The amendment to the Official Plan was requested by the applicant to permit a mixed-use development consisting of five high-rise towers reaching heights of two towers at 25-storeys, two towers at 30-storeys, and one 45-storey tower. The amendment facilitates promoting a range of uses and activities, and increased height and density in response to the immediate proximity of the Pimisi O-Train station.
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4. Rationale
The proposed Official Plan Amendment to the Secondary Plan represents good planning, as the amendments will allow for a mixed-use development that can support a lively mix of uses and density around rapid transit. Increasing building height and density with a mix of land uses is appropriate for the subject lands as they are located in the Central Area in a strategic location that also supports the Pimisi O-Train station. The development will achieve compatibility through human- scaled design at the podium levels with towers setback, and a variety of active frontages from residential to commercial/institutional or a combination thereof. The amendment is consistent with the Official Plan and represents quality city building and good planning.
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PART B - THE AMENDMENT
1. Introduction
All of this part of this document entitled Part B – The Amendment consisting of the following text and the attached Schedules and Map constitutes Amendment No. XX to the Official Plan for the City of Ottawa.
2. Details
The City of Ottawa Official Plan, Volume 2A, Central Area Secondary Plan, is hereby amended as follows:
2.1 By amending Schedule Q – LeBreton Flats Land Use, is revised by redesignating 301 Lett Street from “Residential” to “Mixed Use” as shown in Schedule 1 of this document.
2.2 By amending Map 4 – LeBreton Flats Maximum Building Profile and Conceptual Road Pattern, is revised by removing the lands known as 133 Booth Street, 301 Lett Street and 324 Lett Street from the Map, as shown on Schedule 2 of this document.
2.3 By adding new map, Map 6 – Active Frontage and Maximum Building Height and Tower Location, as shown in Part C.
2.4 By adding a new site-specific policy section within the LeBreton Flats Character Area, Section (1.11) of the Central Area Secondary Plan, as detailed in Part C – Appendix 1 (East Flats)
3. Implementation and Interpretation
Implementation and interpretation of this Amendment shall be in accordance with the policies of the Official Plan for the City of Ottawa.
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PART C – THE APPENDIX
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Appendix 1 – East Flats
East Flats
The following policies apply to the lands known municipally as 301 Lett Street, 324 Lett Street, and 133 Booth Street, as shown on Map 6. In addition, unless otherwise stated below, the general policies of this Secondary Plan shall apply to the East Flats.
1. Vision
Development of the East Flats neighbourhood will support the broader vision for LeBreton Flats to create a truly urbane neighbourhood in the Central Area, one where the needs of daily life are accessible within a five or ten minute walk. The emergence of a new neighbourhood on LeBreton Flats will extend the fabric and vitality of the Downtown and support the Confederation Line.
East Flats will be a mixed-use district of high-rise and mid-rise built forms that support a range of housing sizes and incomes. Podiums of the high-rise buildings will contain commercial and institutional uses that serve residents, create pedestrian-friendly streetscapes, and enliven parks and open spaces along the historic aqueduct.
The buildings will discourage automobile use by promoting a walkable and connected public realm of streets and open spaces that are extensions of the existing network of streets, bicycle paths, and multiuse trails that surround and extend into LeBreton Flats and beyond. A new park adjacent to and over the historic aqueduct will complement the new community. The park will connect and integrate the neighbourhood to the Pimisi O-Train Station and to existing and future destinations to the south through paths for walking and cycling. It will also provide an additional amenity for residents of all ages, over time becoming part of a ring of open spaces around LeBreton Flats, connecting to the Ottawa River Pathway and Capital Pathway.
The policies below are intended to enable the East Flats vision.
POLICIES
2. Land Use and Built Form
2.1 Active frontages are required along the majority of all buildings facades at street level as shown on Map 6. Grade-accessed residential units are required along Lett Street, and all other required active frontages may be comprised of a mix of permitted uses. Residential lobbies are permitted along any frontage. Active at-grade uses will address elevation changes in a manner that ensures direct pedestrian access into a 31 building at periodic intervals along the sidewalk. Garage entrances, loading areas and other vehicular sidewalk crossings will be combined as much as possible, and their widths will be minimized.
2.2 All buildings will be built close to the property line to consistently frame streets and open spaces. Setbacks will generally be between 0.5 and 3.0 metres and generally consistent along each street frontage. Setbacks should be greater than 3.0 metres along Booth Street for enhanced streetscaping.
2.3 Building entrances will be located in accessible and visible locations oriented to the street. Separate municipal addresses should be assigned to each active entrance.
2.4 The floor of a building fronting a street or public open space will be designed to incorporate active uses and transparent glazing to create visual interest and support an active public realm. The floor-to-ceiling height of the first floor at street level will generally be a minimum of 4.5 metres. Canopies and other architectural details will be used to help define the first floor and provide weather protection.
2.5 Notwithstanding policy 1.11.4.4 Urban Design, Building Heights (a)(iii to v), high-rise development is permitted along the east side of Booth Street south of Fleet Street to accommodate high density development in proximity to the Pimisi O-Train Station, and maximum building heights are not permitted to exceed the heights shown on Map 6 without an amendment to this plan.
2.6 Tall buildings will take a tower-and-podium form. The podium component will generally be two to six storeys and should animate the pedestrian realm, form a continuous street wall, and relate to the adjacent buildings in massing, height and architectural rhythm. A podium of up to nine storeys is permitted along Booth Street provided building mass articulation and an additional stepback is provided above the sixth floor of the podium design.
2.7 Towers will be stepped back from the podium level, generally a minimum of 2.0 metres, to mitigate their micro-climatic and visual impact and provide transition from abutting properties. Greater stepbacks from the podium shall be provided for tower(s) facing Lett Street.
2.8 Towers will generally be restricted to a maximum floorplate of 750 square metres to maintain sky views and reduce the perceived massing of the buildings.
2.9 Generally, the minimum separation distance between towers should be 23 metres to mitigate shadow impacts on adjacent sensitive areas, sky-view and privacy impacts. 32
Towers should contribute to the skyline through varied articulation and mechanical penthouses should be architecturally integrated in a manner that is consistent with the overall character of the tower.
2.10 Each phase of development with a high-rise tower is subject to formal review by the Urban Design Review Panel during Site Plan Control. A proposal resulting in a tower with more than 30 storeys may also be subject to review by the Tall Buildings Design Review Panel.
3. Parks and Open Space
3.1 Parkland and open space along the aqueduct, as shown on Map 6, will accommodate active recreation amenities, passive unstructured open space and landscape features, as well as multi-use pathways including a direct multi-use path linking Lett Street to Pimisi Station and connections to other pathways. Dedicated parkland shall be designed and programmed to meet the needs of a diversity of residents, including older adults and children. The park and pathways will be built to City Standards for Parks and to the City of Ottawa Accessibility Standards for the Built Environment, and main pathways should be lit.
3.2 The owner/developer of the lands (excluding parks and open space) shown in Map 6 shall work with the Parks Department to encourage the delivery of the said parkland in association with the first phase of development. Funding for the parking is to be determined, but may be accomplished through the use of contributions towards Section 37 requirements, or Cash-in-Lieu of Parkland monies (Ward account only) resulting from the development may be directed towards the said park.
3.3 The park’s design should celebrate the historic aqueduct, bridges, and Fleet Street Pumping Station through restoration, signage, interpretive and aboriginal elements, and other strategies.
3.4 Parkland edges should be animated by means of building entrances, and buildings should have glazing and animation facing the outdoor spaces.
3.5 Publicly-accessible connections, which satisfy City Standards, from Booth Street to the open space system and parkland below, along the aqueduct, will be provided.
4. Streetscapes
4.1 The east side of Booth Street will be designed with a sidewalk area wide enough to support a row of street trees (and an associated soil volume that will support their 33 growth to full canopy), public seating, and other landscaping elements in the public right-of-way.
4.2 As development occurs on the lands shown in Map 6, the owner shall explore with the City, pedestrian and cyclist connections across Booth Street, generally between Fleet Street and Pimisi O-Train Station, and where required, providing such connections will allow for improved safe movement of people across the corridor by connecting the “East Flats” to the future development west of Booth Street.
4.2 The streets internal to the neighbourhood (Lloyd, Lett, and Fleet Streets) will prioritize the safety and comfort of pedestrians and cyclists and will be planted with street trees on both sides with sufficient soil volumes to support their long-term health and vitality.
4.3 Signage and other wayfinding elements will be installed in the East Flats to facilitate pedestrian and cyclist access to Pimisi Station and other destinations in the area.
4.4 The use of a diversity of native species in the planting of street trees and other landscaping will be encouraged.
5. Access, Parking and Loading
5.1 Residential parking will be substantially located underground. Limited parking for commercial and institutional uses may be located above grade only if such parking is within a building and located behind active uses with direct sidewalk frontage.
5.2 Pick-up and drop-off locations should be located close to primary building entrances on the street or internal to developments, where appropriate.
5.3 Loading and servicing areas will be located within building podiums or underground, with access generally located on Lloyd Street or Lett Street or through the use of a mid- block service lane.
5.4 The location of parking for different uses and minimizing vehicular access points is encouraged.
5.5 The sharing of parking spaces among uses that have peak parking demands at different times of the day shall be encouraged.
5.6 Adequate on-site visitor parking shall be provided with each phase of development.
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Document 3 – Details of Recommended Zoning
The proposed change to the City of Ottawa Zoning By-law No. 2008-250 for the properties municipally known as 133 Booth Street, 301 and 324 Lett Street are as follows:
1. Rezone the lands shown in Document 1 as follows:
a. Area A from GM17 [120] H(40) S94 to MD [xxx1] Sxxx
b. Area B from GM17 H(40) S94 to MD [xxx1] Sxxx
c. Area C from GM17 [120] H(40) S94 to MD [xxx2] Sxxx -h
d. Area D from GM17 H(40) S94 to MD [xxx2] Sxxx -h
e. Area E from R5T [245] H(41) to MD [xxx2] Sxxx -h
f. Area F from R5O H(20) to MD [xxx2] Sxxx -h
g. Area G from O1 to MD [xxx2] SYYY –h
2. Amend Part 17 by adding a new Schedule, ‘XXX”, as shown in Document 4.
3. Amend Section 239, Urban Exceptions, by adding a new exception, xxx1, with provisions similar in effect to the following;
a. In Column II, add the text “MD [xxx1] H(95)”.
b. In Column V, add the following provisions:
i. Maximum permitted building height as per Schedule ‘XXX’.
ii. The maximum Gross Floor Area (using 17 per cent exclusion from the total floor area) is 28,000 square metres.
iii. A maximum of one tower is permitted in each respective development area as shown on Schedule ‘XXX’. For the purpose of this section, a tower is defined as the portion the building above the podium.
4. Amend Section 239, Urban Exceptions, by adding a new exception, xxx2, with provisions similar in effect to the following;
a. In Column II, add the text “MD [xxx2] Sxxx -h”.
b. In Column V, add the following provisions: 35
i. Maximum permitted building height as per Schedule ‘XXX’.
ii. Maximum combined Gross Floor Area (using 17 per cent exclusion from the total floor area) for development areas B, C, D and E in Schedule XXX is 92,000 square metres. iii. A maximum of one tower is permitted in each respective development area as shown on Schedule ‘XXX’. For the purpose of this section, a tower is defined as the portion the building above the podium. iv. The holding symbol (-h) may be removed in whole or in part for phased development only when the following conditions have been met to the satisfaction of the General Manager of Planning, Infrastructure and Economic Development.
Site Servicing Report submitted in support of a development application demonstrating sufficient servicing capacity and servicing options for the proposed development, and completed as part of a Servicing Capacity Analysis with the development of the portion of LeBreton Flats west of Booth Street in relation to the Master Servicing Study for LeBreton Flats.
Updated Geotechnical Investigation submitted in support of a development application in accordance with applicable regulations at the time of submission.
A Transportation Impact Assessment must include:
1. A review of the site plan conditions relating to the recommendations from the Transportation Impact Assessment study from Phase 1 development (Area A and the podium in Area B of Schedule XXX) including the monitoring results from Phase 1 development and confirmation that the projected targets were achieved.
2. At the time of Site Plan application for subsequent phases, the study for each phase, except the last, must also include a monitoring plan for this subsequent phase to review traffic impacts and modal share. 36
When triggered, as determined on a phase-by-phase analysis, a Section 37 agreement must be registered through a minor rezoning to lift the hold and amend Part 19 of the Zoning By-law prior to approval of the corresponding Site Plan.
Demonstrate consistency with the site-specific polices for the ‘East Flats’ as per the Central Area Secondary Plan for high-rise development.
Partial removal of the “h” may be considered to provide for phased development. The submission and approval of an application to lift the holding provisions on a phased basis may be considered provided the requirements for that development phase satisfy the requirements for the lifting of the holding zone specified above and that demonstrates how the phased development is consistent with and will advance achieving the overall development concept as set out in the Secondary Plan. v. Despite the holding symbol (-h), a podium up to a maximum height of 18 metres is permitted to be built within Development Area B of Schedule ‘XXX’ during Phase 1 construction.
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Document 4 – Schedule ‘XXX’
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Document 5 – Consultation Details
Notification and public consultation was undertaken in accordance with the Public Notification and Consultation Policy approved by Council for Development Applications.
Approximately 35 individuals/groups commented on the proposal as a result of the notification process. Supportive comments were received regarding the mix of uses (notably grocery store) proposed, the treatment of surrounding greenspaces and pedestrian connectivity, and adding more residential units in LeBreton Flats. Concerns/opposed comments were focused on height and density, parking, traffic, shadowing/views, and impacts from project phasing, construction, property value and infrastructure. In addition to comments submitted, the department received a petition signed by approximately 260 individuals opposed to the application for reasons associated with transportation impacts, building heights and urban design.
Information on the applications was also added to the City website ottawa.ca/lebretonflats, which is focused on development in LeBreton Flats.
The Ward Councillor organized a public open house that was focused on building complete communities and an open discussion about how the LeBreton Flats area is to evolve over time. The open house was primarily focused on the broader picture planning discussions, but the event also included three active development proposals, including these applications. The applicant team and staff were available at display boards to take questions. The meeting was held on April 26, 2018, and approximately 140 members of the public attended.
PUBLIC COMMENTS AND RESPONSES
The following summaries, in no particular order, provide a list of comment topics and items raised by members of the public in response to the applications:
Supportive comments
Appreciate the significant amount of greenspace in the proposal concept and pedestrian-friendly community.
The density proposed in close proximity to nearby O-Train stations constitutes a forward looking approach to promote additional ridership and use of a complete transit system.
Support the inclusion of a grocery store, restaurant and other culture and commercial elements. 39
Support the concept of residential units at LeBreton Flats, and a good decent sized grocery store.
The site and surrounding areas are currently serviced by a lack of commercial options which then results in residents needing to travel to other areas of the city instead of their immediate neighbourhood. This plan includes commercial options that would begin to build the actual ‘neighbourhood’ and provide more local services for present and future residents.
Changing the role of Booth Street Bridge to return the street to pedestrian use by providing access to the street through the building is important. Avoid street as a barrier between neighbourhoods.
Response:
For the reasons outlined within the staff report, Planning Services recommends approval of the applications, and is of the opinion that the public reasons for support will come to fruition as development occurs.
Height and Density
Existing phase has not sold out, how will this development have the ability to sell? What is the proposed timeline for development?
Tower height is greater than the skyline above the escarpment obscuring the new community separation and interesting geological feature.
Keep building heights lower to maintain community distinction from downtown.
1950 units is way too many, especially with a lack of amenities and services in the immediate vicinity.
Keep low-rise to fit with existing development.
More freehold townhouses are needed in this area, not large high-rise condos.
Completely out of proportion with surroundings. Max height should be 15 storeys.
Will destroy character and appearance of the area.
Quality of life will be low in the new towers: 1960 units in five towers ranging from 25 to 45 storeys means the units will be very small. Compare to the Claridge Icon 40
of 45 storeys that only has 322 units. Even if Claridge repeated the same 45 tower five times it would be only 1610 units.
Need three bedroom units to attract families.
Density is more than four times over the original master plan.
The tall buildings deny locality and sense of place, and fail to recognize the existing developments.
Proposed height is more than triple what is permitted.
Height reductions should be provided for better shadow impacts and in keeping with the NCC design guidelines for proper building transition.
Response:
The applicant acknowledged that the development concept could be a 15-year project to reach the final phase. However, this will be dictated by the market and at the owner’s owns risk for when to develop. The applications subject to this report position the lands for mixed-use development and increased building heights, but in order to begin construction subsequent Site Plan application(s) are required, which are subject to further public consultation. The application was revised for a conceptual 1,600 units to allow for a wider variety of unit types. From a planning perspective, the proposed density and building heights are consistent with the Official Plan, which recognizes the importance of concentrating a mix of uses in the Central Area and focusing intensification around rapid transit. The height and density is also consistent with the Provincial Policy Statement as explained in the main report. The site-specific policies recommended within this report provided the necessary language to ensure appropriate built form transition and compatibility with existing developments.
Parking
What will happen to all the on street parking? Lett developments have no visitor parking and need better access to parking for visitors in these new developments.
Incorporate significant visitor parking into the new concept to help offload the lack of parking in current development. Perhaps look at solutions like Westboro Station or Lansdowne. 41
There is very limited street parking available, with many cars already parking in unmarked zones. This issue will get worse.
Current development and proposed concept does not account for regular service/delivery vehicles.
Applicant insists that the residents who would occupy the proposed high-rises would take transit; however, no limits are being made on parking spots in the building, and the applicant advises that the parking will be provided according to demand.
On street parking should be metered.
Will the development provided all underground parking
What parking is proposed for residents and visitors
Response:
The recommended Official Plan polices require each phase of development to provide sufficient visitor parking, and it should be noted the Zoning By-law requires visitor parking at a rate of 0.1 space per unit (after the first twelve) up to 30 spaces. Additionally, the recommended policies encourage shared parking amongst uses that have different peak use. For example, parking for commercial component(s) may be used by area visitors at off peak hours, similar to how Lansdowne or the Westboro Station (development) is set up. A maximum parking rate of 1.5 spaces (resident/visitor) applies to the lands, but as mentioned in the holding symbol details, transportation monitoring is required to evaluate the transportation impacts and outcome of modal split targets. On street parking may be impacted by the need for access to new development, but this can only be reviewed in greater detail during the Site Plan process.
Traffic
Due to only two vehicle access points for all these towers, traffic will be horrible.
The transportation study on projected traffic (sec 4) describes that “significant queues are anticipated” and requires a significant reduction in the number of vehicles to “alleviate the projected failing conditions”. Why isn’t this noted in the summary of conclusion? 42
Local residents concerned about current “island surrounded by a traffic moat” circumstance with limited access to and from the site, and the situation worsening with major traffic congestion as a result of the proposed development.
How will road network link to other neighbourhoods
Commercial traffic is a significant issue. Currently trucks servicing Lett Street block local traffic and have difficulty exiting the area. The proposal doesn’t address this problem, which will worsen with development.
What levels of traffic are anticipated during each phase of this development?
Response:
The applicant submitted an updated Transportation Study to demonstrate that the first phase of development has minimal impacts for the purpose of the Official Plan and Zoning By-law Amendments. The corresponding Site Plan application, which will include the specific building design details for the first phase, will allow for further review of access/egress points to the development and how commercial deliveries will be accommodated. Staff are satisfied with the findings specific to the first phase and have established the zoning with a holding symbol so that additional phases will require further review. The original transportation study submitted looked at the proposed development in its entirety and this will serve as a base, to be modified and updated, as each phase of development in proposed through Site Plan Control.
Shadowing / Views
Proposed heights will completely shadow existing developments on Lett Street.
All western facing units (from existing developments) will have no views and be in constant shadow.
Work together to improve shadow impacts.
River views will be completely blocked.
Will hide/obstruct the beauty of Ottawa River and Parliament Building.
Development may compete with National symbols, and other development like the new central library.
Wind and shadow impacts will negatively affect the quality of life for current residents. 43
Response:
While the proposed development is not located within a protected view plane, the application sufficiently evaluated various views to and from the site to ensure that important views and vistas, such as Parliament, will not be adversely impacted. Staff are satisfied that the proposed development will not compete with, or affect National Symbols, but rather begin to evolve the LeBreton Flats area with its own distinct character. Towers are minimized to a point form to ensure fast moving shadows across the landscape. Existing development will experience shadowing at various points throughout a given day but to an extent that is practicable for the location and setting in accordance with the Official Plan.
Phasing
What is the phasing for this project
No information about phasing for the development or about how different elements of the development will be scheduled.
The scale of this development will result in prolonged construction that will disrupt the neighbourhood for decades, and further affect property values.
Constructing phasing concerns including start and finish dates for all buildings.
Site will be in permanent construction for years making it less attractive for new residents to buy in existing developments.
What is the timeline for all this construction and building phases? What building is intended to be construction first?
Where is the data to show that this amount of intensification can be achieved and support such a dramatic population increase.
Response:
Phasing is not known at this point in the process, other than the first phase, which consists of the proposed 30-storey mixed-use building at the corner of Booth Street and Fleet Street. Planning decisions cannot assume market conditions, and as such, the merits of intensification are based on good planning for consistency with the Official Plan and Provincial Policy Statement. Construction activity must adhere to relevant City by-laws including the Noise By-law, Traffic and Parking By-law and Encroachments on 44
City Highways By-law. If issues are experienced during construction, a concerned citizen may contact 311 to report.
Heritage
Heritage can be expressed in new development through design that fosters a sense of place consistent with the area’s history, and through a relationship with the locality. This can be achieved both through planning and architecture.
Viewing LeBreton Flats as “a (mostly) clean slate” denies this expression, in favour of gentrification and the continuing erasure of the area’s past.
Response:
Thank you for these comments. The specific design details and building material will be reviewed during Site Plan.
Affordable Housing
How will affordable housing be achieved.
The existing developments Lett already have a deficit, and the applicant need to explain how this will be corrected.
How will development be consistent with the Secondary Plan “to allow 25 per cent of the total housing stock to be affordable”
How many units will be affordable?
Response:
As noted in the Brief History section of this report, the application is required to provide affordable housing units as per a previous Plan of Subdivision Agreement and the secondary plan. Through conditions of approval during Site Plan, a Housing Agreement will be initiated to implement this requirement and determine the number of units.
Existing Lett Street development
These phases were designed and built in accordance with guidelines that were to be applied to the “East Flats” development. Why have they not been followed for this application?
Existing residents have not been considered or factored into the new design. 45
The liveability of the existing buildings cannot be ignored.
Response:
Through the authority of the Ontario Planning Act, anyone has the right submit an application. Review of the applications in question has resulted in Planning Services recommending approval for the reasons outlined in the staff report. Impacts and liveability of the existing residents have been considered, and concerns have been addressed through the recommendations for Official Plan amendment, namely through the site-specific policies.
Extension of Downtown
In this design, LeBreton Flats is not viewed as having a past or present as a distinct locality, but only a future as a part of “the evolving western extension of downtown.”
UDRP pointed out that “the [Claridge Homes’] development [proposal] appears more closely tied to downtown, whereas it would more accurately be tied to Centretown.”
The design is a misreading of Ottawa’s urban fabric, in which the distinctive nature of Ottawa’s ‘cities within cities’ is overlooked, including of course, one of the City’s founding neighbourhoods, LeBreton Flats.
The hard edge of downtown is defined by Bronson and the escarpment: Bronson and Albert intersect at the “gateway” to and from downtown.
Conversely, in this design, LeBreton Flats is to become “the western edge of downtown Ottawa…” potentially impacted less by intensification than by urban sprawl.
In this design, the O-Train is viewed as an instrument of this sprawl, and as a means to deny locality as an important element in urban planning.
Because the eastern part of LeBreton Flats has an O-Train stop (Pimisi), then according to Claridge Homes, this design should mimic the (unapproved) plan for the area surrounding the Bayview station on the western edge of LeBreton Flats, or, more pointedly, the plan for the Lees station area, some five kilometres to the east.
Each of these areas, including downtown, is distinct one from the other, and must 46
find its own development path based as much on those distinctions, as on the presence of the O-Train.
Response:
The recommendations of this report approve the overall height and massing as well as permission for mixed-use development, but design still forms part of the overall discussion that will continue during the Site Plan process, where each phase of development will return to UDRP for formal review. Density and a mix of land uses in a target area for intensification and in close proximity to rapid transit represents a good planning principle for building complete communities that are healthy and vibrant, while avoiding urban sprawl.
General
Loss of property value.
Social tensions in the area will increase because of dealing with traffic while moving through and about the area.
Concerned about dangerous wind gusts.
Transit is unreliable for this location. Buses are always packed when they reach Lebreton. Even with the new O-Train, I don't think they can keep up with the large number of people that would come from building such a large complex.
Worry about infrastructure in place to support such a large community.
Builder did not disclose plans to current residents that were informed that future phases would be similar.
Proposal takes away from the natural and cultural look and feel of Lebreton Flats.
Why does the city let the developers to decide the city look?
Economic impact of buildings of such disproportional size. Introduction of thousands of new residences into the immediate market area creates significant potential to hold down local property values for decades.
Claridge agreed that phase 3 should include low rise buildings at the time of subdividing the land and to follow the strict NCC guidelines, including building design and providing a park. Should abide to original commitment. The NCC should revoke the land if Claridge does not follow the initial project requirements. 47
A substantial amount of money should be required for the increased density.
It must be recognized that when homeowners here purchased their properties, the plan for the development of the remaining former NCC lands on the other side of Lett (Blocks 3, 4 and 12) was understood to be for a similar number of residences as had already been constructed (Blocks 1 and 2), including townhomes along Lett Street, affordable housing and mid to ‘high-rise’ condos (6, 10 an 12 storeys) and/or apartments. The Official Plan and secondary plans for this area offered confirm this understanding.
Since the Claridge Open House is January 2017, what proposal details were refined in response to public feedback?
How will development be consistent with the Secondary Plan “to allow 25 per cent of the total housing stock to be affordable”
Question if a small to mid-sized grocery store can be secured.
There is no Community Design Plan or Transit-Oriented Plan for LeBreton Flats. Why has the planning for the area been delegated by the City to the private sector with limited public involvement?
When the planners are the developers, the market (as forecast decades hence) and profit-taking must rule the design; community development, the public realm, human-scale development – these are hopefully by-products of the plan, but they are not its focus, nor necessary for its success.
We need public planning to help avoid planning in silos in this area, and to ensure public participation in this planning.
Response:
An Official Plan or Zoning By-law amendment can deal with matters as described in the Planning Act, which do not include matters of human behavior or impacts on property values. Section 22(5) of the Planning Act limits the ability to request that an applicant provide studies outside of what is specified in the Official Plan. Studies such as an economic analysis that includes a property value review, job creation, housing marketing and social impacts are outside of the materials reviewed as part of the Official Plan and Zoning By-law amendments. 48
Potential wind impacts will be further reviewed with mitigation measures implemented through subsequent Site Plan applications.
The City of Ottawa does not have jurisdiction over the NCC (NCC). The NCC will review the proposal on its own accord.
COMMUNITY ORGANIZATION COMMENTS AND RESPONSES
At the time of writing this report, no comments were submitted from a Community Organization.
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Document 6 – Density Analysis