Planning Rationale in Support of an Application for Zoning By-Law

Planning Rationale in Support of an Application for Zoning By- law Amendment

Prepared by: Holzman Consultants Inc. Land Development Consultants

December 10, 2013

TABLE OF CONTENTS

1.0 Introduction 1 2.0 Site Overview & History 1 3.0 Development Concept 3 4.0 Planning Context 3 4.1 Provincial Policy Statement 3 4.2 Official Plan 4 4.2.1 Introduction 4 4.2.2 City’s Growth Strategy 5 4.2.3 Infrastructure Policies 7 4.2.4 General Urban Area Policies 12 4.2.5 Compatibility and Design Policies 14 4.3 City of Ottawa Zoning By-law 15 4.3.1 Proposed Zoning 21 5.0 Technical Studies 22 6.0 Planning Analysis 22 6.1 Conformity with the Provincial Policy Statement 22 6.2 Conformity with the Official Plan 22 6.3 Conformity with Comprehensive Zoning By-law 23 7.0 Locational Attributes 23 8.0 Summary and Conclusions 24 9.0 Draft Bylaw Amendment 25 EXHIBITS A Aerial Location Map B Plan of Survey B-1 Plan of Survey B-2 Plan of Survey C City of Ottawa Official Plan – Schedule B D City of Ottawa Official Plan – Schedule E E City of Ottawa Official Plan – Schedule C F City of Ottawa Official Plan – Schedule I G City of Ottawa Zoning By-law 2008-250

1.0 Introduction

Holzman Consultants Inc. (“HCI”) has been retained by Issa Hamzo and Lou Lou Frangian (the “Applicant”) to prepare a planning rationale in support of an application for Zoning By-law Amendment to add an additional permitted use, that being a retail store to permit a pharmacy on the site within a portion of the existing building (the “Subject Property”).

The Applicant is requesting a change to rezone the Subject Property from I1E[469] to LC6 zone. The Subject Property is currently owned by the Applicant and its existing use is a medical facility. The proposal to add a retail use to the existing medical facility would allow a rational extension of the existing medical facility, and would make efficient use of available infrastructure and amenities. The use being considered is a pharmacy which is considered to be a retail use by definition under Zoning By-law 2008-250 as amended.

Currently the zoning of the Subject Property permits the use of a medical facility that no longer includes “a dispensary”. By-law 2008-250 harmonized of the 11 former Municipal and Township Zoning By-laws into a single Comprehensive Zoning Bylaw for the amalgamated City of Ottawa and considers dispensaries, drugstores, pharmacies to be categorized under “retail store”. A Zoning By-law Amendment is required in order to permit the additional use of a retail store.

The Planning Rational provides a review of the relevant policies in the Provincial Policy Statement, the Official Plan and the Zoning By-law of the City of Ottawa in the context of the Application as well as the justification for the development proposal. The summary and conclusions indicate that there is justification for the rezoning of the Subject Property as the intentions would be consistent with Provincial Policies, conform to the City’s Official Plan, and is an appropriate use of the lands.

2.0 Site Overview & History

The Subject Property consists of a parcel of land located along the north side of Innes Road and on the west side of Southpark Drive, known municipality as 2575 Innes Road (Blackburn Hamlet) (see Figure 1, location map). It is legally described as Part Block G RP 5R-2215; part 4 RP 5R-13564 part 2, Registered Plan 805 and is denoted as PIN 043970205. This is can be seen on Exhibit “B”, Exhibit “B-1” and Exhibit “B-2”.The Subject Property has approximately 73.45 metres of frontage along Innes Road and a floor area of approximately +600 square metres. The Subject Property has a lot area of 3,481.0m2 square metres. The approximate age of the single storey building on the Subject Property is 20-30 years. The northerly portion (part 2 on Plan 5R- 13564) of the Subject Property was added to the large generally rectangular portion through a consent application in 1990.

Figure 1: Aerial Location Map (2013)

The Subject property is currently used as a single storey medical facility building that includes 5 rental units with +/- 75 surface parking. Surface parking is located north, east and west of the structure. Access currently is via an all movement two way entrance from Southpark Drive in the easterly portion of the Subject Property. The parcel is irregular in shape and is flat and featureless. In 2008, approximately 15 spaces were added to the site without formal municipal approval but it appears that the original 40 spaces were legally constructed under previous municipal approvals.

By-law 2008-250 created through the harmonization of former Township By-laws excluded the use of medical clinic on the Subject Property. In 2011, the anomaly by-law process to add a “medical facility” as a permitted use on the Subject Property was approved by the Council of the City of Ottawa by passing By-law Number 2011-124 on the 27th day of April 2011.

The surrounding and abutting land use of the Subject Property may be described as follows:

To the North: Low density residential

To the East: Medium density residential, institutional

To the West: Commercial office and local commercial retail

To the South: Commercial, medium density residential, local commercial

3.0 Development Concept

It is anticipated that the parcel will continue the existing permitted use of a medical facility. The applicant is proposing to add a small +/- 1,200 ft2 – 1,500 ft2 pharmacy to the existing building on the Subject Property.

The applicant desires to install several large windows for the pharmacy. This will be achieved via replacing and installing existing windows in order to capture the natural light, thereby reducing the need for energy consumption and to provide “eyes on the street”.

4.0 Planning Context

4.1 Provincial Policy Statement

According to the Provincial Policy Statement (“PPS”), the vision for Ontario’s land use planning system is to carefully manage land to ensure appropriate development to satisfy current and future needs. In addition, land planning must promote efficient use of land and resources which are appropriate for and efficiently use of the infrastructure and public service facilities which are planning or available. The managing and directing land use to achieve efficient development should accommodate an appropriate range and mix of residential, employment, open space and multi-nodal transportation to meet long term needs. The PPS ultimately aims to encourage communities that are economically strong and environmentally sound and that foster social well-being.

The PPS focuses growth within settlement areas and away from significant or sensitive resources. In keeping with the PPS, the proposed addition for permitted retail use would promote efficient development patterns which optimize the use of land, resources and public investment in infrastructure and public service facilities.

Section 1.1.1 of the PPS indicates that;

1.1.1 Healthy, liveable and safe communities are sustained by:

a. promoting efficient development and land use patterns which sustain the financial well- being of the Province and municipalities over the long term; b. accommodating an appropriate range and mix of residential, employment (including industrial, commercial and institutional uses), recreational and open space uses to meet long-term needs; c. avoiding development and land use patterns which may cause environmental or public health and safety concerns;

d. avoiding development and land use patterns that would prevent the efficient expansion of settlement areas in those areas which are adjacent or close to settlement areas; e. promoting cost-effective development standards to minimize land consumption and servicing costs; f. improving accessibility for persons with disabilities and the elderly by removing and/or preventing land use barriers which restrict their full participation in society; and g. ensuring that necessary infrastructure and public service facilities are or will be available to meet current and projected need; and

Section 1.3.1 of the PPS indicates that;

1.3.1 Planning authorities shall promote economic development and competitiveness by:

a. providing for an appropriate mix and range of employment (including industrial, commercial and institutional uses) to meet long-term needs; b. providing opportunities for a diversified economic base, including maintaining a range and choice of suitable sites for employment uses which support a wide range of economic activities and ancillary uses, and take into account the needs of existing and future businesses; c. planning for, protecting and preserving employment areas for current and future uses; and d. ensuring the necessary infrastructure is provided to support current and projected needs.

The proposed Zoning Bylaw amendment to a local commercial zone would achieve intensification objectives set out by the PPS. The increase in permitted uses on the Subject Property would provide additional amenities and/or services to the surrounding neighbourhood with the need to development land.

Section 1.1.3.3 of the PPS indicates that;

Planning authorities shall identify and promote opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites, and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs.

4.2 Official Plan

4.2.1 Introduction

The City of Ottawa Plan Volume 1 (“OP”) land use designation of the Subject Property is General Urban Area on Schedule B of the OP. This is shown on Exhibit “C” attached.

The General Urban Area designation is one of the key components of the Challenge Ahead in Section 2.1 of the OP. The following statement from that section captures the essence of the challenge to manage growth.

Ottawa will meet the challenge of this growth by managing it in ways that support liveable communities and healthy environments. This means that growth will be directed towards key locations with a mix of housing, shopping, recreation and employment – locations that are easily accessible by transit and that encourage walking because destinations are conveniently grouped together. This direction will also contribute to the needs of an aging population by enhancing accessibility to health services and community facilities. Future development, whether in new communities or in already established areas that are suited to accommodating growth, will be compact and efficient from a servicing point of view. [OMB decision #1582, June 17, 2005]

By pursuing a mix of land uses and a compact form of development, the city will be able to support a high-quality transit service and make better use of existing roads and other infrastructure rather than building new facilities.

This approach is based on an underlying commitment to conserving the natural environment and will result in reduced consumption of land and other resources outside of the urban boundary. Wherever growth occurs, it will be managed to ensure that Ottawa’s communities are eminently liveable. This is a commitment that will be realized through a focus on community design and a concern for people and the quality of the spaces they occupy.

The specific policies related to the General Urban Area designation in the following, with details discussed in Section 3.6.1 to follow:

The General Urban Area designation permits the development of a full range and choice of housing types to meet the needs of all ages, incomes and life circumstances, in combination with conveniently located employment, retail, service, cultural, leisure, entertainment and institutional uses. This will facilitate the development of complete and sustainable communities. A broad scale of uses is found within this designation, from ground-oriented single-purpose to multi-storey mixed-use; from corner store to shopping centre.

Subject to the policies below, the City supports infill development and other intensification within the General Urban Area in a manner that enhances and complements the desirable characteristics and ensures the long-term vitality of the many existing communities that make up the city.

4.2.2 City’s Growth Strategy

The City’s growth strategy is contained in Section 2.2.2 and emphasizes the importance of intensification opportunities for the Urban Area. This section promotes intensification as a strategy to manage growth for population, housing and employment.

Since the early 1990s municipal governments in the Ottawa area and across North America have promoted intensification as a strategy to manage growth in a sustainable way. In principle this strategy makes the best use of existing services and facilities. It has the least impact on agricultural land, mineral resources and protected environmental areas by decreasing the pressure for urban expansions. Generally, intensification is the most cost-

effective pattern for the provision of municipal services, transit and other infrastructure and supports a cleaner, healthier city. More vibrant, accessible and ‘complete’ communities are more compelling places to live. Communities where residents do not need to drive for everyday activities, where jobs, shopping, recreation and social activities lie within walking, rollerblading or cycling distance have far greater potential for reducing their carbon footprint and their net contribution to many of the negative consequences of our modern lifestyle, such as climate change.

The Zoning Bylaw amendment to a local commercial zone would fulfill employment intensification goals. A definition of employment intensification found in Section 2.2.2 Managing Growth Within the Urban Area are as follows:

Employment intensification means intensification of a property, building or area that results in a net increase in jobs and/or gross floor area and may occur by:

 Redevelopment of existing employment uses at a higher density (e.g. the creation of an office building that replaces a lower-density use on previously developed land), including the redevelopment of Brownfield sites;  Expansion of existing employment uses (e.g. a manufacturing plant expanding its operations on site);  Infilling of vacant or underutilized land within employment areas;  Replacing uses with a low number of employees with uses having a higher number of employees.

The relevant policies found in Section 2.2.3 Managing Growth Within the Urban Area are as follows:

Policies

1. All intensification of land uses will occur in accordance with the criteria set out in Section 2.5.1. Where the zoning by-law permits the intensity of use, the focus will be on the design and the extent to which the design can contribute to compatibility. Where a zoning by-law amendment is required, the appropriateness of the scale of development will be evaluated along with the design and its compatibility.

2. Most new urban development is directed to Developing Communities, Mixed-Use Centres, Mainstreets, Employment Areas, Enterprise Areas and the Central Area. Policies specific to each of these designations are found in Section 3 of this Plan.

3. The City supports intensification and infill development throughout the urban area, including areas designated General Urban Area. The City will promote opportunities for intensification and infill in the following cases, provided that all other policies in the Plan are met: a. Lands within 600 metres of future or existing rapid-transit stations with potential to develop as compact, mixed-use and pedestrian-friendly cores; b. Lands that are no longer viable for the purpose for which they were intended, such as older industrial areas, exhausted quarries, or transportation corridors that are not planned

for open space or designated as Recreational Pathways, but does not include lands designated as Employment Area or Enterprise Area where the proposal for intensification or infill would introduce uses not otherwise permitted by this Plan; (School sites are generally not included in this category and will be treated on a site-specific basis); [OMB decision #2649, September 21, 2006] c. Lands where the present use is maintained but the addition of residential uses or other uses can be accomplished in a complementary manner, such as on under-utilized shopping centre sites; d. Lands currently or formerly used as parking lots or other extensive storage purposes; e. Lands where records indicate existing contamination due to previous commercial or industrial use, but which can be made suitable for development if cleaned up.

4. To promote compact, mixed-use development, the City will: a. Investigate financial incentives for residential development within mixed-use projects; b. Strategically review the use of municipally-owned lands, except land zoned for environmental or leisure uses, to facilitate compact and mixed-use development; c. Consider how to reduce the amount of land used for parking, through such measures as reductions in parking standards and the creation of municipal parking structures; d. Partner with others in building commercial and residential development over transit stations, municipal parking structures, and municipal offices and facilities; e. Negotiate an increase in building density in exchange for developing municipal facilities, transit stations, and public cultural facilities.

4.2.3 Infrastructure Policies

The key attributes of the Subject Property that provide significant opportunities for this desired additional permitted uses are associated with the existing road infrastructure, particularly the transportation related access surrounding the site. Exhibit “D” is an excerpt from Schedule E of the OP and illustrates that the Subject Property, is located along Major Collector classification. This Subject Property is located adjacent to and well served by an existing Major Collector route. The Subject Property proposal to rezone is consistent with the policies for land uses and development along Major Collector roads.

The relevant OP policies are stated below.

2.3.1 – Transportation

A transportation system should emphasize both mobility and accessibility. Emphasizing mobility means providing the transportation facilities (roads, bus routes, etc.) to get people from one part of Ottawa to their destinations in other areas, no matter the distances involved. In contrast, emphasizing accessibility means planning the city to bring people closer to their destinations and making it easier for people to reach jobs, services, education and recreation. [OMB decision #1582, June 17, 2005]

Accessibility also means increasing the range of options open to people who need to travel within the city. Some residents of Ottawa already have access to quality transit, walking and

7 biking facilities, but these transportation options need to be extended to other areas of the city.

This Plan encourages land-use patterns that reduce the need to travel great distances across the city and encourage alternatives to car travel. More compact and mixed-use development throughout developing areas of the city and a stronger series of urban centres to anchor the transit system is essential to achieving the Plan’s transportation goals. [OMB decision #1582, June 17, 2005]

This strategic direction is compatible with the City’s desire to protect and improve the natural environment, as it will reduce the amount of land used for new transportation facilities and decrease air pollution and greenhouse gas emissions from private automobile use. It will also help minimize the disruption of road construction in established communities and help reduce the amount of traffic in our neighbourhoods.

Accommodating the movement of people during the morning and afternoon peak hours is the major transportation challenge for the planning period. However, independent of City actions, some significant changes in travel are anticipated, including increased reliance on communication technologies to replace travel and the extension of peak-period travel over a longer period as the city grows.

A clear objective of this Plan is a substantial increase in the use of public transit and reduced dependence upon automobile use during peak hours. Increasing the percentage of trips by transit from today’s level (2005) of 23 per cent of total passenger trips using motorized modes (transit or automobile) to about 30 per cent by 2031 is crucial to meet growing travel needs. This increase in the share of travel by transit is very ambitious, in that it far exceeds current usage levels for all of the larger urban areas in Canada and the United States. In fact, it is comparable to the levels realized by many European cities. [OMB decision #1582, June 17, 2005]

Despite the focus on increased transit use, there will be a need for on-going improvements to the road infrastructure network. With a 30 per cent modal split in favour of transit, new roads and road widenings identified in the Transportation Master Plan (2008 update) will be still be needed to accommodate projected traffic volumes in 2031.

The rapid-transit network will also be expanded to directly serve much more of the urban area. Complementary measures will also be needed to enhance the relative attractiveness of transit over private automobile use. These measures include controlling parking supply and pricing parking appropriately.

City Council has adopted a Transportation Master Plan (TMP) to implement the policies expressed in this Plan. The TMP identifies the transportation policies, facilities and services that the City intends to put in place over the next two decades in order to meet the travel needs of residents and businesses in Ottawa and to support the development pattern identified in the Official Plan. The TMP policies guide the operation of the City's day-to-day transportation programs and provide a basis for developing the annual and five-year capital and operating budgets. While the TMP does not establish design or operating details, it

identifies the need for separate guidelines that will give detailed support to policy objectives. It has several recurring themes consistent with the Ottawa 20/20 growth management vision, including minimizing costs, minimizing unnecessary travel, minimizing automobile dependence, keeping neighbourhoods liveable, protecting public health and the environment, and making efficient use of current infrastructure and services. [Amendment 14, September 8, 2004] [OMB decision #1582, June 17, 2005]

The Subject Property is located adjacent to an existing On-road Cycling Route. This is illustrated on Exhibit “E” which is Schedule C from the OP. The existing on-road cycling route provides excellent alternative transportation access to and from the site. This is particularly important considering the Bus Rapid Transit does not operate along the portion of Innes Road where the Subject Property is located.

In terms of policies for the provision of cycling, the follow policy found in Section 2.3.1 of the OP is relevant;

Cycling

12. When undertaking or reviewing comprehensive land-use planning studies, such as community design plans (see Section 2.5.7), the City will require that emphasis be placed upon creating environments highly favourable to cyclists.

13. The City will require, where feasible, that all new development or redevelopment provide cycling facilities in accordance with the policies of Section 4.3. For example, bicycle parking spaces will be located in highly visible and lighted areas, sheltered from weather if possible.

14. In the construction or reconstruction of transportation facilities (roadways, bridges, transit stations, etc.) and public buildings (community centres, libraries, etc.), the City will ensure, to the extent possible, the provision of facilities to address the needs and safety of cyclists.

15. The City will protect corridors for and develop the network of major urban cycling routes identified on Schedule C. Schedule C includes those routes identified in the Ottawa Cycling Plan and select routes shown in the National Capital Commission’s study, Pathway Network for Canada’s Capital Region. As illustrated on Schedule C, the City will accommodate commuter cycling needs on the road network to the greatest extent possible. However, the network of major multi-use pathways, identified on Schedules I and J, may also be used by commuter cyclists. [Amendment #76, OMB File #PL100206, August 18, 2011]

16. As part of the implementation of policies 15 and 16, the City will identify missing links in the cycling network and develop a program to rectify these discontinuities. [Amendment #76, OMB File #PL100206, August 18, 2011]

17. The City will implement the Ottawa Cycling Plan, which outlines infrastructure requirements and programs to encourage people to cycle such as the expansion of the cycling network in urban and rural areas and the continuance of support for cycling education. [Amendment #76, OMB File #PL100206, August 18, 2011]

18. The City will support cycling through promotion and education initiatives that address issues including, but not limited to, proper driver and cyclist behaviour, safe cycling techniques, awareness of designated cycling routes, and an appreciation of the health and environmental benefits of walking and costs of the private and public travel choices.

The location of the site is relevant to the Multi-Use Pathways and Scenic-Entry Routes (Urban) is illustrated on Exhibit “F” which is an excerpt from Schedule I of the OP. A multi-use pathway system provides greater connection to and from the site.

6.0 - Multi-Use Pathway Plan

A multi-use pathway system that will accommodate walkers, runners and cyclists will connect and link parks and open spaces within neighbourhoods to the Village Centre and to areas beyond the village (Schedule C). This multi-use pathway system will provide links to Roger Stevens Drive, Prince of Wales Drive and Fourth Line Roads, which have been identified as future cycle routes in the City of Ottawa’s draft Cycling Plan. It will also tie into the rural major recreational pathways identified in Schedule J of the Official Plan for the City of Ottawa.

There are few public pathways in North Gower; however, there are a number of informal pathways on private property used by residents. These can range from well-beaten trails beside hedgerows located on the edge of active farmland to informal driveways. There are many opportunities to provide a multi-use pathway system across and along the shore of Stevens Creek. To implement the entire system, pedestrian bridge crossings will be required across the Creek and associated drains.

Most of the multi-use pathway system is located in the village. Future pathways have also been identified linking residents on McCordick Road, Third Line Road and Stratton Drive, who are part of the “greater” North Gower community to the village.

New sidewalks have also been identified throughout the village and form part of the pathway system by interconnecting existing sidewalks and future pathways. In one case, a sidewalk extension on Church Street would not only complete a pathway circuit, but would also create a safer pedestrian environment for children walking to school from nearby neighbourhoods. Improvements to sidewalks will also benefit transit riders since they all start and end their trip as pedestrians.

It should be noted that while pedestrians will have access to both sidewalks and pathways, cyclists will be limited to use of the pathway system only since it is the only legal form of off- road facilities. On road cycling facilities with signage are proposed for the three arterial roads in North Gower (Roger Stevens Drive, Fourth Line Road and Prince of Wales Drive).

Creation of a public pathway system will be predicated on two processes:

1. The subdivision process whereby the City can identify lands that would be required to be dedicated to the City for a pathway

2. The willingness of property owners to allow public access to their lands since publicly- owned lands are limited to parks and municipal buildings

To date, subdivision applications have been infrequent and it is anticipated that there will not be a significant number of pathways created through this planning process. Residents, possibly through a village-wide association, will need to play a lead role in initiating and implementing the pathway system through their village and beyond.

Only general comments can be made to identify how the Multi-use Pathway Plan should be implemented. The following are some of the criteria in deciding which parts of the Plan should proceed:

1. Landowner agreement to have pathway cross their lands

2. Pathways in core should have priority

3. Complete circuits should be the goal

4. Complete pathways not requiring large capital outlay, such as bridges to cross water courses, should be considered first

The proposed multi-use pathways will be constructed in accordance with City standards. A pathway is typically two metres wide, but a multi-purpose pathway is about three metres wide constructed of asphalt or granular material. A yellow stripe generally runs down the middle of a multi-use asphalt pathway.

The relevant policies for the provision of multi-use pathway for all uses, the following policy found in Section 6.0 of the OP is relevant;

Policies

1. The Multi-Use Pathway Plan shows the conceptual location of new pathways and these may be implemented in the short term through existing farmed areas and along hedgerows. When redevelopment is proposed pathways will be provided within the development.

2. Pathways will be clearly identified to ensure users are aware that the system crosses private lands where the land is privately owned.

3. North Gower’s village rural character should be reflected in the detailed design of the pathway system. This includes entry points to the pathway system, markers, directional signage and possible amenities such as benches and litter containers.

4. The pathway system shall be implemented in a way that maximizes accessibility throughout the entire village and surrounding area.

5. Rideau Valley Conservation Authority approval will be sought during the design phase of pathway construction in the vicinity of the floodplain of Stevens Creek to ensure that the pathways are properly sited and constructed.

Implementation

Pathways

1. The Parks and Open Space Plan and Multi-use Pathway Plan will be consulted during development review so that the proposed parks and pathways are incorporated in development applications in North Gower. The City will seek opportunities to complete the pathway system in consultation with the landowner. In certain situations, existing or proposed sidewalks may complete the pathway links.

2. Priorities for the multi-use pathway system should focus on the Village Centre to benefit as many residents as possible such as: proposed pathway located to the north of the Alfred Taylor facility and proposed pathway linking residents from Craighurst Drive to Roger Stevens Drive.

3. Residents, in consultation with City staff, could initiate discussions with landowners as a start to building the pathway system.

Sidewalks

1. The City will consult the list of sidewalk extensions for inclusion in any future road works.

1. Implementation priorities for proposed sidewalks should focus on the issue of safety. The first priority should focus on creating a sidewalk from the Farmstead Ridge neighbourhood to walk to the North Gower – Marlborough Public School on Church Street. Children are currently bussed a few blocks to school since there are no sidewalks along this portion of Church Street. A sidewalk would enable these children to walk to school safely. Other priorities include creating sidewalk connections within the Village Centre, such as on Perkins Drive, Roger Stevens Drive from the farmers market to just west of the Old Co-op.

4.2.4 General Urban Area Policies

The General Urban Area designation is one of the key designations within the City to not only direct growth to the urban area where services already exist but also create liveable communities. The purpose and objectives associated with this designation are described as follows:

Growth will be managed in ways that create complete communities with a good balance of facilities and services to meet people’s everyday needs, including schools, community facilities, parks, a variety of housing, and places to work and shop.

The associated policies are found in Section 3.6.2 as follows;

1. General Urban Area areas are designated on Schedule B. The General Urban Area designation permits all types and densities of housing, as well as employment, retail uses, service, industrial, cultural, leisure, greenspace, entertainment and institutional uses.

2. The evaluation of development applications, studies, other plans and public works undertaken by the City in the General Urban Area will be in accordance with Section 2.5.1 and Section 4.11. 3. When considering a proposal for residential intensification through infill or redevelopment in the General Urban Area, the City will:

a. Recognize the importance of new development relating to existing community character so that it enhances and builds upon desirable established patterns and built form;

b. Apply the policies of Section 2.5.1 and Section 4.11;

c. Consider its contribution to the maintenance and achievement of a balance of housing types and tenures to provide a full range of housing for a variety of demographic profiles throughout the General Urban Area;

d. Assess ground-oriented multiple housing forms, such as duplex, triplex and fourplex, as one means of intensifying within established low-rise residential communities.

4. Major Urban Facilities are permitted in the General Urban Area in accordance with Section 3.6.7.

5. The General Urban Area permits uses that may generate traffic, noise or other impacts that have the potential to create conflicts with the surrounding residential community. These types of uses are often large and serve or draw from broader areas. The City will ensure that anticipated impacts can be adequately mitigated or otherwise addressed. Such uses will be directed to:

a. Locations along the rapid-transit system, or an arterial or major collector road with sufficient capacity to accommodate the anticipated traffic generated and where frequent, all-day transit service can be provided;

b. Suitable locations on the perimeter of, or isolated from, established residential neighbourhoods. In this regard, existing or proposed building orientation, massing and design, and the presence of mitigating circumstances such as distance, changes in topography, or the presence of features such as significant depths of mature forest may be taken into account.

6. Throughout the General Urban Area, the City will encourage the provision of a variety of small, locally-oriented convenience and service uses that complement adjacent residential land uses, and are of a size and scale consistent with the needs of nearby residential areas. The City will ensure that these uses:

a. Are compatible and complement surrounding land uses, and can be developed in accordance with Section 2.5.1 and Section 4.11;

b. Are conveniently located with respect to concentrations of residential development and provide direct access for pedestrians and cyclists from adjacent residential areas;

c. Are permitted to cluster with other community-oriented uses, such as parks, pedestrian linkages, community centres or leisure facilities, in order to facilitate interaction among residents and contribute to a sense of community;

d. Are situated to take advantage of pedestrian and cycling patterns;

e. Are of a size and scale that will not result in the attraction of large volumes of vehicular traffic from outside the immediate area.

4.2.5 Compatibility and Design Policies

The Subject Property and the building layout will remain unchanged. Objective criteria that can be used to evaluate compatibility of development applications include: height, bulk or mass, scale relationship, and building/lot relationships, and the distance between buildings. An assessment of the compatibility to permit additional uses such as a retail store within an existing building would not create a negative impact with its surroundings.

Section 4.11 sets out policies that must be respected when the municipality is reviewing a development application. The following are the relevant introductory remarks from this section;

At the city-wide scale, issues of compatibility are addressed in the Official Plan through the appropriate designation of land and associated policies that direct where and how certain categories of land use should be permitted to develop. Locational policies are therefore required in order to direct uses that have the potential to generate negative impacts to appropriate locations, most typically at the periphery of residential neighbourhoods. It is recognized that because land use designations such as General Urban Area, Mainstreets and Employment Area contain broad use permissions, it will be necessary for the zoning bylaw to establish more specific permitted use lists and development regulations within areas and on individual sites in a manner that achieves compatibility among proximate uses and built forms.

At the scale of neighbourhoods or individual properties, issues such as noise, spillover of light, accommodation of parking and access, shadowing, and micro-climatic conditions are prominent considerations when assessing the relationships between new and existing

development. Often, to arrive at compatibility of scale and use will demand a careful design response, one that appropriately addresses the impact generated by infill or intensification. Consequently, the issue of ‘context’ is a dominant theme of this Plan where it speaks to compatibility and design.

Infill development may occur virtually anywhere in the city. Infill generally occurs on a single lot or a consolidated number of small lots, on sites that are vacant or underdeveloped. The resulting development may be similar in use and size with adjacent uses, in which case it is generally straightforward to design the infill to be compatible with-or fit well with-its surroundings. Reference to City Council-approved design guidelines addressing infill housing provide guidance in this regard.

We have examined each criteria found in Section 4.11 and find that there will be no negative impact with the introduction of LC6 uses into the existing building. When a redevelopment takes place that adds floor area to the existing building, the requirement for a site plan control application will be the tool to investigate any impacts from that redevelopment.

4.3 City of Ottawa Zoning By-law

The Subject Property is presently zoned I1E[469] under the City’s Comprehensive Zoning By-law 2008-250. This is a Minor Institutional Zone with Exception 469 (By-law 2011-124) which permits the use of a medical facility. This is shown on Exhibit “G” which is an excerpt from the Zoning By-law mapping. The exception was added to permit a medical facility through an anomaly bylaw amendment in 2011 when it came to light that the previous zoning permitted a medical clinic. Prior to 2008, the lands were zoned under the former Gloucester Zoning By-law which permitted a medical clinic on the Subject Property. The introduction of By-law 2008-250 by way of harmonizing the former Township By-laws considers dispensaries, drugstores, pharmacies to be retail use but had inadvertently removed medical facility as a listed permitted use on the subject property.

The surrounding zoning on the south is R3 and LC6, R2 to the north, R3, I and LC to the east and the adjacent lot to the west is LC6.

The stated purpose of the Minor Institutional zoning is to;

(1) permit a range of community uses, institutional accommodation and emergency service uses to locate in areas designated as General Urban Area or Central Area in the Official Plan; and (2) minimize the impact of these minor institutional uses located in close proximity to residential uses by ensuring that the such uses are of a scale and intensity that is compatible with neighbourhood character.

The permitted land uses in the I1E zone contains a fairly extensive list of institutional types uses. The permitted uses are as follows:

 community centre  community garden  day care  emergency service  group home  library  museum  municipal service centre  one dwelling unit ancillary to a permitted use  park  place of assembly  place of worship  recreational and athletic facility  residential care facility  retirement home  retirement home, converted  rooming house  rooming house, converted  school  shelter  sports arena  training centre

The performance standards include the following provisions from Table 189 and are as follows;

I II ZONING MECHANISMS PROVISIONS (a) Minimum lot area No minimum (b) Minimum lot width No minimum (c) Minimum front yard and corner side yard setbacks 3 m (d) Minimum interior side yard (i) from a residential zone (i) minimum from a residential setbacks zone is 1 metre per metre of building height to a maximum of 10 metres (ii) any other zone 1.0m (iii) other cases No minimum (e) Minimum rear yard (i) abutting a street 5 m setbacks (ii) for a non-residential use 7.5 m building or a mixed residential / non-residential use building, from that portion of a rear lot line abutting a residential zone (iii) for a residential use 7.5 m building

(iv) other cases No minimum (f) Maximum building height 18m (g) Maximum floor space index 1.0 (h) Minimum width of (i) abutting a street 3 m landscaped area (ii) abutting a residential or 3 m institutional zone (iii) other cases No minimum

The parking requirements for the current uses within the existing building on site are found in Table 101, row (bo), Column IV as follows:

Minimum Number of Parking Spaces Required Land Use II III IV V Area A on Area B on Area C on Area D on Schedule 1 Schedule 1 other Schedule 1 Schedule and MC Zone than MC Zone at (Suburban Area) 1 (Rural at Tunney’s Tunney’s Pasture Area) Pasture (Inner City Area) (Central Area) ZONE RELATED (bo) Medical Facility 0.75 per 4 per 100m2 of gross floor area 100m2 of gross floor area

A retail store is not a listed permitted use for I1E zoning, therefore a change to LC6 zoning would be required. According to the Owner, and based on air photo interpretation, the Subject Property has a total of 55 existing parking spaces. The single storey building on the Subject property has a gross floor area (as defined in the Zoning Bylaw for parking calculation purposes) of 507.6 square metres according to the Owner’s rent roll. The minimum parking requirement for the permitted medical facility use is 20 parking spaces (4.0 spaces per 100m2 of gross floor area).

An examination of the parking requirements for current and some of the typical uses within the LC6 zone is based on the following provisions taken from Table 101, Column IV;

I Minimum Number of Parking Spaces Required Land Use II III IV V Area A on Area B on Area C on Area D Schedule 1 Schedule 1 Schedule 1 on and MC Zone other than MC (Suburban Area) Schedule

at Tunney’s Zone at 1 (Rural Pasture Tunney’s Area) (Central Area) Pasture (Inner City Area) ZONE RELATED (i) LC Zone: for the following None None as per use - related not uses in the LC Zone: bank parking rates applicable machine, convenience store, below day care, municipal service centre, personal service business, retail food store, retail store and service and repair shop retail use on the ground floor of a N/A a retail use requires no building parking spaces for the first (OMB Order, #PL080959, issued 150 m2 of gross floor area November 28, 2012) and 2.5 per 100m2 of gross floor area over 150m2.

(bo) Medical Facility 0.75 per 4 per 100m2 of gross floor 100m2 of gross area floor area

(ck) Restaurant None 3 for first 50m2of 10 per 100m2 of gross floor (cl) Restaurant- Fast Food (By- None gross floor area area law 2011-124) plus 10 per 2 (cm) Restaurant- Full Service None 100m of gross 10 per 100m2 of gross floor floor area over area 50m2 of gross floor area (cn) Restaurant- Take Out None 1.5 for first 5 per 100m2 of gross floor 50m2 of gross area floor area plus 5 per 100m2 of gross floor area over 50m2 of gross floor area (co) Retail Food Store None 2.5 per 100m2of 3.4 per 100m2 of gross floor (cp) Retail Store gross floor area area

The following are several examples of potential minimum parking requirements in a LC6 zone if a variety of uses are introduced. The calculation is based on one unit (148.5m2, that being the

18 largest unit within existing building) while the remaining gross floor area maintains a medical facility use (456.5m2).

 Retail Store (3.4 spaces per 100m2 of gross floor area) – 17 parking spaces required.

 Retail use on the ground floor of a building (requires no parking spaces for the first 150 m2 of gross floor area and 2.5 per 100m2 of gross floor area over 150m2) – 9 parking spaces required.

 Daycare (2 spaces per 100m2 of gross floor area) – 10 parking spaces required.

 Library (2.5 spaces per 100m2 of gross floor area) – 13 parking spaces required.

 Restaurant (10 spaces per 100m2 of gross floor area) – 51 parking spaces required.

The purpose is to demonstrate the Subject Property will be able to meet potential parking demands if a variety of uses are introduced. Any combination of the above uses would likely still comply with the existing/approved 40 parking spaces. In the event that the entire building was to be converted to a restaurant, the minimum parking space requirement would be 51 parking spaces. This would require an application for site plan control application to address the legalization of the additional parking. However, the applicants have not expressed an interest in a restaurant use at this time.

As illustrated above, the introduction of a retail use for a portion of the existing structure on the Subject Property will not require a site plan control application. The current parking and loading on the Subject Property meets the minimum bylaw requirements as shown below.

Loading requirements are based on the following provisions taken from Table 113A and related to any individual uses within the building;

I Minimum Number of Vehicle Loading Spaces Required per Square Land Use Metres of Gross Floor Area II III IV V VI VII VIII IX Less 350-999 1000- 2000- 5000- 10000- 15000- 25000 than 350 m2 1999 m2 4999 m2 9999 m2 14999 24999 m2 and m2 m2 m2 over (a) Heavy 0 1 2 3 industrial use, light industrial use, truck transport terminal, warehouse, hospital, museum, place of worship,

19 post secondary educational institution, school, sports arena, theatre (b) Office, 0 1 2 research and development centre, except in the TM Zone (see 113(4) above) (c) Retail food 0 1 2 store, retail store, shopping centre, except in the TM Zone (see 113(4) above) (d) All other non- 0 1 2 residential uses, except in the TM Zone (see 113(4) above)

Land uses listed under all other non-residential uses require a minimum loading space of 1 for a gross floor area of 350-999m2. Land uses listed under retail store require no loading space for a gross floor area of 350-999m2. The current Subject Property is in compliance with existing zoning bylaw requirements.

Landscaping provisions are taken from Table 110 and are as follows;

Minimum Required Width of Landscaped Buffer III I II IV For a parking lot Location of For a parking lot For a parking lot containing more than Landscaped Buffer containing 10 or containing 100 or 10 but fewer than 100 fewer spaces more spaces spaces (a) Abutting a street 3 metres (b) Not abutting a None 1.5 metres 3 metres street

Since the subject lands were developed prior to the establishment of Bylaw 2008-250, it is assumed that the site currently enjoys legal non-complying rights as is. Having said that, there is generous landscaping along the east and south edges of the parking lot.

4.3.1 Proposed Zoning

It is envisaged that the Subject Property would be rezoned from I1E[469] to LC6 designation, similar to the adjacent property to the west. An amendment to the existing zoning to permit retail use will be required. As such, the existing use of a medical facility on the Subject Lands would continue to be permitted as it is a listed permitted use in the LC6 zone.

The stated purpose of the LC – Local Commercial Zone is to:

(1) allow a variety of small, locally-oriented convenience and service uses as well as residential uses in the General Urban Areas and in the Residential Character Areas of the Central Area designation of the Official Plan; (2) restrict the non-residential uses to individual occupancies or in groupings as part of a small plaza that would meet the needs of the surrounding residential areas; (3) provide an opportunity to accommodate residential or mixed uses development; and (4) impose development standards that will ensure that the size and scale of development are consistent with that of the surrounding areas.

The permitted land uses in LC6 subzone contains an extensive list of commercial types of uses. The permitted uses are as follow:

 community gardens  community health and resource centre  convenience store  day care  drive through facility  gas bar  library  medical facility  municipal service centre  office  personal service business  place of worship  restaurant  retail food store  retail store  school

The list of permitted uses for I1 – Minor Institutional Zone is very similar to the list of permitted uses for LC6 Subzone – Local Commercial Zone. However, LC6 Subzone permits the use of a retail store which would allow for a pharmacy on site. The adjacent property to the west is an interior lot and is currently zoned LC6, therefore it should be considered appropriate zoning for the lands being a corner lot with convenient and controlled access.

5.0 Technical Studies

There are no technical studies required through the formal pre-application consultation meeting held on November 28, 2013.

6.0 Planning Analysis

6.1 Conformity with the Provincial Policy Statement

The Subject Property is within a Settlement Area as defined in the PPS. Settlement Areas are intended for the concentration of more intensive land uses within the Province of Ontario. Built up areas are intended to accommodate growth based on densities and a mix of land uses which effectively use land and resources, and are appropriate for, and efficiently use, the infrastructure which are planned or available. Furthermore, the PPS indicates that appropriate development standards should be promoted which facilitate intensification.

The change in zoning to that which is enjoyed by other lands within close proximity of the Subject Property, including the adjacent property to the west, would fulfill the policies as they promote the efficient and more intensive lands uses for serviced lands within Settlement Areas that are well serviced by existing infrastructure.

Intensification is currently central in the ways the Province anticipate growth and the Provincial Policy Statement dictates the terms on which intensification can occur. The Statement establishes that planning authorities should direct growth and intensification to existing or suitable areas that can accommodate projected needs. In the spirit of consolidation of the city, these designated growth areas are to be located near existing built-up areas, infrastructure and public services facilities.

Finally there are no specific environmental considerations arising out of the proposed zoning bylaw amendment that would offend the PPS.

6.2 Conformity with the Official Plan

The Official Plan strives to direct significant growth to areas that are located at key areas of the City. The change of zoning to Local Commercial of the Subject Property is such an area.

The key policies associated with the General Urban Area designation that promote intensification and complete communities are found in Sections 3.6.1, 3.6.2 and 4.2.3. The City’s growth management policies that support the intended zoning amendment for the Subject Property are found in Section 2.2.2 and 2.2.3.

The Subject Property is located adjacent to an On-road Cycling Route within the Primary Urban Cycling Network. The key policies associated with cycling and multi-use pathways and scenic-

22 entry routes are found in Section 2.3.1 and 6.0. The City of Ottawa recognizes the Subject Property to be located along a Major Collector.

The proposed zoning amendment can achieve the standards set out by compatibility and design. The previous discussion illustrated how the existing building will have no building layout changes except for the Tenant to install large windows.

The proposed additional permitted use is consistent with and promotes the goals and objectives of the City of Ottawa’s Official Plan in that the proposal is located within lands designated General Urban Area.

6.3 Conformity with Comprehensive Zoning By-law

An amendment to the Zoning By-law is required for the Subject Property. All of the “performance” standards are complied with the intended introduction of the retail store in a portion of the existing structure. The present zoning for the Subject Property is not adequate for the integration of retail use.

No site specific exceptions would be required and the approved on-site parking is sufficient to address all of the permitted uses in the LC6 zone except if the entire building was to be converted to a restaurant. That being said, additional on-site parking is available but would require municipal approvals to legalize it. Pre-application feedback indicated that this would be a relatively straight forward site plan control application approvals process. The current parking standards associated with the I1E zone are appropriate within a LC6 zone.

7.0 Locational Attributes

The Subject Property is found amongst a diverse mix of land uses. The Subject Property is located within an existing built up area. The proposed additional permitted use will utilize existing infrastructure, transit and is in close proximity to existing retail thereby promoting walking, cycling and the reduced dependence upon the automobile.

The location of a pharmacy should be strategically located to support existing medical facilities and an existing clientele in the immediate area and serves the surrounding local community. The proposal on the Subject Property takes advantage of existing municipal services and public transit without the need for expansion as it is located within an urbanized area. The existing one storey building that would contain the additional permitted use is well removed from an adjacent land sensitive lot line.

8.0 Summary and Conclusion

 The proposed zoning bylaw amendment for the Subject Property is consistent with the PPS in that it reinforces the efficient use of land and full range of uses in settlement areas.

 The redevelopment of the Subject Property is consistent with the Official Plan in a number of ways, from the City’s Growth Management Strategy, to the General Urban Area designation, through to the specific Local Commercial policies.

 The current zoning I1E[469] recognize the existing medical facility but does not allow a pharmacy. The Subject Property shares many of the same attributes of the adjacent property to the west that is currently zoned LC6.

 The site has positive locational attributes such as at the periphery of a residential neighbourhood and at a corner of a major collector and local street, adjacent to similarly zoned lands and land uses, and is ample in size to contain all of the required elements in a unobtrusive manner to adjacent sensitive land uses.

 The current zoning for the Subject Property will stifle and inhibit growth that is expected through the Provincial and Municipal planning tools if the I1E zoning remains.

 The proposed zoning to a LC6 zone would encourage and make possible more intensive development in an area where sufficient infrastructure currently exists.

 The current approved parking area is in compliance with the City’s Minimum Parking Space Rates.

 The proposal to add permitted uses would be consistent in developing and implementing policies that direct growth to areas within settlement boundaries, with intensification strategies in order to maximize existing infrastructure

It is therefore our professional land use planning opinion that the application for zoning bylaw amendment should be supported by City Council as it will assist in permitting a desirable outcome for the Subject Property more in keeping with the Provincial and the City’s Official Plan and land use planning policies.

9.0 Draft Bylaw Amendment

The following are the details of the required Zoning Bylaw Amendment:

1. The Subject Property known as 2575 Innes Road as shown on Exhibit “A” be rezoned from I1E[469] – Minor Institutional Subzone E Exception 469 to LC6 – Local Commercial Subzone 6.

Prepared by;

Bill Holzman, RPP, OPPI December 10, 2013 President Holzman Consultants Inc.

Exhibit “A” Aerial Location Map

2575 Innes Road

Ottawa, Ontario Holzman Consultants Inc. December 2013

Exhibit ‘B’ Plan of Survey

2575 Innes Road

2575 Innes Road Ottawa, Ontario Holzman Consultants Inc. December 2013

Exhibit ‘B-1’ Plan of Survey

2575 Innes Road

2575 Innes Road Ottawa, Ontario December 2013 Holzman Consultants Inc.

Exhibit ‘B-2’ Plan of Survey

2575 Innes Road

2575 Innes Road Ottawa, Ontario Holzman Consultants Inc. December 2013

Exhibit ‘C’ City of Ottawa Official Plan Schedule B

2575 Innes Road

City of Ottawa – Key Plan

2575 Innes Road

Ottawa, Ontario December 2013

Holzman Consultants Inc. Exhibit ‘D’ City of Ottawa Official Plan Schedule E

2575 Innes Road

City of Ottawa – Key Plan

2575 Innes Road Ottawa, Ontario December 2013 Holzman Consultants Inc.

Exhibit ‘E’ City of Ottawa Official Plan Schedule C

2575 Innes Road

City of Ottawa- Key Plan

2575 Innes Road

Ottawa, Ontario December 2013 Holzman Consultants Inc.

Exhibit ‘F’ City of Ottawa Official Plan Schedule I

City of Ottawa – Key Plan 2575 Innes Road

2575 Innes Road Ottawa, Ontario December 2013 Holzman Consultants Inc.

Exhibit ‘G’ City of Ottawa Zoning Bylaw 2008-250

2575 Innes Road

2575 Innes Road Ottawa, Ontario December 2013 Holzman Consultants Inc.