4. OFFICIAL PLAN AMENDMENT - PARKLAND DEDICATION POLICIES MODIFICATION AU PLAN OFFICIEL - POLITIQUE SUR L’AFFECTATION DE
TERRAINS À LA CRÉATION DE PARCS |
agriculturE and rural affairs
committee and Planning and environment Committee recommendations
(This
matter is subject to Bill 51)
That
Council approve an amendment to the Official Plan regarding parkland dedication
as detailed in Document 1.
Recommandations DU Comité de l’agriculture et des questions rurales et
DU Comité
de l’urbanisme et de l’environnement
(Cette question
est assujettie au Règlement 51)
Que le Conseil approuve une modification
au Plan officiel concernant l'affectation de terrains à la création de parcs,
comme le précise le Document 1.
Documentation
1.
Deputy
City Manager's report, Infrastructure Services and Community Sustainability,
dated 17 February 2009 (ACS2009-ICS-PLA-0042).
Agriculture and Rural Affairs Committee
Comité de l'agriculture et des questions rurales
and /
et
Planning
and Environment Committee
Comité de l'urbanisme et de l'environnement
and Council / et au Conseil
17
February 2009 / le 17 fevrier 2009
Submitted
by/Soumis par : Nancy Schepers, Deputy City Manager/
Directrice municipale adjointe,
Infrastructure
Services and Community Sustainability/
Services d’infrastructure et Viabilité des collectivités
Contact Person/Personne ressource : Karen Currie, Manager/Gestionnaire, Development
Approvals/Approbation des demandes d'aménagement,
Planning and
Growth Management /Urbanisme et Gestion de la croissance
(613) 580-2424 x
28310, Karen.Currie@ottawa.ca
SUBJECT:
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|
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OBJET :
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MODIFICATION
AU PLAN OFFICIEL – POLITIQUE SUR L’AFFECTATION DE TERRAINS À LA CRÉATION DE
PARCS |
That Planning
and Environment Committee and the Agriculture and Rural Affairs Committee
recommend Council approve an amendment to the Official Plan regarding parkland
dedication as detailed in Document 1.
Que le Comité de l'urbanisme et de
l'environnement et le Comité de l'agriculture et des questions rurales
recommandent au Conseil d'approuver une modification au Plan officiel
concernant l'affectation de terrains à la création de parcs, comme le précise
le Document 1.
This Official Plan amendment is required in order for the City to use the 'alternative requirements' identified in the Planning Act and to more clearly describe how parkland requirements will be assessed at the time of development. The 'alternative requirements' allow for a greater land dedication rate where higher density residential development is proposed. This amendment, once adopted will enable the implementation of the Parkland Dedication By-law scheduled to be approved by Council on February 25, 2009.
The Planning Act provides that a municipality
can require parkland to be given to the City as a condition of development. The
Act sets out provisions to determine how much land a municipality may require
in this manner. At the time of adoption of
the Official Plan in 2003, temporary policies related to parkland
dedication were incorporated subject to staff developing a new Parkland
Dedication By-law. In the interim, existing parkland dedication by-laws of the
former municipalities were applied. Due to differences in provisions of former
by-laws, parkland dedication policies have not
been uniformly applied across the city.
A proposal for a new Parkland Dedication By-law was circulated for
public and industry comments in September 2008. That proposal suggested that
the City not only replace the existing by-laws but that the City should also
apply the 'alternative requirements', permitted by the Planning Act, to
higher density residential development.
The Planning Act generally
establishes that the municipality can require the dedication of parkland
amounting to as much as five per cent
of the area of any land being developed or redeveloped for residential
purposes. This parkland is usually required at the time of subdivision or
severance or at the time the land is developed and site plan approval is
required. The Planning Act, in both Sections 42 and 51, which regulate
parkland dedication and lot creation respectively, also permit a municipality
to calculate the area of parkland on a different basis. The different method is
based not on a percentage of the land area, but on the basis of the number of
dwellings being developed. The Act refers to this rate as the 'alternative
requirement'. This allows the municipality to request up to one hectare of land
for every 300 dwellings being developed.
Unlike the rate based upon a percentage of the site area which is fixed
as density increases, the land required by the alternative requirement
increases the amount of land dedicated as density increases. To implement this 'alternative requirement'
the municipality must have policies that address its use in the Official Plan.
The Official Plan amendment recommended by this report has four
purposes:
There are also minor changes proposed including two new policies
that are added to Section 2.5.4, Strategy for Parks and Leisure Areas as
follows:
1.
Identifies that parks should be
designed to accommodate a variety of community needs. This policy was
recommended by a submission on the Parkland Dedication By-law.
2.
Advises that when developing a plan
for a community, where a variety of uses and parkland requirements are
possible, the City will anticipate the park needs based on the most intensive
use of the land that is possible so that sufficient land is set aside for parks
at the planning stage.
The Official Plan amendment changes polices that
apply citywide and the new Parkland Dedication By-law will also apply new
parkland dedication requirements consistently across the city.
There is little change to the parkland dedication requirements for
rural wards of the City. The only exception to this is that the Osgoode and
West Carleton Wards did not have parkland by-laws and now will require parkland
contributions. The proposed Parkland Dedication By-law will require a
contribution of two per cent of the area of land being developed for industrial
and commercial uses and five per cent of the land developed for residential and
other uses. This is consistent with past practice in the rural communities.
The 'alternative requirement' provided for in the Official Plan amendment and the Parkland Dedication By-law will only apply to residential development at urban densities greater than 18 dwelling units per net hectare. These densities are unlikely to occur in rural areas developed with private wells and septic systems.
The proposal for the Parkland Dedication By-law was circulated in September 2008 to Community Associations, architects, developers as well as City Advisory Committees and Departments. That circulation contained an early draft of the Offical Plan amendment. A revised draft amendment was recirculated to Community Associations, Technical Agencies and City Departments. In response to this circulation further submissions were received. A table of the submissions from both the By-law circulation and the circulation of Official Plan amendment is included as Document 2 to this report. Comments supported by staff have been incorporated into the Official Plan amendment proposed in Document 1.
This is a Council-initiated amendment to the City’s Official Plan. As such, the Official Plan amendment is subject to all normal notice requirements and rights of appeal by any person or public body to the Ontario Municipal Board under the provisions of the Planning Act.
If no notice of appeal is filed and the time for filing an appeal has expired, Council’s decision to adopt the amendment will be final and the portion of the Official Plan that has been amended will come into effect on the day after the last day for filing a notice of appeal.
Enactment of this Official Plan amendment will enable Council to subsequently enact the proposed Parkland Dedication By-law, which contains consistent parkland policies for all of Ottawa.
N/A
Document 1 Staff report for the Parkland Dedication By-law
Document 2 Public Submissions
Legal Services to forward the implementing by-law to City Council for adoption.
Infrastructure Services and Community Sustainability Department to prepare and undertake the statutory notification of the Council’s decision.
STAFF
REPORT FOR THE PARKLAND DEDICATION BY-LAW DOCUMENT 1
|
Official Plan Amendment
X Modifications du Plan directeur
To the Official Plan of the City of Ottawa
Land use
Utilisation
du sol
INDEX
THE
STATEMENT OF COMPONENTS
PART A – THE PREAMBLE...........................................................................................
Purpose................................................................................................................................
Location...............................................................................................................................
Basis....................................................................................................................................
PART B – THE AMENDMENT......................................................................................
PART C - IMPLEMENTATION AND INTERPRETATION.......................................
The purpose of this Amendment is to make changes to update the Official Plan policies related to parkland dedication to permit the implementation of a new Parkland Dedication By-law. To do this the Official Plan must clarify the City’s intent to use the ‘alternative requirements’ of the Planning Act and define under what circumstance it will do so.
The Amendment applies citywide.
The City acquires parkland in a number of ways but much of the new parkland is dedicated or funded through the land development process. The legislative authority to require parkland at the time of development comes from the Planning Act.
In order to be able to require parkland dedication the Planning Act requires that the municipality have a Parkland Dedication By-law and appropriate supporting policies in the Official Plan in order to clarify how much land and when parkland will be required. The City currently uses the Parkland Dedication By-laws of a number of the former municipalities. Not all of the former municipalities had Parkland Dedication By-laws and those By-laws that exist:
The City has prepared, consulted on and intends to adopt a new Parkland Dedication By-law. This requires clarification and changes to the current parkland dedication policies in the Official Plan to reflect the requirements of the Planning Act.
The Official Plan of the City of Ottawa is hereby amended by:
1. Amending Policy 3 Section 2.5.4 - A Strategy for Parks and Leisure Areas by adding a new policy at the end as follows:
“d. designed to be
engaging and useful spaces for people across a wide spectrum of age,
socio-economic demographics and recreational interests.”
2. Amending Section 2.5.4 - A Strategy for Parks and Leisure Areas by deleting policies 4, 5 and 6 in their entirety and adding a new policy as follows:
4. To ensure that sufficient land for parks is
set aside when preparing a community design plan, a concept plan or other
higher level planning exercise for an area or community, the City will
determine the park requirements based upon the maximum potential for
development anticipated by the community design plan, concept plan or planning
exercise.
3. Amending Section 4.10 Greenspace Requirements to read as follows and renumbering the existing policies accordingly:
4.10 –
Parks and Greenspace Requirements
The City is committed to providing a range of greenspace throughout urban and rural communities. In particular, the requirements for greenspace (see Section 2.4.5) and for parks and leisure areas (see Section 2.5.4) will apply in the review of development applications.
Policies
Parkland Dedication
1. As a condition of development or redevelopment, the City will acquire land for park or other public recreational purposes through the provisions of the Planning Act, in a way that best meets park and leisure needs of the community. [Former Section 2.5.4 policy 4, modified]
2. The City shall require the dedication of land for parks in an amount not exceeding 2% of the area of land that is developed or redeveloped for industrial or commercial purposes.
3. The City shall require the dedication of land for parks in an amount not exceeding 5% of the area of land that is developed or redeveloped for all other purposes except that the City will calculate the park dedication for residential development or redevelopment at densities that exceed 18 units per net hectare using the ‘alternative requirement’ of 1 hectare for every 300 dwelling units as provided in the Planning Act or some lesser amount based upon this requirement. The Parkland Dedication By-law will identify circumstances when a lesser amount will be considered.
4. The City will determine the parkland dedication for mixed-use development or redevelopment on the basis of the proportion of the site or building occupied by each type of use. When considering a development or redevelopment in which a mix of uses is permitted but the uses have not been finalised, the City will determine the uses that will produce the greatest amount of parkland, in accordance with the Parkland Dedication By-law, for the purpose of determining the amount of parkland to be dedicated. [Former Section 2.5.4 policy 6 modified]
5. Notwithstanding policies 2, 3 and 4 above, parkland dedication requirements for development or redevelopment on land in:
a) the South Nepean Town Centre Secondary Plan: the parkland requirement for residential uses will be determined by policies in that Secondary Plan; or
b) the area of Kanata Lakes defined in the Parkland Dedication By-law: the parkland requirements for all development that is subject to the legal agreement to provide 40% greenspace, will be determined based upon that agreement.
6. Generally, lands dedicated for park purposes will be located within the land area that is being subdivided, developed or redeveloped. However, the City may consider the dedication of land that is not part of the development where it is satisfied that the parkland provides a benefit to the residents of the land being developed and the community as a whole.
7. The City may require payment-in-lieu of the parkland dedication: where there is insufficient land within the development; where the lands to be dedicated are not the right kind or are not located in the best place; or where open space and parkland targets have already been met. Where payment-in-lieu is taken, it will be principally for the acquisition of new parkland or the improvement of existing local, park and recreational facilities accessible to the area being developed. However, the City’s Parkland Dedication By-law will provide for a portion of these funds to be used for park and recreation purposes that are citywide in scale. [Former Section 2.5.4 policy 5 modified]
8. Where a payment pursuant to policy 7 is required, no person shall construct a building on the land proposed for development or redevelopment unless, the payment has been made, or arrangements that are satisfactory to the City for the payment have been made.
9. The Parkland Dedication By-law will identify those uses that will be exempt from parkland dedication requirements, such as development or redevelopment by the Governments of Canada, Ontario or agencies thereof. The Parkland Dedication By-law will also identify and address all other policies listed above.
The
policies of Section 5 of the City’s Official Plan shall apply. The text shown shaded and in square brackets in this amendment is
for information purposes only and does not form part of the associated
policy.
PUBLIC SUBMISSIONS DOCUMENT
2
Comment |
Response |
1.
Domicile Developments Inc.- Opposes the use of any parkland dedication rate that exceeds 5% for
residential uses proposed in the Official Plan particularly in the downtown
where the added cost will make it more difficult to build. |
The proposed
rate will impact downtown development more than development in suburban
locations. The cap of 10% is intended to make this parkland rate more
predictable in the area and less onerous than most other urban
municipalities. |
2.
Resident
-The City should not retain 40% of the cash-in-lieu taken in a district be
used for city-wide park purposes. |
The reason that
a citywide fund is recommended is to ensure that the City has funds to
provide for facilities that benefit more than one district., such as land
acquisition for citywide projects. And examples of this are the existing
Andrew Hayden Park, Petrie Island or the soccer park at 5650 Mitch Owens
Road. |
3.
Resident
-The rate for institutional are too high and will prejudice non-profit
organizations developing institutional uses. The discussion paper did not
provide justification for the increase in the contribution for these uses
being raised from 2% to 5% when these uses provide vital public services
Applicants often request and are given exemptions.
|
The proposed
approach reflected the approach of the former municipal by-laws which all
require 5% dedication. The City of Ottawa has granted exemptions in the past
to some developments. Staff have
reviewed the circumstances and propose to exempt non-profit uses from the
requirement for parkland dedication. |
4.
Resident
-The provisions are too strict and the City should accept lands subject to
occasional flooding as parklands |
Generally if the
lands cannot be developed for other purposes then they are not suited to park
development. This does not preclude the City using flood prone lands in
public ownership for passive recreation purposes. |
5.
Two-acre
rural lots are more expensive to develop than high-density developments in
the urban area and should not have to provide parkland. Instead parkland
should be provided in the Villages.
|
People living on
rural estate lots do contribute to the demand for parks and sports fields in
the rural area and should contribute to the provision of these facilities.
The Staff recommendation is that the City should take cash-in-lieu in this
circumstance and acquire land in or adjacent to villages. |
6.
New
Edinburgh Community Alliance (NECA) - a.
No way to
assess how rates compare to other municipalities. b.
When does
the parkland rate start to apply? c.
Rather than
taking cash in lieu where dedication on site would make the development
unfeasible this group feels that the development should not be approved or
reduced in scale. d.
Will there
be consultation when spending cash-in-lieu funds. e.
When area
based values are used will they be made public |
a.
Table 2
Document 2 attached to the staff report for the Parkland Dedication By-law
identifies the parkland rates for a number of other municipalities. b.
The City
will apply the rates upon adoption of the parkland dedication by-law. c.
Most
situations where develop becomes not feasible is where the taking of parkland
from the site reduces the developable area to the point where it is no longer
economical to develop the land d.
Spending
cash-in-lieu funds requires project and budget approval by Council to access
the cash-in-lieu account. The community can contribute to determining how
these funds are used within districts by contributing to the identification
and prioritization of city projects through the usual budget process. e.
An area
based rate for parkland is only proposed for rural severances at this time.
Where an area based rate is to be used elsewhere a change to the Parkland
Dedication By-law will be required and the area rate will be identified in
the City’s schedule of fees and charges. |
7.
Plant Pool
Recreation Association - a.
Communities
that currently suffer a parkland deficit should retain 100% of their
cash-in-lieu while communities that have a parkland surplus should have their
cash-in-lieu allocate to citywide use.
b.
Allow
off site dedication to be used to provide parkland in communities with a
current parkland deficit. c.
Why
not have much smaller districts |
a.
The City’s
Official Plan states that cash-in-lieu “…will be for the acquisition of new
parkland or the improvement of existing local-park and recreational
facilities accessible to the area being developed.” As communities grow, they
all generate the need for recreational space. b.
The essence
of the above policy is that the dedication land or cash should be accessible
to the development. This approach would need the agreement of both
communities since a district approach is proposed. c.
The smaller
the district the less cash-in-lieu is amassed and potential to acquire land
is reduced. |
8.
Hintonburg
Community Association - a.
Waiving of
parkland dedication and particularly waiving cash-in-lieu should not be
considered in the older inner-city residential neighbourhoods. b.
The
Districts recommended by staff are too large and recommend that wards be
used. c.
Suggest
that all parks be dedicated. Since some land that the community considers a
park may in fact not be a dedicated park.
|
a.
The
proposed by-law does not recommend waiving of parkland requirements,
including cash-in-lieu, for any residential development with the exception of
accessory apartments and non-profit projects. b.
The
districts proposed in the draft by-law are: §
intended to
mirror as closely as possible the Development Charges collection areas; and §
to be large
enough to incorporate sufficient development or redevelopment to generate
funds that will be usable within the district. Fragmenting the funds into
many small districts can detrimentally restrict opportunities to acquire
land. c.
Only parks
that are provided through the development process are ‘dedicated’. The former municipalities often acquired
land for parks and also may have converted other City-owned land to
greenspace. These greenspaces cannot be ‘dedicated’ but many are zoned as
open spaces and like any public land must go through a public process if they
are declared surplus. Vacant land, in private ownership, is also frequently
viewed by the community as park while they are not. At the time of
development the City will assess the ability to protect a portion of these
lands for park purposes. |
9.
Ottawa
Catholic School Board - The Board supports the exemption from parkland
dedication given to schools. |
The proposed
By-law does not require parkland dedication from schools. |
10.
Resident -
The requirement for the provision of parks in association with commercial
developments is supported |
The proposed
by-law will require parkland for commercial and industrial development. The
provision of parks in this area will be contingent upon opportunities and
community design plan allocation of parks. |
11.
Resident
-The City should provide incentives to developers to provide more than 5%
parkland. |
Incentives can
be considered but were not part of the project t o present a parkland by-law.
The proposed by-law requires higher rates of parkland to be provided as residential
densities increase. |
12.
Ottawa
Community Gardening - a.
Believe
that Community Gardens should be identified as a priority land-use with
access to parks. b.
Add to the
location and functional requirements for parks that they be engaging and
meaningful to a wide demographic c.
For
residential apartments, that parkland be provided in the direct vicinity of
the development and that community garden space be a priority d.
If the City
is to exempt non-profit housing projects from parkland dedication then City
should provide alternative funding for park delivery to avoid social
stratification of parkland access. |
a.
The City’s
Zoning By-law already permits community gardens in City parks. The merits of
providing space for community gardens should be weighed with the other
competing interests for park space. b.
Policies to
this effect are proposed in the Official Plan Amendment at Document 3. c.
The ability
to meet this objective varies depending upon where development is occurring
and the availability of lane in the vicinity. If parkland cannot be provide on the site it is often difficult
to guarantee that parkland will be provided in the immediate vicinity. It is
City policy to attempt to provide parkland or enhance facilities that can be
used by the residents of the development. d.
Agreed.
This report does not examine the other sources of parkland funding. |
13.
Resident
-The Rural Pathways Plan should be used as an additional guideline for
determination of future park locations |
The Parkland
Dedication By-law does not dictate the location of parks it only establishes
when and how much parkland dedication will be required. The Rural Pathways
Plan was prepared by representatives of a number of rural communities and was
endorsed by Council. The document has assisted in the preparation of
community design plans for villages and was considered in the preparation of
the City’s Cycle Plan. Providing
connectivity between city parks remains an objective of the Official Plan. |
14.
Resident -
Disagree with any cash-in-lieu being allocated to a city wide account to be
administered by the City staff and Council because of a bias towards urban
areas |
Staff recommends
that 40% of the cash collected will be used to contribute to park projects
that serve multiple districts or the city as a whole. Given the need for
larger scale recreational areas such as multi filed soccer and ultimate
frisbee parks, it is necessary to protect funds to enable the purchase of
sufficient land. These purchases can involve millions of dollars and no one
district will accumulate such large reserves. |
15.
Resident -
100% of the cash-in-lieu collected in the rural districts should only be
spent in the nearest village to the development. |
While the
provision of parks in villages is more efficient in terms of population
density and proximity to other services the City must also provide facilities
for a highly dispersed rural population as well as higher order parks are
discussed in 14 above. |
16.
Urbandale
Corporation a.
The City’s
approach should consider existing agreements made with developers that
broaden the definition of parkland and that may no longer be considered once
the by-law is adopted. These should be acknowledged in the Official Plan
amendment. b.
It appears
that the parkland for apartments would be 10% in every case. How will
parkland be calculated? c.
Will the
City refund a developer / landowner if the maximum density is not achieved
where parkland is assessed using the zoning of the land? d.
What
scenario would have development occurring without a Planning Act approval? e.
For area
based rates will there be a public approval process for the area used? f.
How was the
percentage for the city wide account established?. g.
Institutional
uses should fall into the same category as commercial or industrial. h.
Parkland
should include natural environment areas. |
a.
The
intention is to recognise existing agreements within the Parkland Dedication
By-law. b.
Parkland
for apartments will be calculated based upon the number of units provided at
the rate of 1hectare per 300 units. If the resulting area of land exceeds 10%
of the site area, the dedication or cash-in-lieu will be taken as 10% of the
site area or value. For many large
apartment projects this will be the contribution. Smaller projects may
contribute less than 10%. c.
Where
parkland needs to be assessed at the subdivision stage and the owner does not
provide information on the potential development the parkland requirement
will be estimated based upon the zoning.
If the ultimate development does not meet the estimated density the
City will compensate the land-owner in the same manner as it now does. d.
Dwellings
on existing lots and some additions are rated small enough not to warrant
site plan approval. e.
An area
based rate for parkland is only proposed for rural severances at this time.
This rate will be established using semi annual appraisals undertaken by the
City. Currently each site is subject to an individual appraisal. Setting a
flat rate will provide clarity to the applicant, reduce the administrative
process required and eliminated the current appraisal fee of $500 +GST. Where an area based rate is to be used
elsewhere a change to the Parkland Dedication By-law will be required and the
area rate will be identified in the City’s schedule of fees and charges. f.
The
percentage for the district and the citywide account was recommended by staff
to ensure that there are sufficient funds available to leverage opportunities
that may arise. g.
Most
institutional uses are exempt and the previous practice has been to require
5%. h.
The City
has an acquisition policy for significant wooded land within the City but
really needs table land for park purposes. The Parkland Dedication By-law is
intended to deal with this latter need. |
17.
Ottawa
Forests and Greenspace Advisory Committee (original submission attached) - a.
It would be
helpful to know how the City defines parkland b.
This by-law
should be co-ordinated with other city by-laws such as the Tree Preservation By-law and other policy
documents such as the Climate Change Strategy etc. c.
Believe
that the percentage of parkland should be increased for all uses to a minimum
of 5% d.
Add land
within 30 m of a riparian border to a watercourse as land not acceptable as
parkland. e.
Request
copies of section of the sections 42 and 51 of the Planning Act be added as an appendix. f.
A minimum
requirement should be added for rural consents g.
Do not
understand why non-profit housing is exempted and believe that in the case of
the places of worship and educational institutions should provide greenspace
as part of the development. h.
Acknowledging
a credit for existing development is not understood. i.
Cash in
lieu should be a last resort with priority given to land dedication and OFGAC
should be included in the determination of when it is used. j.
What
criteria are used to determine that there is insufficient land that is usable
or functional as a park k.
Who
determines if the development is “unfeasible” in relation to onsite
dedication of land? l.
Who
determines if other land is more appropriate or accessible for park
purposes m.
Who decides
that an area is well served with parkland? This should include both active
and passive parkland n.
How
Development Charges and other cash-in-lieu payments influence land values
needs to be explained o.
When
allocating cash -in-lieu funds the city should identify that it is for the
acquisition of “active and passive” parks p.
There are
not mechanisms in the accounting proposed by staff to ensure that
cash-in-lieu is not consumed in the provision of buildings on parks and not
the acquisition of greenspace. q.
Identify
what the Planning Act provisions
are as an appendix. r.
Change the
proposed Official Plan amendment to reference passive recreation s.
Do not
agree that exemptions or exceptions should be given to the requirement for
parkland dedication. t.
Recommend
that the other agreements that have been established with developers be
posted on the website and updated regularly. u.
In addition
to the types of land that the City may not accept as parkland include land
within 30 metres of the riparian zone of waterways |
a.
The
Parkland Dedication By-law does not define parkland. Generally the by-law
deals with land that is dedicated through the development process and that is
land suitable for the use of the public for recreational purposes. The City
provides a variety of different parks ranging from sports fields to walking
trails. Not all of these are dedicated parks. b.
This by-law
is specific to the empowerment of the City to require parkland at the time of
development and to the extent possible is consistent with the other City
by-laws and policies. c.
The Act
limits the amount of parkland that can be required from Commercial and
industrial uses d.
Staff agree
that while land that may be flood prone or that contains unstable slopes may
not be accepted as parkland it is also an objective of the City to acquire
and preserve tableland adjacent to waterways. This may be within the 30-metre
setback. e.
Document 1
to this report includes extracts from the Planning Act for information
purposes. These will not be included in the Parkland Dedication By-law f.
An area
based rate for parkland is proposed for rural severances. This rate will be
established using semi annual appraisals undertaken by the City. Currently
each site is subject to an individual appraisal. Setting a flat rate will
provide clarity to the applicant, reduce the administrative process required
and eliminated the current appraisal fee of $500 +GST. g.
Non-profit
organisations utilise public money including City funds to provide housing
and other services. The City in
previous by-laws has exempted non-profit housing groups. Providing these
organisations with money only to request it back seems to be counter the
intention to provide cost effective services. The Parkland Dedication By-law
is intended to deal with the provision of public parks. The provision of
on-site greenspace is addressed through landscaping plans etc. at the time of
site plan approval. h.
There are
many properties in the older areas of Ottawa that were not required to
contribute to parkland when they were developed. When these properties are
redeveloped the development already on the site is grandfathered. For example
if a single residence is replaced by four town homes the property is only
required to contribute parkland for the three new dwellings. This
grandfathering is established in the Act. i.
Cash-in-lieu
is a last resort and the circumstances where it is considered are identified
in the By-law. The decision to recommend the acceptance of cash-in- lieu is
made by staff. Development applications are circulated to OFGAC for comments and
they have an opportunity to make recommendations on parkland dedication to
staff and Council at that time. j.
The
determination of the amount and usefulness of the land for park purposes is
made by staff dealing with the development application in consultation with
the staff responsible for the development and programming of parks. Again
advisory committees and the community can provide input through the
development review process. k.
See j
above. Feasibility usually is a measure of the likelihood that development
can, or cannot, proceed if land is removed for a park. l.
Cash-in-lieu
is often taken in new communities where the City wishes to consolidate land
in specific locations for parks. These parks are normally identified through
the community design plans of larger development plans where the public has
been involved in the design of the new community. The City may prefer to
purchase a surplus school site using cash-in-lieu from number of developments
rather than getting smaller pieces of land from these developments that may
be less useful. m.
Being well
served with parkland is rarely identified as a reason for cash in-lieu being
required. This decision is made in light of the City’s park programming needs
and must balance the community’s active and passive parkland requirements.
The City’s Sportsfield Strategy identified needs in all communities in regard
to active recreation needs over the planning period. n.
The Ontario
Municipal Board has given directions to municipalities when determining the
value of a property for the purpose of establishing the amount of
cash-in-lieu. Where the municipality
uses the sale value of a similar property to establish the market value of
the land being developed, the municipality must discount the sale price of
any Development Charges and municipal fees and charges that may be inherent
in the sale price. o.
The purpose
of the by-law is to establish the legal mechanism to enable the City to get
either land or cash-in- lieu. It is not intended to determine the type of
parkland that is acquired. p.
There are
no mechanisms in the proposed Parkland Dedication By-law that dictate that
the money is to be only used for land acquisition as the use of the
cash-in-lieu will vary depending upon the needs of the community. In general
the intention is that cash-in-lieu will be used for land purchase. q.
See e.
above. r.
The draft
Official Plan amendment has been revised from that included in the Discussion
document. The amendment will be re-circulated and OFGAC will have an
opportunity to comment on the draft at that time. s.
Staff do
not agree, there are a number land uses that do not generate demand for
parkland and the City has provided exemptions in the past for these uses. t.
It is
proposed that those agreements that are contrary to the Parkland Dedication
By-law will be identified in the By-law. As of the date of adoption of the
By-law all agreements must conform to the provisions of the by-law. u.
See d.
above. |
18.
Parks and
Recreation Advisory Committee - a.
That
woodlots retained for conservation purposes be removed from the list of lands
not suitable for dedication as parkland. b.
That the
City not exempt non-profit rental or not-for-profit sponsored ownership
residential development from parkland dedication. |
a.
Disagree.
The City does not want to be in the position of being required to accept
woodland as parkland. The draft By-law states that the General Manager or
delegate retains the right to not accept these lands as parkland. This does
not preclude exceptional circumstances where this land would not be
considered and such consideration would include the evaluation of the
recreation needs of the community. b.
Disagree,
Most non-profit housing projects receive financial support or land from the
City and taking land or money back contradicts the original intent. City Council
already exempts non-profit housing projects and amended the former Parkland
By-laws accordingly. |
Comments
received for the OPA
|
|
19.
Greenspace
Alliance; a.
Areas of
the City are not well served with parks. The City should assign cash-in-lieu
in a manner that gives to priority to existing underserved areas. b.
Policies
refer to maximum dedication rates of 2% and 5% but do not mention the minimum
requirement and this could meant that the city will accept less than these
rates in some circumstances. |
a.
The
City’s Official Plan indicates that Cash-in-lieu will be used for the
acquisition of land or the improvement of existing local parks and
recreational facilities accessible to the area being developed. Staff have
recommended that this principle be implemented through districts with 60% of
the cash accumulated in the district being used in the district to provide
parkland and 40% will be used by the City to fund larger facilities that
serve the whole city including the area being developed. Within the districts
there may be areas more in need of parkland and these needs can form the
basis of parkland implementation plans for the district. b.
The Planning Act refers to these rates as
maximums and the City may chose to require less. The Official Plan amendment
simply reiterates the Act however, the Parkland Dedication By-law, proposed
to the Council establishes these as the required rate for dedication along
with the alternative requirement for higher density residential uses. |
20.
Councillor
Qadri - a.
There needs
to be policies that govern when offsite dedication is considered that ensure
that the dedication is located where it is useful to the residents of the
development. b.
Cash-in-lieu
is accepted in order to provide parkland elsewhere because it cannot be
provided on site. The allocation of 40% of the Cash-in-lieu for citywide
projects seems to defeat this purpose. c.
The use of
the conveyed land or land acquired for park is limited by the Planning Act but there should be a
mechanism whereby the parkland can be declared surplus and the Council should
have the right to use it for other purposes. |
a.
The
City’s Official Plan indicates that cash-in-lieu will be used for the
acquisition of land or the improvement of existing local parks and
recreational facilities accessible to the area being developed. The same
approach applies to the acceptance of land not part of the site being
developed. Off site dedication rarely occurs but should be possible in some
instances to replace cash where a developer has land that the City may
prefer. These negotiations would only occur with the knowledge of the
Councillors and there is an advantage in the provision of the park space b.
Staff
are recommending that 40% of cash-in-lieu funds will be used by the city to
fund larger sites that serve the whole city. These sites provide benefit to
everyone including residents of the area being developed and satisfy the need
for higher level recreational services. Examples could include sports parks
and beaches. c.
The
Planning Act does provide that the municipality may declare a piece of
parkland surplus to park needs and may sell the land. However, the funds from
that sale may only be used in the acquisition of parkland or the provision of
recreational facilities. |
21.
Resident- a.
The city
should require the dedication of parkland at the rates of 2% and 5% and not
require anything less b.
The
reference to the use of the ‘alternative requirement’ of 1 ha for every
300 dwelling units, as provided in the Planning Act, or some lesser amount
based upon this requirement is unnecessary and detrimental and may result
in no parkland being required. c.
Cash-in-lieu
should not be supported by the Official Plan since it amounts to a bribe not
to provide parkland. d.
Supports
the proposal to calculate parkland for mixed-use development based upon the
portion of each use on the site provided that each use is assessed at the
maximum rate. |
a.
The
City does require parkland at these rates and this requirement is identified
in the Parkland Dedication By-law proposed to Council. However the by-law
also requires no parkland dedication for some uses. The wording of the
Official Plan is deliberate in order to permit these exemptions. b.
The
‘alternative requirement’ generally provides more parkland but for extremely
high densities on small sites the parkland requirement can make development
unfeasible. It is for this reason that staff are recommending that the
parkland requirement for apartments be capped at 10% of the area of land
being developed. The reference to a lesser amount in the policy allows the City
to cap the parkland requirement in this manner. c.
The
payment of cash-in-lieu of the dedication of land is provided for in the Planning Act. It is at the City’s
discretion to accept cash instead of land. It is a valuable option in new
communities where the community plan identifies the preferred location for
parks. In these situations taking land from every developer would work
against the community plan and result in many small pieces of scattered
parkland that are more expensive to maintain. In older more urban areas pocket parks can be effective but so
can pooling resources to buy larger sites such as closed schools.
Cash-in-lieu allows this. d.
Agree
provided the exemptions proposed by the draft Parkland Dedication By-law are
supported. |
22.
Resident -
The City should require all developers to provide serious amenity space to
any community in which they are working. |
Agree - Through
the preparation of community design plans and the dedication of land or the
payment of cash-in-lieu by developers through the development review process,
the needs of the community are addressed. |