1.0 Introduction
This Planning Rationale has been prepared in accordance with the requirements for a Zoning By‐law Amendment (ZBLA) application. The purpose of the rationale is to assess the appropriateness of the proposed development at 200 Lockhart Avenue (and the requested Zoning By‐law Amendment) in the context of the community, the site, existing and planned infrastructure and public policy for change and growth in the municipality. The proposed zoning is outlined in Section 1. The community context and policy analysis are presented in Sections 2 and 3 of this report. The findings of applicable supporting studies and reports are summarized in Section 4. Section 5 provides a rationale in favor of the proposed development.
Site Location
The site is located at 200 Lockhart Avenue in Nepean, south of Richmond Road and east of Woodroffe Avenue. The site location is illustrated on Figure 1 within its wider community context.
Figure 1: Site Location
200 Lockhart Avenue – Planning Rationale, July 2011
Existing Development Overview of Proposal
The site currently accommodates the Carlingwood YMCA. The YMCA is a one (1) storey Claridge Homes is proposing to redevelop the site with an eight (8) storey retirement and building consisting of recreational facilities including a pool and canoe storage for the YCCC residential care facility. The retirement and residential care facility will accommodate 118 canoe club. This YMCA location has been undergoing financial difficulties and has decided to dwelling units and 29 assisted living units. The intent is to provide a home for seniors rationalize its activities and sell the property. The property has been recently sold to requiring different levels of service. The residential care facility units will be located on the Claridge Homes. second floor and will provide housing for seniors who require varying degrees of physical care. The retirement home units are located on floors three (3) to eight (8) and are designed to accommodate seniors with a higher degree of independence. All of the units in the retirement home will be equipped with a kitchenette or a full kitchen and a balcony. The proposed development will include one (1) full level of common amenity space, a library, a game room, a dining room and other facilities located on the ground floor plan as shown on Figure 2.
The proposed Site Plan (Figure 3) provides two (2) raised exterior terraces located in the front and rear yard areas of the building with a total of 31.9% in landscaped area which exceeds that of the YMCA currently on site. The majority of the parking will be contained within an underground parking garage, with visitor spaces offered in a parking courtyard in front of the building. The underground parking facility will be accessed along the southern interior side yard. The Site Plan includes pedestrian links from the building entrances to the municipal sidewalks.
The building design exhibits a vertical element along the main door of the building. High quality masonry veneer (brick and shouldice) will be used as the preferred building material (Figure 4‐1 and 4‐2).
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200 Lockhart Avenue – Planning Rationale, July 2011
Figure 2: Ground Floor Plan
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200 Lockhart Avenue – Planning Rationale, July 2011
Figure 3: Site Plan
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Figure 4‐1: Elevations Plan
Front Elevation / East Elevation Rear Elevation /West Elevation
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200 Lockhart Avenue – Planning Rationale, July 2011
Figure 4‐2: Elevations Plan
South Elevation North Elevation
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200 Lockhart Avenue – Planning Rationale, July 2011
Current Zoning
The site is currently zoned as L1 – Community Leisure Facility Zone. The purpose of this zone is to permit recreational uses that meet the needs of the surrounding community in the General Urban Area, Major Open Space, Mixed Use Centre and Central Area and to impose regulations which ensure that the scale and intensity of these uses is compatible with any adjacent residential uses. Residential uses such as retirement homes and residential care facilities are not permitted under the current zoning.
Required Zoning Amendment
The Zoning By‐law Amendment would rezone the site to the Residential Fifth Density Zone – R5, subzone. The R5 Zone would permit apartment dwellings, mid to high rise as a permitted use and allow a maximum building height of 24.5 m. The ZBLA would also revise, as necessary, other zone provisions that are outlined at the end of Section 3 in this report, including the required parking rate.
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200 Lockhart Avenue – Planning Rationale, July 2011
2.0 SITE CONTEXT
Community Amenities The subject site is located within the greenbelt, in the former City of Nepean. The site fronts on Lockhart Avenue, a local road. The property is located mid‐block, between Sawville Row and Knightbridge Road. Various amenities including parks, schools and daycares are located within close proximity to the subject property. These amenities are within walking The site is within walking distance of Carling Avenue, Richmond Road and Woodroffe Avenue, three (3) arterial distance of the subject site (Figure 5). roads.
Parks and Recreation Centre
1. Woodroffe Park: The subject site is strategically located next to Woodroffe Park, which will provide great views and sun exposure to the residents of the proposed retirement home and residential care facility.
2. Westwood Park: This park is located within a 400 m walking distance.
Library
1. The Carlingwood Branch of the Ottawa Public Library is located within a 300 m walking distance.
Place of Worship
1. St. Martin’s Anglican church is located on the other side of Lockhart Avenue.
Figure 5 : Community Amenities Map 2‐4. Woodroffe United Church, Our Lady of Fatima and the Ukrainian Hall are 400 m walking distance.
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200 Lockhart Avenue – Planning Rationale, July 2011
Commercial Nodes
The subject site is located in close proximity to three (3) commercial nodes (Figure 6):
1. Richmond Road – 500 m walking distance 2. Carlingwood Mall – 300 m walking distance 3. Carling Avenue – 750 m walking distance
Retirement Homes and Residential Care Facilities
There are a number of other retirement homes and residential care facilities in the area (Figure 5):
1. New Orchard Lodge Extendicare 2. Saville Apartments 3. Somerset Towers Apartments
Development on Lockhart
The residential buildings on Lockhart have different building heights:
• Saville Apartments – 7 stories, mid rise • Lockhart and Honeywell Apartments – walk‐up, low rise • Single detached homes – low rise
Figure 6: Commercial Nodes and Senior Housing
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200 Lockhart Avenue – Planning Rationale, July 2011
Public Transit
The site is well serviced by Ottawa’s public transit system (Figure 7). Route 156, a Regular Route, services the subject property and runs 7 days a week in most time periods. In addition, route 16 services Sawville Row approximately 200 m from the subject site. There are a number of Regular Routes running along Carling Avenue and at the Carlingwood Mall, including routes 85, 87, 151, 156 and 174. A peak hour route, route 186, also services Carlingwood Mall. Additional routes run along Woodroffe Avenue and Richmond Road.
Figure 7: Transit Routes
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200 Lockhart Avenue – Planning Rationale, July 2011
3.0 POLICY AND REGULATORY FRAMEWORK
Provincial Policy Statement (2005)
The Provincial Policy Statement (PPS) provides policy direction on matters of public interest The application for the subject lands meets the Provincial policy objectives, as follows: relating to land use and development. Ultimately, the Provincial Policy Statement seeks to influence land use decisions across the province that enhance quality of life and • The proposal increases the supply of housing units geared to the needs of senior sustainability. The Planning Act states that planning decisions “shall be consistent with” citizens; policy statements issued under the Act. Consequently, the proposal is reviewed in relation • The site is located within proximity of a range of services and urban amenities to the Provincial Policy Statement (2005). which reduces barriers for senior citizens; • The project will redevelop and intensify the land uses within an existing urban Part IV of the PPS anticipates the need to plan for current and future needs, and to ensure area that has adequate infrastructure, servicing and transportation capacity to that planning is carried out in a manner that wisely uses and manages resources to deliver accommodate the proposed development. important environmental, economic and social benefits. In support of healthy, liveable and safe communities, the PPS directs that land use planning shall be carried out in a manner City of Ottawa Official Plan (2007, as amended) that: The City of Ottawa Official Plan is the prime policy document governing development on this • Promotes efficient development patterns that contribute to long‐term sustainability on site. The proposal for the site respects and reinforces the guiding principles of the Official a province‐wide basis, as well as in local communities; Plan as follows: • Takes advantage of opportunities for intensification and redevelopment that optimize the use of existing or planned infrastructure and public service facilities; A Caring and Inclusive City • Promotes a compact built form which supports the use of alternative transportation • The proposal increases the supply of housing appropriate for senior citizens with modes and public transit; excellent access to services that respond to their needs; • Accommodates an appropriate range and mix of residential uses and housing typologies • The location of the property supports reduced automobile dependence as a result to meet the long‐term social, health and well‐being requirements of all citizens; and of its proximity to shopping, services and recreational facilities. • Improves accessibility for persons with disabilities and the elderly by removing and/or preventing barriers that limit their full participation in society. A City of Distinct, Liveable Communities • A seniors’ residence will offer residents the opportunity to meet their personal living needs while remaining in the same neighbourhood.
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An Innovative City Where Prosperity is Shared Among All Section 2.5.1– Urban Design and Compatibility • The proposal contributes to the strengthening of the downtown as a vibrant community where people of all ages and life circumstances are able to live; Policies for the General Urban Area designation recognize the importance of reinforcing the • The proposal provides additional housing choice and amenities appropriate for relationships between new developments and existing community character. Recognizing seniors within one of Ottawa’s principal urban neighbourhoods, thus contributing to this character helps to enhance and build upon established development patterns and built enhancements in quality of life. form. Development should relate to existing community character so that it enhances the existing built form, rather than detract from it. Proposed housing types should provide a full A Responsible and Responsive City range of housing forms such as duplex, triplex, mid‐ to high‐rise dwellings which are • The proposal makes use of existing infrastructure by reducing the need to extend encouraged as forms of intensification. infrastructure into undeveloped areas; • A well‐developed network of public transit facilities is accessible within convenient The proposed development will fit quite well in the community context which is walking distance of the site. characterized by various housing forms including mid‐rise buildings and single‐detached housing. Section 2.2 – Managing Growth Section 3.6.1 – General Urban Area The City supports intensification throughout the urban area, including areas designated General Urban Area. Section 2.2 of the Official Plan places a target of approximately 90 per The Official Plan designates the site cent of the City’s growth in population, jobs and housing to be accommodated within the as General Urban Area on Schedule urban boundary in the Official Plan in order to make use of existing infrastructure and B, as shown on Figure 8. The facilities, and to allow for General Urban Area designation permits a wide variety of land uses “a pattern and density of development that supports transit, cycling and walking and a full range of housing types to as viable and attractive alternatives to the private automobile. Altogether, this meet the needs of all ages, incomes strategy has the least impact on agricultural land, mineral resources and protected and life circumstances. The environmental areas, and supports a cleaner, healthier city. This is the most cost‐ principal intent of this designation effective pattern for the provision of municipal services and infrastructure.” is to create complete and sustainable communities. The proposed development supports the land use objectives which promote intensification in the urban area. Section 3.6.1 indicates the City’s support intensification activities within the General Urban Area so long as it is “in a manner that
Figure 8: City of Ottawa Official Plan, Schedule B 12 | Page
200 Lockhart Avenue – Planning Rationale, July 2011
enhances and complements the desirable characteristics and ensures the long‐term vitality Traffic and Vehicular Access • The Transportation analysis confirms that the roads are of the many existing communities that make‐up the city”. The proposed development is adequate to serve the development strategically located close to a network of arterial roads and represents a good opportunity • The proposed development will generate less traffic than the for intensification because it is surrounded by a park to the north, a _ to the west, a _ to the YMCA currently on site south, and a to the east beyond Lockhart Avenue. These surrounding uses are highly • The majority of the parking will be underground compatible to a mid‐rise development. • A one‐way passenger drop‐off loop is accessed from Lockhart Avenue and will distribute the cars across the front of the building avoiding conflict with traffic along Lockhart Section 4.11 –Compatibility • No impacts relating to noise, headlight glare and loss of privacy
on adjacent properties are anticipated Section 4.11 of the Official Plan builds upon the general principles of compatibility outlined Outdoor Amenity Areas • The site does not abut residential zones. As such, there will be in Section 2.5.1 by providing the following evaluative criteria: traffic, vehicular access, no impact on private amenity areas parking requirements, building height and massing, pattern of surrounding community, • Balconies and raised terraces are provided as communal and outdoor amenity areas, loading areas, services areas and outdoor storage, lighting, noise private outdoor amenities areas and air quality, sunlight, microclimate and supporting neighbourhood services. The table Loading Areas, Service Areas, • No outdoor storage is being proposed details how the proposed development satisfies these compatibility criteria: and Outdoor Storage • Loading will be limited to mainly daytime operation in off‐peak traffic hours and will be accommodated off the proposed drop‐ off lane. Building Height and Massing • Lockhart Avenue currently accommodates buildings of similar height and mass, including seven (7) storey buildings approximately 150 m south of the site. The proposed eight (8) storey building will fit well in the surrounding built context. Microclimate • To be addressed through Site Plan Control Pattern of the Surrounding • Lockhart Avenue does not have a consistent pattern of built Community form with buildings of varying heights, setbacks, uses, and
design. Notwithstanding the variable nature of the immediate area, the proposed building will contribute positively to the built form of the area while complimenting other retirement facilities in the neighbourhood. Sunlight • The sun‐shadow analysis shows no significant negative impact on abutting properties (Figure 9). Supporting Neighbourhood • The surrounding area provides a range of supporting services, Services including parks, churches, a library, and commercial uses.
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City of Ottawa Urban Design Guidelines for Low‐Medium Density Infill Housing ● Building Design (2/2) The City of Ottawa has published a series of design guidelines that, as mentioned in the • The raised exterior terrace located in the front yard is a communal area Official Plan (policy 2.5.1), are not to be seen as policy framework and are therefore not for the residents. The residents will provide “eyes on the street” while prescriptive. Design guidelines are to be seen as a tool to promote the City’s Design enjoying this space. This terrace is located on the southern portion of Objectives and guide future development. the front yard, next to the abutting school. The terrace will act as a bridge between generations ‐ school children walking along Lockhart The Design Guidelines for Low‐Medium Density Infill Housing help the City to promote well‐ will be able to interact with residents. designed projects that can contribute positively to neighbourhoods. While recognizing that the guidelines do not apply to all contexts, the guidelines are intended to provide a ● Building Mass and Height framework for the integration of infill in existing neighbourhoods. The proposed ○ Construct at both a residential scale as well as a scale, mass and proportion that development meets the following applicable design guidelines: contributes to the quality of the streetscape (3.2.1) • The design of the proposed building has incorporated several elements, ● Walkways such as the provision of street trees that will contribute positively to the ○ Keep walkways as accessible as possible between the public sidewalk and street oriented development in the surrounding area. private entrances and yards (2.12) ● Building Faces • The Site Plan includes pedestrian walkways along the parking area, ○ 3.3.2 – Allow the front door (the public entrance) to dominate the front façade linking the building to the public sidewalk and providing easy access to as opposed to the garage being dominant (3.3.2) the park • The underground parking garage access is located along the southern interior side yard and does not dominate the building façade and the ● Building Design (1/2) streetscape. The building is designed as an ‘L’ with minimal surface ○ Contribute to the amenity, safety and enjoyment of open spaces by offering parking. The front façade has a total of five doors, three of which are living spaces that face them (3.1.6) located along the portion of the façade facing the front yard raised • The proposed development at eight (8) storey represents an increase in terrace. the number of existing dwelling units that face onto the abutting open ● Architectural Style spaces to the north. This will translate into increased users for the ○ 3.4.2 Achieve a style where the architectural form is rich in detail and enhances Woodroffe Park and will increase the overall safety of the adjacent open public streets and spaces spaces as a result of additional “eyes on the park”. • The building façade will have a vertical element along the main door of the building. High quality material will be used for the façade.
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● Parking and Garages ○ Contain parking internally on the site (4.1) • The majority of the parking will be accommodated in the underground parking structure. ○ Make driveway locations and car storage as discrete as possible to allow for greater amounts of landscaped open space (4.2) • The main site access for the parking garage is proposed along the southern lot line and recessed significantly from the streetscape. The remaining site access and visitor parking area has been minimized relative to the number of parking spaces and will be buffered with street front landscaping.
City of Ottawa Transportation Master Plan
The site is bound by three (3) arterial roads – Woodroffe, Richmond and Carling. Carling has been identified for Future Rapid Transit on Map 4b of Transportation Master Plan. More specifically, it is identified as a Supplementary Train System location. Creating more density Figure 8: Zoning in Surrounding Area along future transit nodes is good planning practice. A zoning amendment is required to enable the site to accommodate the proposed City of Ottawa Zoning By‐law development. As discussed in this report, the proposal is a desirable addition to the existing residential community. The R5 ‐ Residential Fifth Density zone, subzone P. is considered to The subject site is located in a residential community as shown on the Zoning map in Figure be the most appropriate subzone. 8. The proposed development will fit well with the uses in the area.
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The following table outlines the provisions of the R5P zone and the level of conformity of the proposed development.
R5P H(24.5) zone Performance Standard Development Performance Minimum Lot Width 18 61 Maximum Building Height 24.5 24.5 Minimum Front Yard Setback 3 6 Minimum Rear Yard Setback 1.5 to 6 7.5 Minimum Interior Yard Setback, North 1.5 to 6 6 Minimum Interior Yard Setback, South varies 7.5 Minimum Lot Area 540 3,700
Notwithstanding the conformance of the proposed building with the provisions of the R5P subzone, the parking requirement would need to be reviewed. Given the proximity of the proposed development to amenities and to commercial uses, it is anticipated that a parking area complying with the Zoning By‐law would be underutilized. Claridge Homes has been working in the home building industry in the Ottawa region for 25 years and manages a number of Retirement Homes. From its experience, the required 0.5 ratio for retirement home units and 0.25 for residential care facility units will exceed the demand for this facility.
To address this, FoTenn suggests a reduced resident parking rate from 0.5 per dwelling unit to 0.3 for the retirement home units and from 0.25 per dwelling unit to 0.10 for the residential care facility.
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4.0 SUPPORTING STUDIES
A number of independent studies support the proposed development.
Phase 1 – Environmental Site Assessment (Paterson Group) Stormwater Management Report (Novatech Engineering Consultants Ltd.)
Findings: Findings: • The original portion of building currently on‐site was constructed in 1967; • Stormwater discharge from the site will be controlled to less than the allowable 5‐year • Asbestos and lead paint may be present in building pre‐development storm event rate; • The site will be graded such that flows in excess of the 100‐year storm event will be Based on the findings, Paterson Group recommends: conveyed overland to Lockhart Avenue; • Sediment and erosion control measures will be implemented during construction. • An asbestos survey of the existing building; • Lead testing prior to the disturbance of older painted surfaces. Based on the findings, Novatech Engineering Consultants support the proposed development. Transportation Brief (Novatech Engineering Consultants Ltd.)
Findings: • The proposed development will generate approximately 21 trips in the weekday AM Sun‐Shadow Study (DCYSA Architects) peak hour (0.14 per bed), and 33 trips in the PM peak hour (0.22 per bed). • The proposed development will likely generate less trips than the existing development Findings: on‐site • There will be minor impact on the properties located east of the subject site, along Lockhart Avenue and Neepawa Avenue. The impact will be limited to evenings from Servicing Design Brief (Novatech Engineering Consultants Ltd.) September 21st to March 21st, however shadowing during this period will not remain on any one residential property for more than a one hour period aside from the month of Findings: December when shadows are more significant throughout the region in most urban • The proposed development sanitary flows are higher than the flows under the existing contexts. zoning; however, this would have negligible impact on the City’s sanitary sewer system; • The existing watermains in the area are adequate to service this development; the Based on the findings, DCYSA supports the proposed development. proposed development will be serviced by a 150 mm dia. Water service that will connect to the existing 150 mm dia. Watermain on Lockhart Avenue.
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5.0 RATIONALE Proposal is sensitive to its surrounding neighbourhood context In assessing the appropriateness of proposed development and the implementing Zoning By‐law Amendment, it is FoTenn’s professional opinion that the application represents good Evaluation of the proposal against the compatibility criteria in the City of Ottawa Official planning and is in the public interest for the following reasons: Plan and the applicable design guidelines, demonstrates that the building envisioned for the site is compatible with and complementary to its immediate surroundings and the general Feasible in accordance with the technical studies conducted community character. One great advantage of redeveloping this downtown property is that a range of building styles, heights, ages and land uses can be found in the immediate A number of independent studies were completed in accordance with the Official Plan vicinity. Rather than overwhelming or detracting from the character of the area, the requirements; all of the studies prepared support the proposed development and proposal for the site complements and will enhance the existing urban fabric. demonstrate that it is appropriate within the context. Site is appropriate for specific needs of senior citizens Consistent with the PPS As the average age of the Canadian population continues to rise, additional housing that The proposed development is consistent with the Provincial Policy Statement which meets the unique needs and challenges of the senior population will become increasingly promotes efficient and appropriate development on lands within the urban boundary. The necessary. Further, locations such as the subject property that are in proximity to development promotes PPS objectives such as automobile transportation alternatives and community amenities, commercial nodes and transit routes are particularly appropriate and provision of a range of residential uses and housing types. The proposed development will desirable for seniors who have limited automobile access. For these reasons, the proposal achieve a density that efficiently uses available infrastructure while providing a landuse that for the site represents sound land use planning in the public interest. will contribute to the variety of housing in the surrounding area. Represents Good Planning Conforms to the Official Plan Overall the proposed development complies with and furthers several key policy and Provided that proposed development is compatible with its community context, the Official visionary elements prevalent within the applicable Provincial, Municipal, and Community Plan directs that development should be concentrated in areas of the City with established policy framework in that it will: optimize the use of serviced lands within the urban community amenities, roads, transit and supporting infrastructure. In keeping with the boundary, diversify the existing housing stock of a specific area, and promote smart growth broad objectives of theOfficial Plan, locating residential uses in areas that have capacity to objectives (live, work, play). accommodate additional growth ultimately reduces the overall costs of providing municipal services to all Ottawa residents and promotes the use of existing roadways. The proposed development is an infill project that is consistent with the City of Ottawa’s vision for managing growth in the urban area.
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