Urban Design And Zoning Study Étude de conception urbaine et zonage

Rue , Old South/Vieux Ottawa Sud

Development Services Department/Services d’aménagement City of Ottawa/Ville d’Ottawa

Planning and Development Committee – June 26, 2003 le Comité de l’urbanisme et de l’aménagement – le 26 juin, 2003

TABLE OF CONTENTS

Sommaire – Étude de conception urbaine et zonage Ottawa sud 3

Introduction 5 Background...... 5 Bank Street Community Vision...... 6 Existing Conditions ...... 7

Design Principles for the Redevelopment of Bank Street in 19 Design Principle #1: Develop a Compact Building Form...... 20 Design Principle #2: Create Prominent Gateways ...... 29 Design Principle #3: Provide a Continuous Building Facade ...... 34 Design Principle #4: Create a human-scale, pedestrian-friendly environment ...... 44 Design Principle# 5: Improve Visual Quality ...... 54

Implementation of Design Principles 55 Existing and Proposed Zoning...... 55 Other Development Approvals Implementation Mechanisms ...... 59 Potential Redevelopment Incentives ...... 60 Possible Redevelopment Under Proposed Guidelines...... 62

2/64 Ce document est disponible en anglais seulement, mais le sommaire ci- dessus résume les grandes lignes directrices du document. Pour de plus amples informations en français, veuillez communiquer avec Françoise Jessop au 580-2424, poste 13862, ou Jean-Guy Bisson au 580-2424, poste 13317.

Sommaire – Étude de conception urbaine et zonage Ottawa sud

Le plan d’aménagement du quartier Ottawa Sud, adopté en 1979, prévoyait le maintien et l’aménagement de la rue Bank en une artère commerciale de quartier, axée sur la circulation piétonnière avec des commerces desservant principalement les résidents du quartier, mais pouvant accommoder également des commerces visant une clientèle plus régionale. Ces objectifs demeurent toujours aussi valables aujourd’hui. Le zonage actuel tend à mettre en oeuvre ces objectifs mais pas de façon satisfaisante. La présente étude sur la conception urbaine et le zonage de la rue Bank dans le quartier Ottawa Sud a pour but de renforcer ces objectifs par les propositions suivantes :

• éliminer les terrains et structures de stationnement; • limiter la dimension de certains commerces; • établir une limite maximale de recul des édifices; • accroître la largeur des trottoirs; • prohiber le stationnement dans les parties avant et latérales des propriétés; • exiger que les façades des édifices soient orientées sur la rue Bank; • accroître la dimension des édifices en général (minimum de 2 étages; maximum de 4 étages) et de façon plus marquée a l’entré sud du quartier; • éliminer le nombre de stationnement requis pour les constructions situées sur de petites propriétés et favoriser le stationnement partagé dans les autres cas; • limiter le nombre d’accès pour véhicules aux propriétés; • favoriser l’utilisation des ruelles dans le réaménagement des propriétés là où la situation le permet; et • définir des normes qui vont favoriser l’amélioration de l’apparence des édifices.

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4/64 Introduction

Background

Bank Street is one of Ottawa's historic arteries, beginning near the edge of the Ottawa River, adjacent to . It directly crosses and bisects numerous communities with different building forms, streetscapes and architectural styles. These vary from the high-rise office developments in the downtown to the predominantly automobile-oriented character of the street serving the southern part of the City’s urban area, near Hunt Club Road. Bank Street bears witness to the successive stages of the City's growth.

In the community of , Bank Street is located between two bridges crossing the and the . Here it is characterized by both a mix of two to three storey buildings with continuous facades and some buildings of heritage interest and elements reflective of the traditional mainstreet development; as well as more recent construction that is automobile-oriented, with buildings that are set back from the street and where a large portion of the land is used for vehicular storage and parking. Of interest to note is that the original terminal of Ottawa’s former streetcar line along Bank Street was located in Old Ottawa South, at about mid-point along the street.

5/64 Bank Street Community Vision

Even though the Old Ottawa South Neighbourhood Plan was developed and approved in 1979, almost 25 years ago, the vision contained in the Plan for the community was of a medium density, pedestrian-oriented urban neighbourhood with a variety of small scale shops and commercial activity which primarily serve the neighbourhood, but that may also attract a city wide clientele. This vision continues to be relevant today; the community believes that the primacy of the pedestrian is very important on Bank Street and that an attractive, densely developed and diverse retail environment should be created along Bank Street.

These objectives are very much in line with the policies of the City’s new draft Official Plan (March 2003) that designates Bank Street as a “Mainstreet”. It is intended that change and renewal of lands within this designation “will be carried out in accordance with the principle of an environment that is architecturally pleasing, lively in its mix of uses, oriented to the street, friendly to pedestrians and that presents a strong, continuous building edge along the sidewalk”.

Approach

While there has been some turnover in businesses (of note is the emergence of antique shops in the past number of years), there has been limited redevelopment of properties in this part of Bank Street for the last 25 years. Of the redevelopment that has occurred, there is the sense by the community that it has not fully reflected the objectives of the neighbourhood plan. This became particularly evident recently with the demolition of the former Strand Theatre and its replacement with a one- storey restaurant on the site. During the consideration of the site plan on November 8, 2001, for a new Tim Horton’s on this site, the City’s Planning and Development Committee directed staff to:

“Bring forward within six months, zoning changes for Bank Street between the Rideau River and the Canal to more clearly reflect the Old Ottawa Neighbourhood Plan”.

In response, the Old Ottawa South Community Association’s committee on planning and development issues prepared an “Analysis and Recommendations for Planning Policies and Tools to Improve Bank Street in Old Ottawa South” (April 2002) which contained a number of recommendations that have been brought forward in this report. On the basis of a few guiding design principles established by staff, the suggestions made by the committee, and comments submitted by the public following a public meeting held on April 30th, 2003; a number of changes to the zoning regulations for Bank Street are proposed in this report. As well, for those design aspects that cannot be regulated through zoning, or where a more flexible approach is desirable, some guidelines have been prepared which would be

6/64 applied through the development approvals processes (primarily through Site Plan Control approval or through the review of applications for minor variances to the Committee of Adjustment) as new developments are proposed.

It is recognized that refinements and incentives in the zoning regulations and the application of design guidelines will not by themselves realize the desired revitalization of Bank Street in Ottawa South. In order to fill in vacant areas and intensify the street, there needs to be an economic and market interest for construction of the type of compact mixed use buildings that is promoted by the Official Plan as the keystone in the development of designated Mainstreets such as Bank Street.

Existing Conditions

What’s Great

Continuous store fronts

• A few blocks of continuous building facades with large windows close to the sidewalk; • Attractively designed crossing the Rideau Canal; • Beautiful stone church and public library building which serve as gateways at the north end of community; • A mix of commercial uses with interesting specialty shops; and • Linear park system at south end along the Rideau River.

7/64 What’s Not

Bank Street looking north towards the Canal

• Narrow sidewalks and hydro poles and wires; • Few trees and other amenities; • Many empty lots, and under-developed sites; and • Some buildings set back from the sidewalk with parking in the front.

Built Form

Building form can be supplemented to fill in gaps and reinforce the existing neighbourhood fabric

8/64 The key characteristics of traditional, pre-war mainstreet development are:

• a continuous building façade, that is buildings located directly beside each other and sharing walls; • the facades of building are along a similar alignment, more or less along the line between the private property and the municipal right of way (area owned by the City including sidewalk, boulevard and road lanes); • the facades of buildings are in close proximity to the sidewalk; • buildings are often two to three storeys in height, with retail or service businesses on the main floor, and office or residential above; • very little parking is provided; and • rear access to these properties was and may still sometimes be provided through rear lanes.

Some parts of Bank Street in Old Ottawa South, particularly on the northern portion of the street, reflect these key characteristics. But there are other street blocks where individual buildings are flanked by parking areas, creating significant gaps in the building line. Overall, only about half of the street frontage along Bank Street in Ottawa South is lined with building facades.

Significant existing gaps and setbacks

9/64 Furthermore, more recent buildings are set back a few metres from the main building alignment, while other buildings (such as the gas station, automobile repair shops and convenience store) are situated towards the rear of the property, which creates significant gaps in the continuity of the building façade on certain blocks.

Finally, there is a mix of heights along Bank Street, the majority of buildings being one storey in height, but there are also groupings of two-storey buildings and a few (three of the four buildings being institutional buildings) with a higher height.

Most properties along Bank Street have undergone some form of alteration, change of use and/or small expansions since the enactment of the current zoning in 1979, implementing the Ottawa South Neighbourhood Plan. However, only five properties were the subject of new development during this period of time. They are:

• 1981, a one-storey convenience store at 1166 Bank Street (7 Eleven); • 1985, a 3-storey commercial red brick building at 1159 Bank Street; • 1987, a one-storey automobile maintenance facility at 1305 Bank Street (Penzoil); • 1996, an addition to the Hopewell Public School; and • 2002, a one-storey restaurant at 1263 Bank Street (Tim Horton’s).

The more recent additions to Bank Street have generally complied with the zoning regulations (an automobile maintenance facility was not a permitted use, however the property had non-conforming rights to retain this type of use) that have been in effect since the implementation of the Ottawa South Neighbourhood Plan. However, the resulting building form and design has not for the most part successfully reflected the intent of that Plan.

Land Use

Bank Street in Ottawa South contains a mix of land uses, many of which primarily serve the neighbourhood while others attract a clientele from throughout the City.

There are a number of automotive-related uses including a gas station, a lube shop and a car repair. These uses have existed for many years, and have not been permitted by the zoning by-laws since the early 1980’s, but have the right to continue to operate as what is referred to in the Planning Act, as non-conforming uses. This means that, if they were established legally prior to the current zoning, they can continue to exist provided there is no break in the occupancy of the use (the building can be demolished and reconstructed as the same use – as was the case for the automobile maintenance facility; however, any increase in the use must receive approval through the Committee of Adjustment).

10/64 A small grocery store, a drug store, a dry cleaners and a convenience store serve the neighbourhood. There are also some specialty shops, namely a number of antique shops that attract people from outside the neighbourhood.

A few restaurants and fast food outlets including a Dairy Queen and the recently constructed Tim Horton’s operate on Bank Street. There is also a small cinema, one of the few that still exist on the City’s mainstreets.

Two churches and a public library are also located along this portion of Bank Street.

Example of specialty shops

Finally, there are two parking lots that provide parking for businesses located across the street. Map 2 also shows how a large portion of the lots along Bank Street are vacant and undeveloped and/or used as parking areas.

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12/64 Streetscape

The Ottawa South Neighbourhood Plan of 1979 made a number of recommendations regarding the initiation of measures to improve the streetscape and pedestrian facilities on Bank Street. At the time it was intended to implement these measures through the establishment of a Business Improvement District. This, however, did not materialize. After a number of delays, the Bank Street Reconstruction project was finally approved by the City and construction is slated to finish in October of 2003.

The objectives of this project are to: • standardize the pavement and sidewalk width; • create a more uniform centreline alignment; • bury overhead utilities and improve underground utilities; and • improve operational features of intersections.

As well, this project introduces some design elements that will significantly improve the appearance and function of the pedestrian environment along Bank Street.

Right-of-Way

Most of Bank Street in Old Ottawa South has a right-of-way of 18 metres (this is the land that is owned by the City and is occupied by the road and sidewalks, and any remnant land that abuts private property). The former and current Official Plans provide the ability for the City to acquire private lands to widen the right-of- way, usually at the time of redevelopment of properties.

The right-of-way requirement that has existed for many years along this portion of Bank Street is a maximum of 23 metres. During this time, the right-of-way has been widened varying in width between 0 to 2.5 metres on each side of a portion of the street each time new buildings have been constructed. This has resulted in a few recent buildings being setback some distance from the sidewalk, however, the integration of these setbacks into the pedestrian environment has not necessarily been very successful. It should be noted that many of the facades of the older buildings along Bank Street are located more or less at the 18 metre right-of-way.

13/64 Parking

Parking available along the mainstreet

In 1996, the City of Ottawa undertook a Transportation and Parking Study to address a number of different issues that were identified by the businesses along the Bank Street area and the residences in the adjoining blocks. Also, in June 2000, another review was completed to update the 1996 analysis.

This study completed an inventory of on-street and off-street parking spaces and reviewed the occupancy of those spaces to determine if there were any “hot spots” where demand exceeded supply. In 1996, on-street and off-street peak parking utilization was 75% within the study area. In 2000, the occupancy during the peak period increased to 87%. Within the industry, it is accepted that once an area has reached 90% it has reached its functional capacity. Listed below are other observations noted in this area: • Weekday parking occupancies generally increased throughout the day with the peak occurring in the evening; • Weekend parking occupancies remained relatively steady throughout the day with a noticeable peak in the afternoon; • The number of illegally parked vehicles within the study area varies between 12-75 vehicles per hour on the weekdays and 31-37 per hour on the weekends; • Approximately 71% of the block faces at least ½ hour a day exceed legal parking capacity; and • 72% of Bank Street block faces exceed legal parking capacity more than once on the weekdays and nearly 91% on the weekend.

14/64 Lanes

As is the case with many of the City’s traditional mainstreets, these historically developed with a laneway system at the rear of the properties fronting on Bank Street. These were originally used to access the rear of buildings for deliveries, since there was no direct vehicular access provided from Bank Street, as buildings were usually developed with a continuous building facade.

Existing lane with private parking

Map 3 illustrates the laneways in the Bank Street area that are still in public ownership. Over time, many of the public lanes have been closed and conveyed to adjacent property owners. The public lanes that are in operation provide vehicular access to the rear of a number of properties, while others are used by adjacent properties for parking and storage.

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16/64 Vehicular Access

Access points can dominate the streetscape

Developments in the past number of decades have provided vehicular access to sites almost exclusively directly from Bank Street. As well, some of these developments have more than one access point, and corner lots may have one access from Bank Street and the second access from the adjoining side street.

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Multiple access points increase pedestrian/vehicular conflicts and reduce amount of available on-street parking

This cumulative increase in the number of accesses from the street to private land is not conducive to encouraging a desirable pedestrian environment due to resulting gaps in the building façade and the potential increase in pedestrian/vehicular conflicts. The existing accesses from Bank Street are shown on Map 2.

The City also has a by-law that regulates the number, size and location of these accesses. The by-law establishes minimum distances for accesses from street intersections, and as well, requires that vehicular accesses be located at least 3 metres away from the property line. While this by-law establishes maximum widths of private approaches of 7.5 metres (one way approaches) and 9 metres (two way approaches), the Zoning By-law establishes the minimum width of the access of either 3.6 or 6.7 metres based on the number of parking spaces provided.

18/64 Design Principles for the Redevelopment of Bank Street in Ottawa South

The new Official Plan, which was approved by City Council at the end of April 2003, indicates that “the City will support projects that achieve a more urban, densely developed form within Mainstreets in a manner that sensitively builds on existing neighbourhoods and is less auto-dependent. Over time, it is the City’s intent that the designated Mainstreets will consolidate into uninterrupted networks of active, mixed-use, pedestrian oriented development.”

With this direction as a basis and in consideration of the Ottawa South Neighbourhood Plan’s stated goals, a set of design principles for Bank Street are put forward, each accompanied by a number of proposals to achieve the community’s vision for the street.

The report submitted by the Ottawa South Community Association’s committee on planning and development issues specifically focussed on many issues related to development on Bank Street. This report contained a number of policy recommendations on changes required to improve the street, many of which are contained in this document as indicated by the check marks below:

√ Prohibit commercial garages and parking lots along Bank Street • Differentiate between types of restaurants to place controls on high turnover/fast food type establishments - Zoning By-law already separates restaurants into three categories, restaurant fast food is permitted, but it cannot have a drive-thru service √ Restrict size of retail food stores √ Establish maximum limit on building setbacks • No vehicular parking in front of buildings – current zoning by-law prohibits this, but it was not prohibited in prior by-laws √ Require buildings to face the street √ Increase the maximum permitted size of buildings • establish a minimum amount of floor space requirement – a minimum height of two storeys is proposed instead √ Reduce parking requirements in certain circumstances and encourage shared parking • Consideration of other tools to improve the design of developments – design guidelines have been prepared for specific design problems or opportunities that would be applied through the various development approval processes.

19/64 Design Principle #1: Develop a Compact Building Form

To maintain and extend an urban character to the building form

Existing streetscape of one and two Example of streetscape with higher storey building facades buildings providing sense of enclosure

1.1 Require a minimum building height of 2 storeys

Buildings of a more substantial height should fill in existing gaps and complete the streetscape to frame the street and give it a sense of enclosure.

Single storey buildings, such as the recently constructed Tim Horton’s, generally do not have enough height to give the street an urban character. Having a second storey, not just having higher buildings, also contributes to a more efficient use of land and services.

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Minimum two storey buildings on a mainstreet

It is therefore proposed to now require a minimum of 2 storeys for new development along Bank Street in Old Ottawa South. Additional storeys will be permitted, and should be encouraged where possible, up to the existing maximum height limit of 13.8metres (about 4 storeys), that will be retained along most of the street.

1.2 Delete the limitation on the amount of building floor area

The size of buildings or amount of building floor area permitted is partially controlled through what is referred to in the Zoning By-law as the floor space index (FSI). Other controls that affect the amount of floor area that can be built are height limits and yard or setback requirements.

The FSI for this portion of Bank Street is 1.5, with the restriction that non- residential uses are limited to 50% of this density ratio (ie. on a 1,000m2 lot, a building can be built no greater than 1,500m2 of floor area, of which only half of that number, or 750m2 can be developed for commercial uses).

Given the limited size of the majority of the lots due to their shallow depth, this regulation precludes the development of sites with a greater lot coverage and hence a more compact form. As well, this regulation will limit the flexibility of the types of uses that can occupy the required second floor in buildings.

21/64 In order to alleviate this development constraint, it is proposed that the floor space index regulation be eliminated. This will allow a building with greater lot coverage, to be built with two storeys of commercial uses.

1.3 Permit residential uses only above second storey

Residential on 2nd and 3rd floors above ground floor stores with parking behind, adjacent to residential neighbourhood

The elimination of the existing floor space index as described above, without additional restrictions, would permit the construction of commercial buildings up to the permitted height of about 4 storeys. In order to prevent the construction of large single use buildings and encourage the development of mixed-use buildings, it is proposed that any storey above the required two storeys would be limited to residential uses. Residential would continue to be permitted on the 2nd floor as well.

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This type of mixed-use development is an ideal infill and intensification opportunity as Bank Street is designated in the new Official Plan as a Mainstreet. The illustration above shows essentially what is the existing maximum building envelope from a side view under the current zoning; what is proposed to change from this is the requirement for the building façade to locate within one metre of the frontage along Bank Street.

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Existing underdeveloped land at Sunnyside and Bank Streets

Example of 4 storey mixed-use development on a mainstreet

24/64 1.4 Encourage the replacement of individual parking lots with buildings

Parking lots create gaps along main streets

1.4.1 Eliminate parking lots and parking garages as separate permitted uses of land

Often in typical mainstreet areas, it is sometimes difficult to meet the Zoning By-law parking requirements for a change of use in existing buildings where the new use has higher parking standards. Property owners have the option to apply for the Cash-in-Lieu of Parking approval. This allows the transfer of the responsibility of providing the missing number of parking spaces that cannot be provided on site by financially compensating the City for the shortfall in the supply of parking. Over time, as monies are accumulated, the City can establish parking facilities in these areas to assist in replacing the parking that was not provided.

The “parking garage” and “parking lot” uses were originally permitted by the Zoning By-law in the CN zones, such as the zone located along Bank Street, in order to both facilitate the establishment of municipally-owned parking facilities and as well to permit private parking lots to serve the neighbourhood commercial area. A couple of these privately-owned parking lots currently exist on vacant land facing directly onto Bank Street, however, their usage is restricted to a number of specific businesses only.

While allowing for the potential to provide more parking spaces in parking garages and surface parking lots within mainstreets, this perceived benefit on the other hand is generally considered to be incongruent with the achievement of a compact urban form. The resulting gaps in the building façade from surface parking lots, or the typical blank walls of parking garages, do not contribute to the development of a denser and continuous commercial activity along the street.

25/64 Furthermore, permitting parking lots allows lands where a building has been demolished to be easily used as a parking lot, which may discourage owners of land from redeveloping the property for a significant period of time.

While prohibiting these uses will still allow the existing parking lots to continue to exist with a legal non-conforming status, it will prevent the establishment of new parking lots in the future.

However, if and when there is a need in the future to accommodate a municipally owned public parking facility, a property could be rezoned on a site-specific basis. Generally, such a rezoning should be supported in order to meet the parking requirements of the street in a manner that is of benefit to the entire area and that complements the vision for the street, perhaps through a partnership with a private developer to incorporate the parking area with a building along Bank Street.

1.4.2 Eliminate required parking to allow existing parking lots to redevelop

There are two parking lots along Bank Street that were originally established to provide the required parking under the zoning regulations for buildings located on another site, across the street. Both lots are on the west side of Bank Street, one at the intersection with Grove Avenue and the other south of Chesley. The Grove Avenue parking lot provides 21 parking spaces (20 of which are required spaces for the building) and the Chesley lot provides 9 spaces, but none of these spaces are now required parking spaces due to the change in use from a former bakery/restaurant to retail use (Bond’s Décor) quite a number of years ago.

It is very likely that such parking lots will remain for many years as the spaces that are provided on these lots must continue to be provided during the existence of the buildings for which they are providing the required parking under the zoning. Unfortunately, this means that these corner properties, specifically the one located at Grove Avenue, will not redevelop and inject new businesses or apartments on Bank Street.

It is felt that a one-time bonus be given in terms of relaxation of the zoning regulations to this property to encourage its redevelopment. It is therefore recommended that upon redevelopment of the parking lot, the parking required for the building which it served be reduced by the amount of required parking that was provided by the parking lots, minus a reduction from the total required parking that will occur on this property as a result of the application of the new shared parking standards. This would be conditional upon the construction of a mixed-use building, with at least three storeys but within the permitted height limit of 13.8 metres and the provision of parking for the new building.

26/64 1.4.3 Eliminate transitional parking at 271 Sunnyside Avenue

The residentially zoned property located at 271 Sunnyside Avenue, directly abutting the commercial lands at the northeast corner of Bank Street and Sunnyside Avenue has an exception that allows the property to be used as a parking lot for the adjacent commercial uses on Bank Street.

These lands have not been used as a parking lot and are currently occupied by a two unit dwelling residential building, under separate ownership from the commercial lands. In line with the intent to eliminate parking lots as separate uses, it is recommended that transitional parking be eliminated as a permitted use on this property.

1.5 Allow for the sharing of parking spaces

Parking requirements are usually applied on the basis of the type of use that is proposed, with certain uses having higher requirements than other uses. When more than one use is proposed for a site, the parking for each individual use is calculated and then added together to make the total parking required to be provided on site.

It is recognized however that there are many combinations of land uses that work effectively together in that these are land uses that tend to have parking occupancy peaks at differing time periods. Commercial uses that tend to exhibit complementary parking occupancy rates for example are: offices and restaurants, and retail and offices.

The former City of Ottawa Zoning By-law does permit shared parking for sites that are within 400 metres of transitway stations. Although Bank Street in Ottawa South is further than this from the Transitway station, the concept of shared parking along this mainstreet could be considered due to its high level of bus service. It may also be justified on the basis that most new development along this mainstreet will be comprised of mixed uses and that the new zoning changes will encourage more pedestrian access to the street.

27/64 The application of shared parking standards to mixed-use developments will result in a reduction in the parking that is required to be provided, the extent of which is dependent on the actual mix of uses. The potentially significant advantages of permitting this concept to apply along Bank Street are:

• The ability to construct the desired building form with less space required to accommodate parking; and • Ensuring a more efficient use of those parking areas that are provided.

It is recognized that there are also disadvantages to shared parking, namely that there could be a shortage of parking if the uses within the building change in a manner that is less complementary. As well, there must be some limitation in any arrangements for reserved parking stalls.

Generally the application of the shared parking provisions of the Zoning By-law will only result in the reduction of a few parking spaces given the average size of properties on the street. However, these reductions will facilitate the development of these lots for 2-storey mixed-use developments.

28/64 Design Principle #2: Create Prominent Gateways

To encourage the intensification of prominent sites

2.1 Allow increased height at gateway sites at Bank Street and Riverdale Avenue

Existing gateway site at intersection of Example of mixed use building on Bank Street and Riverdale Avenue small lot located at an intersection

The north and south parts of Bank Street in Old Ottawa South, that are adjacent to the Rideau Canal and Rideau River are entry points into the community that serve as ‘gateways’ on Bank Street. These locations are logical choices to consider for promoting the visual prominence of these sites through architectural treatment and the intensification of the lands.

The commercially-zoned sites located at the south end of the street, at the intersection of Bank and Riverdale, are particularly interesting for intensification given their prominent locations. The construction of new residential units, specifically to provide opportunities for apartment dwelling construction in the Old Ottawa South neighbourhood, is important in meeting future housing needs of the community.

29/64 The two institutionally-zoned sites located at the north end of the gateway into the community are occupied by a visually prominent church building on the west side and by a one-storey public library on the east side, both of which are architecturally significant. Although the existing zoning is limited to institutional uses on these two sites, a retirement home is also permitted. The public library site does have potential to redevelop, given its existing at- grade parking area, and could include a higher building under the existing zoning. No zoning changes are proposed for these two institutional sites in this study.

However, a change to the zoning is proposed for the properties located at the south end of Bank Street, as shown on Map 4, in order to encourage development on these lands that would be more appropriate to their location at a prominent intersection, adjacent to the Rideau River and its parkland, and situated at the edge of the community. These changes include:

• Allow for an increase in height from the permitted 13.8 metre height limit to 18 metres on these two sites. The 13.8 metres height will continue to apply to all the other commercially-zoned properties along Bank Street. It should be noted that a height limit of 18 metres (2 additional storeys) already exists on certain designated mainstreets in other parts of Ottawa which are also zoned with the “CN” designation. • Along the street frontage of these two sites, the building face along the street should be set back at least two metres above the fourth storey to minimize the perceived impact of the height of the façade. • As well, the use of angular planes will be applied to buildings that are five or six storeys in height to ensure that they do not significantly block sunlight from existing residential properties, as shown below. This would replace the standard 7.5 metre setback from residential lands that would apply for buildings that are up to 13.8 metres in height (as illustrated in Section 1.3).

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Gateway site, west side of Bank, near Example of 5-storey mixed use Rideau River and bridge building

32/64 2.2 Extend the mixed use commercial/residential zoning at the northwest corner of Bank Street and Sunnyside

The property known as 305 Sunnyside Avenue is currently zoned residential with an exception that allows a parking lot which is intended to provide parking for the adjoining uses at 297 Sunnyside (lands located directly to the east) and 1092 Bank Street (southwest corner of Bank Street and Sunnyside). This site is shown on Map 4 with a “*”.

It is considered preferable that in the future the lot located at 305 Sunnyside Avenue should be developed for mixed uses in conjunction with the lands located at the northwest corner of Sunnyside Avenue and Bank Street, all that are currently under the same ownership.

Increasing the size of the site will potentially allow the consolidation of a larger development parcel that would facilitate the redevelopment to a mixed-use development within the existing height limit of 13.8 metres. While the lands currently zoned commercial at this intersection would be subject to the same zoning restriction as adjoining commercial lands, the lands at 305 Sunnyside Avenue would have additional requirements that would:

• limit the types of commercial uses permitted, • require that that they could locate on the ground floor only, • require that residential uses would have to be included, • require a larger front yard setback of up to 3 metres.

Extend mixed-use zone one lot beyond 297 Sunnyside (white brick building shown above) to consolidate redevelopment parcel

33/64 Design Principle #3: Provide a Continuous Building Facade

To maintain the existing building facades that provide continuity to the streetscape

Existing main street building facades

3.1 Establish a maximum building setback along Bank Street

3.1.1 One metre maximum along Bank Street

The current zoning has no minimum setback for the front yard of buildings. This means that buildings along Bank Street can be located right up to the property line, directly adjacent to the public sidewalk.

34/64 The zoning however also does not establish a maximum setback. As a result, buildings can be set back at varying distances from the sidewalk, which can result in the irregular alignment of the buildings along the street. Some buildings are also set back quite some distance from the sidewalk, resulting in significant gaps in the streetscape. Some older buildings that are set back, have parking spaces in the front, although this is now prohibited by the Zoning By-law.

This situation can be further compounded by the right-of-way widening requirement that results in the establishment of a new property line that can also vary depending on the widening required.

In order to ensure a more homogeneous alignment of buildings, the front yard setback would be set at no more than one metre. This provides some flexibility in the building siting with respect to it’s alignment with adjacent buildings and the ability to set part of the building façade back from the property line to accommodate minor variations in the façade of buildings for doorways etc. As well, it will effectively eliminate the possibility of the land in front of a building being used for vehicular access.

3.1.2 Larger setback allowed for corner outdoor patios

Corner outdoor patio in building setback

Outdoor patios that are associated with a restaurant are an important component of an active mainstreet environment. This use is permitted by the Zoning By-law along the front of buildings on Bank Street.

35/64 However, the proposed new maximum setback for buildings along Bank Street of one metre is not deep enough to accommodate the space requirements for an outdoor patio. For this reason an exception would be provided to allow a front yard building setback up to 3 metres, at the corners of corner lots only, where a patio could only locate along no more than 6 metres in front of the building. This would only apply to the portion of the building where a restaurant is proposed so that any other uses along the front of the building would be required to adhere to the standard setback of no more than one metre.

For properties that are not located at the corner of a street intersection, an outdoor patio could locate partially within the front yard setback of up to one metre, and partially within the City’s right-of-way, primarily within the one metre added to the right of way, provided it did not block pedestrian movements along the sidewalk. This arrangement would require what is called an encroachment permit (a permit that allows the use of City lands for private purposes) from the City.

3.1.3 No maximum setbacks above the second storey

Above the second storey, the façade or front of the building can be setback as desired since the perception of building continuity is of most concern at the first two storeys. Building setbacks above this height do reduce the perception of massing and allow more sunlight penetration onto the sidewalk.

3.2 Reduce distances between buildings

There is currently no maximum distance between the side walls of buildings and the property line. This has allowed building facades to occupy only part of the frontage of Bank Street, the balance of the space between building walls and property lines are typically used for parking. This has a significant impact in creating large gaps along the street frontage.

3.2.1 Maximum one metre distance between buildings

To ensure that there is more of a continuous built form in future developments, it is proposed that the size of the side yards, that is the space between the sides of buildings and property lines, should not exceed one metre at the ground floor. The building could be further set back on the upper storeys that would allow outdoor amenity space for residential units for example.

36/64 3.2.2 Design of small spaces between buildings

While it would be preferable for new building side walls to be right on the property line, directly abutting the side wall of adjacent buildings built to the property line, it is recognized that some flexibility in building construction must be provided. This however means that the maximum one metre gap, could over time become wider breaks in the streetscape when combined with other side yards, with or without vehicular access, on adjacent properties. Regardless, these breaks would be smaller than what has been occurring given that there is currently no maximum size for side yards in the zoning between commercial lands.

When they do occur, the breaks in building continuity should be designed in a manner that can contribute to the streetscape. Examples of how these gaps could be treated include the following:

• Pedestrian access to rear parking areas; • Places for bicycle parking; • Partially closed off with decorative gates; and • Locations for public art.

3.2.3 Wider maximum distance between buildings for driveways

It is recognized that the proposed maximum one metre side yard is not enough space to accommodate vehicular access from Bank Street to rear parking spaces. To deal with this situation, an exception would be provided to permit a side yard of a maximum of either:

• 6 metres (for less than 20 parking spaces), or • 9 metres (for 20 or more parking spaces), to accommodate vehicular access within one of the side yards. This would be in addition to the one metre maximum side yard on the other side of the building.

These widths reflect the new proposed reduced minimum driveway widths (3 and 6 metres depending on the number of parking spaces) which is described below, plus the standard minimum 3 metre setback from a property line to a driveway that is required under the City’s Private Approach By-law. It is recommended that through the development approvals process, an exemption will be granted, as is allowed under the Private Approach By-law, to reduce the standard 3 metre setback to 0.3 metres and therefore reduce the actual sizes of these side yards to be generally no more than 3.3 and 6.3 metres.

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The diagram above illustrates the maximum front yard of one metre and the right of way widening, the maximum side yard of one metre, the larger permitted side yard that accommodates a driveway and the required rear yard.

38/64 3.2.4 Reduce the minimum required driveway width

The Zoning By-law specifies a minimum driveway width depending on the number of parking spaces that are accessed through that driveway.

For parking areas containing less than 20 spaces, the minimum driveway width is 3.6 metres and is based on only one car is using the driveway at a time. It is proposed that the minimum driveway be reduced to 3 metres, which will still accommodate one vehicle (the width of a standard parking space is 2.6 metres).

For driveways leading to parking areas containing 20 or more parking spaces, the minimum driveway width is 6.7 metres and is intended to accommodate two vehicles passing each other. It is suggested that this minimum driveway width be reduced to 6 metres.

It should be noted that an added benefit of narrower private approaches allow for longer curb lengths along the street, which has the cumulative effect of increasing the space available for on-street parking.

3.2.5 Provide flexibility in the requirement for driveways to be setback from property lines

As previously indicated, the Private Approach By-law requires that a driveway be setback at least 3 metres from the parallel property line. The reason for this is principally to prevent driveways on abutting properties to be located directly beside each other and creating vehicular conflicts at the driveway entrance. As well, from a safety perspective, this distance provides additional ability to view the sidewalk and roadway when vehicles are exiting a driveway.

The existing Private Approach By-law (which is currently under review) has in the past allowed exemptions from this requirement on a case-by-case basis, usually during consideration of a site plan application. It is recommended that the option of requesting this exemption be considered by proponents and discussed with staff during the design of a proposed development. The elimination of the setback should be considered when there is no driveway located directly abutting the proposed driveway on the adjoining property. As well, a reduction in the setback should be considered where the building wall on the adjoining property is already setback, or where design details can be provided which would increase visibility of the driveway access points.

By encouraging the consideration of such exemptions, this will allow side yards which accommodate driveways to be narrower than the maximums prescribed in 3.2.3.

39/64 3.2.6 Alternating Vehicular Entrances

It is recommended that for the most part driveways on two abutting properties should not be located in close proximity to each other, so as to minimize the size of the resulting breaks between buildings and to allow the waiver to the Private Approach By-law mentioned in 3.2.5 above. Accesses should be on the far side or even in the middle of a site, depending on the location of accesses on abutting properties.

There could be situations where it might be better to locate two separate accesses side-by-side rather than separate from each other. Separate accesses mean that there could be more points where pedestrian/vehicular conflicts could occur.

3.2.7 Encouraging shared driveways and parking areas

Optimally, where possible, shared driveways and parking areas between two properties would result in reductions in the need for vehicular accesses and make more efficient use of land. Development proponents should be encouraged to seek out these types of alternative arrangements to make more efficient use of their lands. These kinds of options could possibly be a condition imposed as part of an application to sever lands along Bank Street.

However, there are two provisions in the Zoning By-law that have the effect of preventing the sharing of driveways for non-residential uses and the accessing of parking areas across different properties.

One provision requires that parking spaces must have direct access to a public street by a driveway. The provision would preclude the sharing of a driveway located on another property. This will be changed to access a parking area through another lot. Another provision states that driveways may be located between two abutting residential properties, and in these cases it is not necessary for each property to have a separate driveway. It is recommended that for the properties along Bank Street, the same provision apply to non-residential uses as well as an alternative means to reduce the number of access points along the street.

40/64 3.3 Prohibit Parking Beside Buildings

Side yard parking creates significant gaps in the streetscape

There are a number of properties where there is parking in the front of buildings or in side yards abutting streets (i.e. at corners), however the current zoning for the lands along Bank Street does not permit this situation to occur in new development. However, the zoning does allow parking to be located in a side yard (between building walls and property lines). A number of properties currently have parking in their side yard (i.e. the Tim Horton’s, Dairy Queen. Fresh Fruit Company) resulting in the creation of significant gaps in the building line along the street.

Since it has already been proposed to limit distances between buildings, parking spaces will not physically be able to locate in a side yard. All parking, whether it is parking that is required by the zoning by-law, or parking in excess of the requirements, should be provided in rear yards only.

41/64 3.4 Eliminate the parking requirements for small lots

The Zoning By-law sets out the parking rate for various land uses and required parking must be accommodated on the same lot as the use. It is often difficult to provide the required parking on small lots, such as several of the lots found along Bank Street. With a large portion of the lot devoted to complying with the parking requirements, the resulting building floor plate may be too small to be viable. As well, it makes it difficult to accommodate changes of uses for uses which may require a bit more parking, particularly in existing buildings of heritage interest where very little parking is available.

Since it is proposed that new buildings along Bank Street must be a minimum of two storeys high, it will be more challenging to provide all the required parking on a small lot. As well, it would be preferable to eliminate the need to provide vehicular access from Bank Street to rear parking areas for these small lots in order to reduce the number of vehicular accesses crossing the sidewalk, a situation that is particularly undesirable when there are a number of small lots located along a street block.

In order to achieve both objectives of encouraging the retention and construction of a continuous building façade wherever possible, and to reduce vehicular accesses across the sidewalk, it is proposed that that no parking be required for the smaller lots. It is suggested that this would be in effect only for lots less than 20 metres in width and less than 600 square metres in size. There are a total of 18 lots that fall within the size criteria along this portion of Bank Street, including six corner lots.

3.4.1 Small lots already developed

Most of these lots (about 13) are already constructed with buildings (some of these are of heritage interest) that occupy the entire frontage of Bank Street. Not many provide any parking spaces on site, some have a few spaces, but not to current standards.

While it is preferable for many of these buildings to be retained, particularly those that contribute to a continuous building façade, should they ever be redeveloped, their building form could be replicated without the need to provide new parking spaces. This would create no change from the existing parking situation. Overall, the application of the exemption from parking requirements, given that the parking is not currently being provided for most of these buildings, in question, would therefore not worsen the parking situation on Bank Street or in the immediate area.

42/64 3.4.2 Small lots that are under-developed

There are also four additional lots that meet the size criteria for the proposed exemption, however, they are currently under-developed. The redevelopment of these lots would make a positive change by filling in significant gaps in the streetscape. It is recognized however that the redevelopment of these particular lots, without parking, will have some impact on the parking situation.

Applying different development scenarios (assuming different mixes of uses and two storeys in height) for these four properties, it is evident that it is very difficult to accommodate parking on the site according to the parking requirements. This is particularly the case if the lot is developed for uses with higher parking requirements, such as restaurants and medical facilities.

It is estimated that if all four lots are redeveloped, for example as a 2-storey retail and residential building, the total number of parking spaces not provided as a result of the proposed exemption would be about 50 spaces. It should be noted that the existing buildings on these four properties currently benefit from parking credits (that is, the number of parking spaces that would be required today that are not provided because of the age of the buildings) and that these credits are lost when redevelopment takes place. When this is taken into consideration, the number of new spaces that would actually not be required would be about 20 parking spaces instead of 50. What this means is that technically there are already parking deficiencies on many properties, and that not requiring parking for these lots will not create as much of a parking problem as might be calculated from zoning requirements.

3.4.3 Exemption not to apply to restaurant and medical facility

Of course, if the types of uses developed contain a different mix or have higher parking requirements, the number of new spaces that would not be provided due to the parking exemption for small lots would be higher. In order to avoid reducing overall parking requirements for uses whose requirements are in the higher end of the range, it is proposed that the parking exemption for small lots would not apply to restaurant and medical facility uses.

3.4.4 Some parking to be provided on small lots

It should be noted as well that the intention would be not only to eliminate the requirement to provide parking, but also to actually not provide parking on these lots. However, for some of the small lots that abut a public lane or are located at the corner of two streets, a small amount of parking could be provided at the rear of the property, with access from the side street.

43/64 Design Principle #4: Create a human-scale, pedestrian-friendly environment

To increase the activity and function of the sidewalk on Bank Street and ensure that new development contributes to this public space

4.1 Require new developments to provide a direct and accessible pedestrian access from Bank Street

Direct links from storefronts to sidewalk

44/64 Pedestrian access from the Bank Street sidewalk for all uses along the street is an important element in making Bank Street an active, accessible and pedestrian- friendly shopping street. For that reason, all ground floor uses abutting Bank Street would be required, through zoning regulation, to provide their principal pedestrian entrance off Bank Street. Details of the design of the entrances should be provided during the review of development proposals to ensure that for ground floor uses are accessible to all.

4.2 Limit the size of retail stores and retail food stores

Traditional commercial areas such as Bank Street were originally built when stores and offices were smaller, whereas the trend today is for much larger-scale businesses.

The size of these uses is a potential concern given the vision for the street, which is to encourage small-scale commercial development. Although there are few large parcels of land along Bank Street, and lots are generally shallow in depth, if land assembly were to occur, the establishment of large retail stores or retail food stores is possible. The main concern is that larger scale businesses do tend to generate higher volumes of traffic and require larger parking areas.

It is recommended that retail stores and retail food stores be limited in size to no more than 600 square metres. Given that the average lot size is approximately 600 square metres (+/- 20X30 metres) along this portion of Bank Street, retail stores and retail food stores could be limited to a size reflective of the lot size.

45/64 4.3 Increase the width of the sidewalk space by an additional metre in new developments

1.7m existing sidewalk

2.35m existing sidewalk

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Sidewalk width that the proposed one metre road widening would look like

The sidewalks along both sides of Bank Street vary in width and in some cases are too narrow. The reconstruction of Bank Street underway in 2003 has provided the opportunity not only to significantly improve the appearance of the streetscape (human scale lighting, attractive street furniture, pavers etc.); but also to standardize the sidewalk width and to widen portions of the sidewalk that are too narrow.

As shown in the photos above, existing widths of the sidewalk vary from about 1.7 metres, to 2.35 metres to 3.75 metres in front of the Starbucks Coffee Shop. With the streetscape improvement undertaken this summer, large portions of the sidewalk will be widened to 2.65 metres. This widening is being achieved primarily through the narrowing of roadway lanes.

47/64 However, it is felt that there should be a further increase in sidewalk width by one metre, primarily on those blocks along Bank Street that are under-developed, which will result in a full sidewalk build-out of approximately 3.65 metres. This can be achieved on an incremental basis through the right-of-way widening provisions of the Official Plan. This means that the long-term goal would be to increase the existing right-of-way to 20 metres from the current 18 metres where re- development will occur. For those areas where there are continuous building facades that are close to the sidewalks no right-of-way widening may be required particularly in the case of a new building that is to be inserted in between two existing buildings.

A wider sidewalk of this size will then allow for easy two-way pedestrian passage, space for other sidewalk amenities and a substantially more pleasant pedestrian environment. While the Official Plan can require up to a 2.5 metre widening at the time of redevelopment, it is felt that the application of the full requirement is not consistent with the desire to ensure that building facades are designed so as to be close to pedestrians and to provide a sense of enclosure to the street. As well the requirement for one metre instead of the maximum 2.5 metres should have less impact on the development potential of the lots on Bank Street.

However, there may be instances where a right-of-way widening greater than one metre may be considered desirable in certain locations or situations such as: • Intersections with high pedestrian volumes where even greater sidewalk space is desirable; • To provide opportunities for art in public places, and • To protect existing attractive views (Southminster Church, entrance to Linda Thom Park along the Rideau River).

4.4 Integrate the design of the space in any sidewalk (right-of-way) widening with the existing streetscape

Create wider sidewalks in the same material as the adjacent sidewalk to increase the walkable area, as opposed to using different materials that appear to restrict the walking area

48/64 There has not been a consistent approach to the design of the space provided through the Official Plan right-of-way widenings in the past. As noted, these have ranged in size up to the maximum 2.5 metres and have been used for landscaped area (Hopewell Public School) or pavers and planters. It is felt that the contribution and integration of these extensions to the sidewalk environment could be improved. The following guidelines should be used in the design of widened right- of-way space:

• The paving material should match and align with the existing sidewalk so that they are the same level and provide a continuous smooth walking surface; and • Special unit paving embellishments can occur in the sidewalk around the main entry to distinguish it.

4.5 Minimize pedestrian/vehicular conflicts

Safety concerns for vehicular/pedestrian/cyclist conflicts

One of the most important ingredients of a successful mainstreet requires building façades that have few or no interruptions for the pedestrian. This is more desirable than having buildings separated by a series of driveways that provide vehicular access to the parking on site.

The difficulty with new development is that driveways are required to provide access to the required parking spaces on the lot, which, except for corner lots where access can be provided from the street, will require a roadway cut through the Bank Street sidewalk, creating a new access through the sidewalk, or moving an existing access.

49/64 In order to create a safe and pleasant pedestrian environment along Bank Street, it is critical to find ways to deal with this problem.

While the elimination of parking requirements for small lots will eliminate the need for vehicular access from Bank Street to these particular properties; there is still a need to find ways to reduce access from other larger sites. Listed below are a number of possible alternatives.

4.5.1 Protect and consider re-activating the public laneway system

Rear lane protects the mainstreet for pedestrians and offers parking opportunities

Rear laneway systems do provide an important alternative to the need for vehicular access across a mainstreet sidewalk. Many parts of the laneway system in Ottawa South have over time been closed and conveyed, usually to abutting property owners. Unfortunately, this has eliminated the possibility of accessing the rear of many commercial sites from the rear lanes.

There are still remnants of the public rear laneway system that are well used to access rear parking areas and for loading and fire access and garbage pick-up. There are also a number of other laneways still under City ownership, but that are not accessible either because they are not maintained or have buildings that encroach on the lands.

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Consideration should be given to re-activate parts of the public laneway system as part of the solution to reduce or eliminate the need for vehicular accesses for new development. This however does require further review because of the implications to the City including:

• Cost of upgrading public laneways to make them accessible; and • On-going maintenance costs, particularly with respect to snow removal; and • Need to acquire additional lands to widen the existing laneways if there is a desire to accommodate two-way traffic (one-way laneway traffic should suffice).

The Ottawa South Neighbourhood Plan directed that public laneways that abutted the commercial lands along Bank Street should not be closed and sold. This continues to be a relevant policy in order to protect the future potential use of these laneways for vehicular access.

4.5.2 Encourage the use of public laneways for vehicular access

If vehicular access to the rear of any lot is possible by way of the existing laneway system, the access should be from the laneway rather than from the Bank Street frontage. As well, it may be appropriate to require, through the development approval process, that the rear part of the property be used to add to the laneway width. This could improve future two-way circulation in the laneways and provide a viable rear access for potential redevelopments along the balance of the lane.

In order to encourage access from laneways instead of from Bank Street, it is proposed that the minimum rear yard requirement be calculated using the width of the public laneway if access is provided from the laneway instead of Bank Street.

Currently under the Zoning By-law, a rear yard of 7.5 metres is required for properties abutting a residential zone. This setback, even if a property backs onto a public lane, is calculated from the rear property line. Where there is a public laneway, the actual setback from abutting residential uses is 7.5 metres plus the width of the lane (usually 3 metres) for a total setback of 10.5 metres.

Therefore, it is suggested that development proposals where access is only provided by the rear laneway, could benefit from a reduction in their required rear yard to 4.5 metres. The setback, which would abut the 3-metre setback, would result in an actual setback of 7.5 metres, identical to that for properties which do not abut a public laneway.

51/64 4.5.3 Allow only one vehicular access for each new development

The City’s by-law that regulates the construction of vehicular accesses (the Private Approach By-law) permits one or more private approaches (driveways) into a site. The maximum number of accesses permitted depends primarily on the length of the frontage of the lands.

A number of sites along Bank Street currently do have more than one vehicular access, resulting in multiple breaks in the streetscape continuity and more potential vehicular/pedestrian conflicts. Of significant impact as well is that the more vehicular accesses that exist, the less on-street public parking that can be provided on the street.

On lot frontages less than 20 metres, only one (2-way) driveway is permitted, and on frontages of 20 to 34 metres, either only one (2-way) approach is permitted, or two (1-way) approaches. Most of the lots along Bank Street fit within these frontage sizes. It is recommended that if a site must be serviced directly from Bank Street, then no more than one access should be permitted to minimize the impact. Corner lots should be serviced by only one access from the side street.

4.6 Design safe vehicular access to Bank Street

It is recognized that the design of vehicular accesses from Bank Street will require careful attention given the built form proposals contained in this document. Buildings will be closer to the sidewalk and the distances between buildings will be reduced. This is a different situation for both drivers and pedestrians than what would exist in more suburban developments where there is a wider view of the driveway entrances, a condition that also facilitates faster driving speeds.

52/64 There are a number of ways to make these potential vehicular/pedestrian conflicts safer. Proponents of new developments should consider integrating the following ideas in the design of their proposals:

New construction incorporates glass in garage entrance

• Include glass windows around the corner of buildings to open up, and increase visibility of the sidewalk; or • Use mirrors to assist drivers in seeing pedestrians.

Example of improvement to vehicular access in existing building

53/64 Design Principle# 5: Improve Visual Quality

To promote the visual quality of Bank Street

5.1 Encourage quality architecture in new development proposals

Proponents of new development should design their buildings in a manner that is suitable to the mainstreet character of Bank Street and suits a pedestrian scale in a way so as to:

• create the height and width of the facades that are proportional to the existing neighbourhood mainstreet fabric; • provide a common cornice line at more or less 3.65m from grade in order to: • offer building continuity for the mainstreet, • create large display windows, • create a space for consistent signage • separate retail and uses above, • elevate residential floors from passing traffic; • establish a highly visible ground floor with views both out and in from the public sidewalk; • use colours, textures, types, qualities and patterns of finish that fit into, or complement, the neighbourhood character and mainstreet context; and • use high quality modern materials when building in a modern vocabulary.

5.2 Promote special architectural features at important intersections and gateway sites

Buildings that are located in prominent locations along Bank Street can employ special architectural features to give them prominence and make them signature or landmark pieces for important sites in the community. Proponents of new developments at these locations will be encouraged to incorporate these features into their buildings.

5.3 Minimize pole mounted signage

To promote a pedestrian oriented main street environment, enhance the visual amenities and building facades by encouraging building mounted signage and restricting ground signs and temporary billboard, mobile and inflatable signs oriented to vehicular traffic.

54/64 Implementation of Design Principles

Many of the suggestions described to achieve the design principles for Bank Street in Old Ottawa South can be implemented through the mechanisms available through the Planning Act. These mechanisms are applied through the City’s development approval processes, including pro-active changes to the City’s Zoning By-law, and through the review of individual development applications.

However, it should be noted that there are few regulatory mechanisms and tools to deal with the architectural quality of buildings. Proponents should be encouraged to design buildings that contribute to the character of the street.

It should also be noted that the City will be developing a design strategy during the course of 2003 to evaluate ways to improve urban design and architectural quality in Ottawa.

Finally, it is recognized that in order to encourage the redevelopment of underdeveloped sites on mainstreets, such as in Old Ottawa South, there may be a need to consider other tools and incentives.

Existing and Proposed Zoning

A table showing the existing zoning regulations for the commercial zones (CN4 zones) along Bank Street and potential modifications to the zoning, as discussed in the design principles, follows:

55/64 Existing Zoning Regulations Proposed Changes Uses Parking garage To be prohibited Parking lot To be prohibited Retail store To be limited to 600 sq. m. Retail food store To be limited to 600 sq. m. All other uses permitted No change Minimum lot area No minimum No change Minimum lot width No minimum No change Front yard Lot line abutting Bank St. is No change front lot line No maximum front yard setback New maximum 1 metre setback along Bank Street for first two storeys, exception for outdoor patios on corners, in which case it will be a 3 metres setback for no more than 6 metres Side yard Abutting a residential zone, No change minimum 7.5 metres Abutting a commercial or Maximum of 1 metre at ground institutional zone, no minimum, level, except for side yard no maximum providing vehicular access, in which case the maximum is: - 6 metres (> 20 spaces) - 9 metres (20 spaces or >) Abutting a street, no minimum Maximum 1 metre Rear yard 7.5 metre minimum required 7.5 metres, except if abutting a abutting a residential zone public laneway if that laneway is used for exclusive access to the site, in which case it is reduced to 4.5 metres No rear yard required in other No change cases Building height Maximum building height of 13.8 No change except for two metres along Bank Street specific sites: - Bank and Riverdale Intersection

56/64 Existing Zoning Regulations Proposed Changes - west of Bank Street, north of Rideau River Maximum height limit of 18 metres in conjunction with a height plane of 45o No minimum building height New minimum building height of 2 storeys Floor Space Index Maximum 1.5 No maximum Non-residential uses limited to No maximum, however 50% of floor space index residential uses only permitted above 2nd storey

Minimum landscaped area for required yard Yard not abutting a street, 3 No change metre minimum or 0.6 m. with a 1.4 m. opaque fence

Zoning Designations Properties along Bank Street No change except to create a zoned either commercial (CN new CN subzone to reflect new subzone 4), institutional (Il) or provisions environment waterway (EW)

Residential property abutting Change zoning designation in northwest corner of Bank and conjunction with abutting Sunnyside (zoned R3M with an commercial site to permit exception that permits a parking townhouses and apartments and lot with residential uses) limited commercial (no stand- alone commercial) Minimum Parking Required Residential: 0.7 spaces /unit No parking is required for new Retail: 3 spaces/100 sq.m. development on a small lots Office: 2 spaces/100 sq.m. (less than 20 m in width and 600 Restaurant: 3 spaces/1st 50 sq. m. in area), except for sq.m; then 10 spaces/100 sq.m. restaurant and medical facility uses

Existing shared parking reductions currently in the Zoning By-law to apply to all mixed-use developments

57/64 Existing Zoning Regulations Proposed Changes No parking in front yard or side No change yard abutting a street

Parking permitted in side yard No parking permitted in side not abutting a street (i.e. yard not abutting a street between buildings)

Drive-through service lanes No change prohibited

Parking lot located at southwest Required parking to be corner of Bank Street and Grove eliminated upon redevelopment provides required parking for of the property to at least 3 building located across the street storeys, including residential

Minimum Driveway Width Driveway leading to less than 20 Reduced to 3 metres parking spaces – 3.6 metres

Driveway leading to 20 or more Reduced to 6 metres spaces – 6.7 metres

Shared Driveway Driveway can be shared To include non-residential between two properties for properties as well residential uses only

58/64 Other Development Approvals Implementation Mechanisms

While the Zoning By-law will impose requirements relating to the desired building form and level of parking provided, the design details of new development will be principally considered through the Site Plan Control Approval process. As well through applications to the Committee of Adjustment for minor variances, changes of use and severances, specific conditions can be imposed, such as the requirement for rights-of-ways, that will assist in achieving the design principles for the street.

Although a number of sites along Bank Street were initially contemplated for increases in height in order to provide additional opportunities and the facilitation of Intensification development projects, it is now suggested that any such proposals should be considered through site-specific rezoning applications, as would normally be the case, at which time each project can be reviewed by the community on it’s own merit, particularly how the design contributes to the vision of the street and complies with the policies contained in Section 2.5.1, Compatibility of Development, of the new Official Plan.

As well, there is the application of Official Plan policies such as the right-of-way protection requirements to achieve a widened sidewalk over time. Finally, the City’s private approach by-law can be applied in a matter that is conducive to a mainstreet environment.

Even though a number of changes are proposed to reduce parking requirements for new developments where appropriate, Cash-in-lieu of Parking applications could still be considered for uses that are unique, where the actual parking requirements would be estimated to be much less than required.

The application of these processes and regulations has an important impact on the built environment along Bank Street in Old Ottawa South and hence how the vision for Bank Street translates into new development proposals.

59/64 Parking

In an area such as Bank Street in Old Ottawa South, if there were an agreement to proceed with on-street management of the parking spaces either through parking meters or pay-and-display machines, the City would proceed and monitor the effects. The on-street controls would provide the following benefits for the commercial area:

• Improve the management of existing on-street spaces; • Clearly identify legal parking spaces and reduce the number of illegal parking spaces; • Provide turnover of parking spaces for easy access by patrons to the area; • Discourage long-term parkers (employee, employer, residential parkers) from parking along main commercial streets; • Support local businesses by encouraging shoppers to come to an area where they know there are convenient, accessible and affordable on-street parking spaces; and • Parking meters are the forerunner of the development of off-street municipal parking lots. An off-street paid facility cannot be developed unless there is also paid on-street parking.

At a time when it is demonstrated that the on-street supply is insufficient to deal with the demand, then the City working with the businesses in the area, would look at an off-street solution. This could take the form of leasing land, joint venture or purchasing land to increase the supply of spaces. At all times the area would receive continual monitoring to ensure the demand meets the supply.

Potential Redevelopment Incentives

In addition to processes and regulations, there is the concept of incentives to encourage development on the street. It is clear that aside from changes in uses, there has been little new construction in the past 25 years on Bank Street in Old Ottawa South. For the vision of Bank Street to take shape, this requires filling in the vacant and underdeveloped sites along the street with more appropriate development that contributes to the vitality of the street.

60/64 As part of the Official Plan review, City staff have been trying to investigate the reasons why the City is not getting the types of mixed-use and infill development required to achieve objectives of Smart Growth (i.e. development on main streets such as in Old Ottawa South, on arterial roads, near transitways, etc.). This also entails gaining some understanding of how financial and tax-related measures might help.

A report was prepared for the City by the Corporate Research Group Ltd., dated June 2002, which involved a dialogue on this issue with development industry representatives. Preliminary findings would seem to indicate the following factors hinder “Smart Growth” type developments:

• NIMBY (Not In My Back Yard) syndrome--there is little community appetite for a denser, more ‘vibrant’ (i.e. busy) urban area, despite lip service given to this objective; • Market for this type of development unproven in Ottawa – Ottawan’s seem to desire the ‘city in the country”, difficult to market new more intensive forms of housing; and • More difficult project financing for mixed-use developments.

The findings did indicate that it appears that development incentives do work, and should be used by municipalities to channel development in locations and forms supportive of intensification policies. This would include eliminating or reducing the costs of permits, parkland levies, application fees and development charges.

The potential for combining the financial incentives noted above with a number of zoning instruments to encourage the kind of development desired along Bank Street in Ottawa South will need to be considered to move forward in achieving the vision for the street.

With the City’s new Official Plan adopted by City Council at the end of April 2003, it is anticipated that some initiatives will be undertaken to further evaluate the impediments to development and pursue initiatives that would encourage the construction of mixed-use developments on mainstreets such as Bank Street in Old Ottawa South.

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