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1. ZONING - 297 AND 307 MONTRÉAL RD, AND 272 AND 274 BRADLEY AVENUE
ZONAGE - 297 ET 307, CHEMIN MONTRÉAL, ET 272 ET 274, AVENUE BRADLEY
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Committee recommendation
That Council approve an amendment to Zoning By-law 2008-250 to change the zoning of 297 and 307 Montreal Road and 272 Bradley Avenue from TM3 H(42) (Traditional Mainstreet Subzone 3) and R4E[1489] (Residential Fourth Density Subzone E) to TM3[1653] H(42) (Traditional Mainstreet Subzone 3) and to amend Exception [1653] as it applies to these properties and 274 Bradley Avenue, as shown in Document 1, and as detailed in Document 2.
RECOMMANDATION DU RAPPORT
Que le Conseil approuve une modification au Règlement de zinage 2008-250 afin de changer la désignation de zonage des 297 et307, chemin Montréal et du 272, avenue Bradley de TRM3 H942 (Zone de rue principale traditionnelle sous-zone 3) et R4E[1489] (Zone résidentielle de densité 4 sous-zone E) à TM3[1653] H(42) (Zone de rue principale traditionnelle sous-zone 3) et de modifier l’exception [1653] telle qu’elle s’applique à ce s propriétés et au 274, avenue Bradley, comme il est indiqué dans le Document 1 et expliqué en détail dans le Document 2.
DOCUMENTATION
1. Deputy City Manager’s report, Infrastructure Services and Community Sustainability, dated 8 June 2010 (ACS2010-ICS-PGM-0116).
2. Extract of Draft Minutes dated June 22 2010.
Report to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de l'environnement
and Council / et au Conseil
08 June 2010 / le 08 juin 2010
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 : Richard Kilstrom, Acting Manager/Gestionnaire intérimaire, Development Review-Urban Services, Inner Core/Examen des projets d'aménagement-Services urbains, Unité du Centre intérieur
Planning and Growth Management/Urbanisme et Gestion de la croissance
(613) 580-2424, 22379 Richard.Kilstrom@ottawa.ca
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SUBJECT: |
ZONING - 297 and 307 Montreal Rd, and 272 and 274 Bradley Avenue (FILE NO. D02-02-10-0035) |
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OBJET : |
ZONAGE - 297 et 307, chemin Montréal, et 272 et 274, Avenue Bradley |
REPORT RECOMMENDATIONS
That the recommend Council approve an amendment to Zoning By-law 2008-250 to change the zoning of 297 and 307 Montreal Road and 272 Bradley Avenue from TM3 H(42) (Traditional Mainstreet Subzone 3) and R4E[1489] (Residential Fourth Density Subzone E) to TM3[1653] H(42) (Traditional Mainstreet Subzone 3) and to amend Exception [1653] as it applies to these properties and 274 Bradley Avenue, as shown in Document 1, and as detailed in Document 2.
RECOMMANDATIONS DU RAPPORT
Que le Comité de l’urbanisme et de l’environnement recommande au Conseil d’approuver une modification au Règlement de zinage 2008-250 afin de changer la désignation de zonage des 297 et307, chemin Montréal et du 272, avenue Bradley de TRM3 H942 (Zone de rue principale traditionnelle sous-zone 3) et R4E[1489] (Zone résidentielle de densité 4 sous-zone E) à TM3[1653] H(42) (Zone de rue principale traditionnelle sous-zone 3) et de modifier l’exception [1653] telle qu’elle s’applique à ce s propriétés et au 274, avenue Bradley, comme il est indiqué dans le Document 1 et expliqué en détail dans le Document 2.
BACKGROUND
The site is located at 297 and 307 Montreal Road and 272 and 274 Bradley Avenue. The site is on the northwest corner of Montreal Road and Bradley Avenue. The 0.18-hectare site currently holds four, two-storey buildings along Montreal Road and Bradley Avenue, containing an existing community health and resource centre as well as commercial and residential uses. The site is surrounded by mixed-use buildings with commercial and some residential uses to the south, west and east, and low-rise residential to the north.
Purpose of Zoning By-law Amendment
The purpose of this Zoning By-law amendment application is to make changes to the zoning provisions to facilitate the proposed expansion of the existing community health and resource centre. The existing building along the western edge of the site and abutting Montreal Road will be retained and renovated, with the three other buildings on site being demolished and replaced by the building expansion.
The site is currently within three different zones in Zoning By-law 2008-250: 297 and 307 Montreal Road are zoned as TM3 H(42) (Traditional Mainstreet Subzone 3), 274 Bradley Avenue is zoned as TM3 [1653] H(42) (Traditional Mainstreet Subzone 3), and 272 Bradley Avenue is zoned as R4E [1489] (Residential Fourth Density Subzone E). Exception 1489 permits a “community health and resource centre” as an additional permitted use.
The application proposes to change the zoning of 272 Bradley Avenue from R4E [1489] (Residential Fourth Density Subzone E) to TM3 [1653] H(42) (Traditional Mainstreet Subzone 3) and 297 and 307 Montreal Road from TM3 H(42) (Traditional Mainstreet Subzone 3) to TM3 [1653] H(42) (Traditional Mainstreet Subzone 3). As well, the existing exception 1653 is proposed to be amended to reduce corner side yard, interior side yard, and rear yard setbacks, reduce landscaping requirements, and reduce the parking requirements for the site. The proposed changes are included in Document 2, Details of Recommended Zoning.
DISCUSSION
Planning Act and Provincial Policy Statement
Section 2 of the Planning Act outlines those land use matters that are of provincial interest, to which all City planning decisions shall have regard. The provincial interests that apply to this site are: the adequate provision and distribution of educational, health, social, cultural and recreational facilities; the adequate provision of employment opportunities; the appropriate location of growth and development; and the promotion of development that is designed to be sustainable to support public transit and to be oriented to pedestrians. In addition, the Planning Act requires that all City planning decisions be consistent with the Provincial Policy Statement (PPS), a document that provides further policies on matters of provincial interest related to land use development. PPS policies indicate that there should be an appropriate mix of uses to support strong, liveable, and healthy communities, and densities that efficiently use land and support alternative transport modes.
The proposed development includes a mix of employment and institutional uses, which will efficiently use land and contribute to a balanced community. The site is located on an arterial road, which provides good access and a focus for mixed-use development. The site is conveniently located near adjacent communities via sidewalks and transit stops to allow for access by pedestrians and transit. Staff conclude that the proposal is consistent with the matters of provincial interest as outlined in the Planning Act and PPS.
Land Use Designations
The site is designated as “Traditional Mainstreet” on Schedule B of the Official Plan. The Traditional Mainstreet designation encompasses surrounding properties on abutting side streets that form part of the same Mainstreet corridor, such as the properties along Bradley Street. Traditional Mainstreets exhibit compact urban character with a pedestrian-oriented pattern of development and mix of uses that provide for access by a variety of transportation modes. Mainstreets are intended to function as mixed-use corridors in order to sustain the surrounding community and the transit system, and to provide a focus for the community. They are intended to establish a strong street edge with buildings that are human-scaled. This designation recognizes the importance of the site to achieving a positive pedestrian environment, and as a location for additional density.
The proposed development represents intensification of the site and has a density of 306 people and jobs per net hectare. Although Traditional Mainstreets have no specific density targets expressed in the Official Plan, they are one of the target areas in the city where intensification is to be directed, and as such, intensification of this magnitude satisfies the intent of the Official Plan policy. The proposed development achieves a more intense, yet human-scaled built form in this part of Vanier and will contribute to supporting the public transit system and community services, as well as providing cultural services to the surrounding community. The proposed development meets the intent of the Traditional Mainstreet designation.
Compatibility and Urban Design
Sections 2.5.1 and 4.11 of the Official Plan outline the objectives and policies for compatible development. As well, the Design Guidelines for development along Traditional Mainstreets are applicable to this site, and these provide further details about compatibility and design.
a) Transportation and Parking
The parking is located within the building, thereby reducing the impact on adjacent properties. Access to the parking will be from Bradley Avenue, which is intended to be converted to two‑way traffic between the parking access and Montreal Road in order to eliminate the need for vehicular traffic to go through the neighbourhood. A Transportation Impact Brief (TIS) was submitted in support of the application, and indicates that the proposed development will have a negligible impact on traffic in the surrounding area. Staff concur with the findings of this study. The proposed Zoning By-law amendment seeks to reduce the amount of parking from 29 spaces to 20 spaces. The parking on site is primarily intended for employees, many of whom have significant portions of their work situated off-site. Many users of the facility live in the surrounding community and will walk or use the public transit system to access the site. For larger events, the facility arranges for off-site parking at a nearby hotel with a shuttle bus to the facility. In light of the above, the proposed reduction in the required parking is considered appropriate.
b) Supporting Neighbourhood Services
The proposed development will provide a service to the surrounding community as well as to the aboriginal community at large.
c) Building Height and Built Form
Reduced setbacks are requested along the northern property lines abutting the existing residential units on Bradley Avenue. The current zoning permits a building height of 42 metres along Montreal Road, transitioning to lower heights at the rear of the site abutting residential. The proposed development has a height of 10 metres, which is within the currently permitted zoning. The height transitions to 8.7 metres along the rear property line abutting the existing residential lots, which is equivalent to the height of a 2.5-storey detached dwelling. The lower height of the proposed building, although closer to the rear and interior side lot lines, is less obtrusive to sunlight than what is permitted in the zoning.
The front yard reduction along Bradley Avenue is primarily to accommodate the glass awning and the accessible ramp. The actual building is situated two metres from the property line, and thus is consistent with the intent of the existing zoning.
d) Architecture and Design
The Design Guidelines encourage special treatment of buildings at corner sites, and to wrap architectural detail around the building. The proposed building has a prominent corner entrance, and has a unique glass awning along both public streets. The building will be designed such that the structure can support a “green roof”. The overall design and architecture of this project makes this proposed building an instant landmark on Montreal Road, and a nationally-significant architectural expression of First Nations’ culture as part of the urban fabric of Canada’s capital city. This project will be an enhancement to the Traditional Mainstreet on which it is located, as well as to the broader community.
e) Streetscape
The site creates a more positive pedestrian environment through the siting of the building directly at the street with clear glazing, and by ensuring that the front doors of the buildings on Montreal Road face the street and are directly accessible. The new buildings align with the existing buildings along Montreal Road, and the buildings have a ground level façade that animates the street.
Zoning By-law
Exception 1489 of the existing R4E [1489] (Residential Fourth Density Subzone E) zone that applies to 272 Bradley Avenue currently permits the “community health and resource centre” use. The proposed rezoning will regularize the site such that that entire site subject to the development will be within the same TM3 [1653] H(42) (Traditional Mainstreet Subzone 3) zone. The proposed zoning is consistent with the general intent of the existing zoning.
Site Plan Control
Site issues such as noise attenuation, servicing, landscaping, and stormwater management will be addressed through the concurrent Site Plan Control process. The Site Plan Control application, approval of which is delegated to staff, cannot be approved until such time that the recommended zoning provisions are in full force and effect.
Summary
The proposed development supports the direction of the Planning Act and Provincial Policy Statement. It represents an appropriate form of intensification, and is in conformity with the policies for the Traditional Mainstreet designation. It is also a new landmark building for Ottawa. Staff are satisfied that compatibility, design, and transportation aspects of the site have been adequately considered in light of the relevant Urban Design Guidelines. The proposed Zoning By-law amendment conforms with the general intent of the Official Plan and existing zoning on the site, and as such, staff recommend approval of the proposed zoning.
ENVIRONMENTAL IMPLICATIONS
A Phase I and Phase II Environmental Site Assessment (ESA) were submitted with the application indicating that there were no significant environmental concerns with the existing building and site. Certain standard conditions will be included through the Site Plan Control approval based on the recommendations of the ESA.
The Rideau Valley Conservation Authority has no issues with the proposed site development.
RURAL IMPLICATIONS
N/A
CONSULTATION
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy. Several comments were received following the mail notification and posting of the on-site sign. The comments centred on issues related to parking, traffic, compatibility, consultation, setbacks, and height. In addition, the Ward Councillor held a meeting with the surrounding community on 9 June 2010, at which staff were present to respond to questions. Details of the consultation are shown in Document 3.
COMMENTS BY THE WARD COUNCILLOR(S)
The Ward Councillor is aware of the application and staff recommendation.
LEGAL/RISK MANAGEMENT IMPLICATIONS
Should the above recommendation be carried and the matter appealed to the Board, it is anticipated that a two-day hearing would result that could be conducted within staff resources. If the zoning application is refused and the matter appealed to the Board, reasons for the refusal must be provided. An external planner and possibly a transportation consultant would need to be retained and a four- to five-day hearing would result. The estimated costs would be approximately $20,000 for a planner and $30,000 for a transportation consultant.
CITY STRATEGIC PLAN
The proposed development and planning applications align with the City Strategic Plan in that it respects the existing urban fabric, neighbourhood form, and the limits of existing hard services, so that new growth is integrated seamlessly with established communities, and contributes toward achieving a 30-per cent modal split by 2021.
TECHNICAL IMPLICATIONS
FINANCIAL IMPLICATIONS
There are no direct financial implications associated with this report.
APPLICATION PROCESS TIMELINE STATUS
This application was processed by the "On Time Decision Date" established for the processing of Zoning By-law amendment applications.
SUPPORTING DOCUMENTATION
Document 1 Location Map
Document 2 Details of Recommended Zoning
Document 3 Consultation Details
DISPOSITION
City Clerk and Solicitor Department, Legislative Services to notify the owner, applicant, OttawaScene.com, 174 Colonnade Road, Unit #33, Ottawa, ON K2E 7J5, Ghislain Lamarche, Program Manager, Assessment, Financial Services Branch (Mail Code: 26-76) of City Council’s decision.
Planning and Growth Management to prepare the implementing by-law, forward to Legal Services and undertake the statutory notification.
Legal Services to forward the implementing by-law to City Council.
LOCATION MAP DOCUMENT 1
DETAILS OF RECOMMENDED ZONING DOCUMENT 2
Proposed Changes to the Comprehensive Zoning By-law
1. Rezone the lands known municipally as: 272 Bradley Avenue from R4E[1489] to TM3[1653] H(42); and 297 and 307 Montreal Road from TM3 H(42) to TM3[1653] H(42);
- Amend Column V of Section 239, Exception [1653] by deleting the existing provisions in their entirety and adding the following provisions:
- Minimum corner side yard setback: 0 m
- Minimum interior side yard setback: 0.6m
- Minimum rear yard setback: 0.6m
- Minimum number of parking spaces required for a Community Health and Resource Centre is 1.0 per 100m2 of gross floor area
- Minimum width of landscaped area abutting a residential zone: 0.6m
- The maximum building height is 11m within 7.5m of a rear or interior side lot line that abuts a R1,R2,R3, or R4 zone
- Amend Section 239, Exception [1489] by deleting the existing text in Columns II, III and V.
CONSULTATION DETAILS DOCUMENT 3
NOTIFICATION AND CONSULTATION PROCESS
Notification and public consultation was undertaken in accordance with the Public Notification and Public Consultation Policy approved by City Council for Zoning By-law amendments.
PUBLIC COMMENTS
Comment:
The need for the building to have its parking access from Bradley Avenue is questioned. The underground parking exit/entrance is planned for a one-way street that already has issues with drivers taking an illegal shortcut from the parking lot on the east side southbound to Montreal Road. Current traffic and parking issues on Bradley and surrounding streets will be exacerbated by heavier daytime use as well. We want assurances that the level of traffic on Bradley Avenue will not increase, that the building can handle the parking needs, and that there will not be extra parking on Bradley Avenue. Wabano stated that the new building would provide rental space for private functions of up to 200 people on nights and weekends, causing serious parking issues (since the building lot will provide only 20 spaces), and raising the possibility of late noise and traffic for local residents. Left turns onto Bradley are already lengthy and complex enough at current traffic levels owing to congestion on Montreal Rd, and since there is no left turn lane, the lot location will also cause Montreal Rd itself to be further congested by increased left turns blocking the single eastbound lane, as the other lane is devoted to parking outside of rush hour, and a designated bus lane during rush hour. Insufficient on-site parking will further complicate this situation owing to increased use of street parking, as traffic is inevitably blocked during a parallel park. “Cash-in-lieu-of-parking" is not an acceptable solution, as the foregone spaces directly and negatively impact the lives of local residents, yet we are not in any way compensated for this inconvenience by money that goes to city coffers.
Response:
The Traditional Mainstreet Design Guidelines direct that vehicular accesses should not be from the mainstreet. Staff visited the site and noted that adequate on-street parking was present in the general vicinity of the site. The parking reduction is being sought through this Zoning By-law amendment rather than the Cash-in-lieu of parking process. The Transportation Impact Brief (TIS) indicated that the proposed development will have a negligible impact on traffic in the surrounding area. Staff propose that Bradley Avenue be converted to two-way traffic adjacent to the site to prevent the need to negotiate neighbourhood streets (eg Bradley Avenue north of the site) and provide more direct access to Montreal Road.
Comment:
The proposed height of this building too high, and it should only be two storeys.
Response:
The proposed building has a height of 10 metres above average grade, which is within the current zoning for both the TM3 zone (42 metres) and the R4E zone (11 metres).
Comment:
More information on yard setbacks is requested. What will this do to residents on Bradley? Reducing the setback to 0m with mainstreet zoning is not appropriate for a residential street with historic character and century-old homes. A contiguous three story building extending right to the street will mar sightlines and light patterns along all four facings, also eliminating the existing visual greenspace of lawns and gardens
Response:
See the Discussion section above for response to this comment.
Comment:
The style, size, and features of the building proposal are totally out of character with the surrounding neighbourhood.
Response:
The proposal is in line with the compatibility and design policies in the Official Plan as outlined in the Discussion section above. The building will be an Ottawa landmark and a culturally-significant architectural reference for Canada’s First Nations.
Comment:
Such an arbitrary and significant rezoning for the convenience of a single organization creates a dangerous precedent, especially when three existing houses on the streetscape are being demolished in order to proceed.
Response:
Each Zoning By-law amendment application is evaluated in light of the policy and context specific to that site and proposal. The existing buildings on the site are currently owned and operated by the applicant as part of the existing community health and resource centre, and are currently not used for residential purposes.
Comment:
According to the public meeting discussions, no plans or provisions have been made or discussed with the community relating to parking and staging of the large amount of construction equipment and supplies and facilities required for such a massive project, despite planned timelines to begin demolition as soon as the summer. There is no existing space for such construction activity given current usage patterns in the immediate surroundings, nor can the existing site be used since construction of the new section is expected to take place while existing Wabano operations continue in the old portion of the building. The presumption is that neighbourhood parking would have to be displaced, along with significant traffic delays and rerouting, noise, dust and general chaos impacting all local residents; yet nobody has any idea how this is to take place.
Response:
Construction management concerns are addressed through the Building Permit process.
Comment:
The timelines are extremely short, and have not allowed for any consultation or process work with the community prior to final presentation. If the architect and Center staff were not even aware of the above issues when they were raised at the first (and only) public meeting on this project, what other crucial details might they have also overlooked? Being told that the bid for construction is going to tender in late May, with award scheduled in early June, is at best presumptuous when the plans will not even be considered for approval until late June. While communications from city staff have been adequate on the issue, this is only considering that they had no idea the project was upcoming as recently as March.
Response:
The application was processed in accordance with public consultation timelines established by the Planning Act and in the City’s Public Notification and Public Consultation Policy. Construction cannot start until such time that the Zoning By-law amendment and Site Plan Control applications are approved. Staff discussed the proposal in a pre-consultation meeting with the applicants prior to submission of the Zoning By-law amendment application; however, because information discussed at pre-consultation meetings is confidential, staff is unable to divulge information about a proposal until such time that a formal planning application is received.
EXTRACT OF DRAFT EXTRAIT DE L’ÉBAUCHE DU
MINUTES 76 PROCÈS-VERBAL 76
22 JUNE 2010 LE 22 JUIN 2010
ZONAGE - 297 ET 307, CHEMIN MONTRÉAL, ET 272 ET 274, AVENUE BRADLEY
ACS2010-ICS-PGM-0116 rideau-vanier (12)
(This matter is Subject to Bill 51)
An e-mail dated 17 June 2010 was received from Beth Parish with respect to this item, a copy of which is held on file with the City Clerk.
Bret Cardinal of Douglas Cardinal Architects, Suzanne Valiquet, Executive Director of the Quartier Vanier Merchants Association, Allison Fisher, Richard Patten, Max Keeping and Ryan Benson were present in support of the application.
Councillor Bédard, as the Ward Councillor, noted that this expansion of the Wabano Centre was going ahead as a result of federal infrastructure stimulus funding. He emphasized that the community was in support of the proposal only if something was done to address the traffic situation. He noted a committee had been established to work on the traffic issue. He indicated that, while the report noted that Bradley Avenue would be converted into a two-way street at the entrance in order to reduce the amount of traffic on that street, it was also the intention that the whole of Bradley Avenue be converted to two-way with a blockage at one end. He noted that issue would be coming back at a future date.
That the recommend Council approve an amendment to Zoning By-law 2008-250 to change the zoning of 297 and 307 Montreal Road and 272 Bradley Avenue from TM3 H(42) (Traditional Mainstreet Subzone 3) and R4E[1489] (Residential Fourth Density Subzone E) to TM3[1653] H(42) (Traditional Mainstreet Subzone 3) and to amend Exception [1653] as it applies to these properties and 274 Bradley Avenue, as shown in Document 1, and as detailed in Document 2.
CARRIED