12. ZONING - 203 CATHERINE STREET ZONAGE –
203, RUE CATHERINE |
Committee
recommendationS as amended
(This matter is
Subject to Bill 51)
That Council
approve an amendment to Zoning
By‑law 2008-250 to change the zoning of 203 Catherine Street from GM3 F(3.0)
H(19) to GM3[XXXX] H(76)-h, as shown in Document 1 and as detailed in Document 2, and that the following
changes be made to the details of the recommended zoning contained in Document 2
of the staff report:
Add
the following to the existing column V changes:
-
despite
Table 187, row (g) there is no maximum floor space index
-
Minimum
width of landscaped area: no minimum
Replace
the following text in the existing Column V changes:
-
minimum
required number of commercial parking spaces will be calculated using the
following rate: 3 per 100 m2 of gfa; with
with,
-
minimum
required number of commercial parking spaces will be calculated using the
following rate: 1 per 135 m2 of gfa; with
-
That there be no further notice pursuant to Section 34 (17) of the Planning Act.
RecommandationS MODIFIÉES DU Comité
(Cette question est assujettie au Règlement 51)
Que le Conseil approuve
une modification au Règlement de zonage 2008-250, en vue de faire passer le zonage du
203, rue Catherine de GM3 F(3.0) H(19) à GM3[XXXX] H(76)-h, tel qu’illustré dans le document 1 et exposé en détail dans le document 2, et que les changements suivants seront apportés aux
détails du zonage recommandé présenté dans le document 2 du rapport du
personnel :
Ajoutez le libellé suivant aux changements de
la colonne V existante :
-
Malgré le tableau 187, rangée (g), il n’y a pas de rapport plancher-sol maximal.
-
Largeur minimale de la section paysagée : aucun
minimum
Remplacez le libellé suivant dans les
changements de la colonne V existante :
-
Le nombre de places de stationnement commerciales
minimal requis sera calculé au moyen du taux suivant : 3 par 100 m2
de surface de plancher hors œuvre
brute;
-
Le nombre de places de stationnement commerciales
minimal requis sera calculé au moyen du taux suivant : 1 par 135 m2
de surface de plancher hors œuvre brute;
Qu’il n’y aura aucun
autre avis en vertu du paragraphe 34 (17) de la Loi sur l’aménagement du territoire.
Documentation
1.
Deputy
City Manager's report, Infrastructure
Services and Community Sustainability, dated 24 November 2011 (ACS2011-ICS-PGM-0235).
2.
Extract of Draft Minutes, Planning Committee meeting
of 5 December 2011.
Report to/Rapport au:
Comité de l'urbanisme
and Council / et au Conseil
24 November 2011 / le 24 novembre
2011
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, Manager/
Gestionnaire,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
SUBJECT: |
|
|
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OBJET : |
REPORT RECOMMENDATION
That Planning Committee recommend Council approve an amendment to
Zoning By‑law 2008-250 to change the zoning of 203 Catherine Street from GM3
F(3.0) H(19) to GM3[XXXX] H(76)-h, as shown in Document 1 and as detailed in
Document 2.
RECOMMANDATION DU RAPPORT
Que le
Comité de l’urbanisme recommande au Conseil d’approuver une modification au
Règlement de zonage 2008-250, en vue de faire passer le zonage du 203, rue
Catherine de GM3 F(3.0) H(19) à GM3[XXXX] H(76)-h, tel qu’illustré dans le document 1 et
exposé en détail dans le document 2.
EXECUTIVE SUMMARY
Assumptions
and Analysis:
The site is located on the north side of Catherine Street between O’Connor Street and Bank Street.
It has an area of approximately 1,790 m² with 40 m of frontage along Catherine Street. The site is currently occupied by the three-storey Media Arts Building, which accommodates a range of uses including offices, fitness studios, and a daycare. The rear of the site is occupied by a surface parking lot serving the building, with an entrance driveway to the east of the building and an exit driveway to the west.
The proposed development is a 23‐storey building containing 244 dwelling
units. The building also features a 698 m² retail space at the ground floor,
with direct access from Catherine Street.
The Zoning By-law
Amendment is requested to increase the height of the zoning from 19 metres to
76 metres, reduce the parking requirements, reduce yard setbacks, landscaped
area at grade and communal amenity area.
It is proposed that the property be zoned
GM3[XXXX] H(76)-h which will retain all the existing permitted uses and create a new exeption to
address performance standards specific to the subject property. Zoning provisions are detailed in Document 2.
Staff is satisfied that the proposed increase in height to 76 metres (23-storeys) and related amendments to performance standards supports the direction of the Planning Act, Provincial Policy Statement and Strategic Directions of the Official Plan. The high-density residential development, which is located close to transit and in an area envisaged for high-profile residential buildings, will contribute to a greater housing mix for the city. Compatibility and design criteria, transportation and servicing have been addressed satisfactorily.
As the City does not yet have implementation guidelines to address Section 37 of the Planning Act, the Department is recommending the use of a holding provision to secure monies for community benefits through the Site Plan Control process. The requirement for a holding provision will enable the provision of facilities that will benefit the greater community that can be secured in a site plan agreement for the development. The holding provision can be lifted once the requirements of the Site Plan Control are met and the monies for community benefits are secured.
Financial
Implications:
N/A
Public
Consultation/Input:
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy.
RÉSUMÉ
Hypothèses
et analyse :
Le projet est situé sur le côté nord de la rue Catherine, entre la rue
O’Connor et Bank. Le projet a une superficie d’environ 1 790 m² avec
40 m de façade sur la rue Catherine. L’emplacement est actuellement occupé
par l’immeuble de trois étages Media Arts, qui comprend un vaste éventail
d’utilisations notamment des bureaux, des locaux de conditionnement physique et
une garderie. L’arrière est occupé par un parc de stationnement réservé à
l’immeuble, l’allée d’entrée est à l’est de l’immeuble et celle de sortie à
l’ouest.
Le projet
d’aménagement proposé est un immeuble de 23 étages comprenant 244 unités d’habitation. L’immeuble
comporte également au rez-de-chaussée un espace de 698 m² pour les
commerces de vente au détail, avec accès direct de la rue Catherine.
Une
modification au Règlement de zonage est requise pour hausser la hauteur prévue
dans la zone, soit de 19 mètres à 76 mètres et réduire les exigences en matière
de stationnement, de retrait minimal de cour, d’espace minimal pour la zone
paysagée au rez-de-chaussée ainsi que pour l’aire d’agrément communautaire
minimale.
Il est proposé que la
propriété soit zonée GM3[XXXX] H(76)-h, de conserver les utilisations permises
actuelles et de créer une nouvelle exception concernant les normes de
performance de l’immeuble visé. Les
dispositions de zonage sont présentées en détail dans le document 2.
Le personnel se
déclare satisfait et affirme que le rehaussement proposé jusqu’à 76 mètres
(23 étages) et les modifications connexes à apporter aux normes de
performance sont conformes à l’esprit de la Loi
sur l’aménagement du territoire, à la Déclaration de principes provinciale
et aux directives stratégiques du Plan officiel. Le projet résidentiel à forte
densité est situé à proximité des services de transport en commun, dans une
zone envisagée pour des immeubles résidentiels à profil élevé, il contribue à
créer une plus grande variété de types d’habitation de la Ville. Les divers
enjeux liés aux exigences en matière de compatibilité et de conception, au
transport et aux services publics sont traités de manière satisfaisante.
Comme il
n’y a pas encore à la Ville de directives concernant la mise en œuvre pour se
conformer à la Loi sur l'aménagement du
territoire, le Service recommande d’avoir recours à une disposition
d’aménagement différée afin de mettre les fonds nécessaires en réserve pour les
aménagements communautaires dans le cadre du processus du plan d’implantation.
La disposition d’aménagement différée permettra de mettre en place des
installations dont profitera l’ensemble de la collectivité et qui peuvent être
prévues dans l’entente du plan d’implantation du projet. La disposition
d’aménagement différée sera supprimée dès que les exigences du plan
d’implantation sont satisfaites et que les fonds réservés aux installations
communautaires sont réservés à cet usage.
Répercussions
financières :
S/O
Consultation
publique / commentaires :
L’avis concernant
cette demande a été donné conformément avec la politique d’avis et de
consultation publique de la Ville
The subject site, 203 Catherine Street, is located at the southern edge of Centretown along what is commonly referred to as the Catherine Street corridor, which is approximately one kilometre south of the Central Business District. This area acts as a buffer between Highway 417 and the residential uses to the north. The Catherine Street corridor is dominated by employment-related uses such as offices, light industrial development, commercial services, and has limited residential uses. Buildings tend to be low-rise with relatively large footprints. The area is also characterized by significant parcels of underutilized land, particularly in the form of surface parking lots. The site is located just south of the Centretown Heritage Conservation District, on the north side of Catherine Street between O’Connor Street and Bank Street. It has an area of approximately 1,790 m² with 40 m of frontage along Catherine Street. The site is currently occupied by the three-storey Media Arts Building, which accommodates a range of uses including offices, fitness studios, and a daycare. The rear of the site is occupied by a surface parking lot serving the building, with an entrance driveway to the east of the building and an exit driveway to the west.
The subject site backs onto two properties located along the south side of Argyle Avenue. The property to the west is occupied by a small church (Holy Korean Martyrs Parish). The rear façade of the church, which is a blank brick wall, sits directly on the property’s rear lot line. The property to the east of the church is occupied by a large 2½-storey brick dwelling. The rear of that property is occupied by garages with a blank wall facing the subject site. Other uses along the south side of Argyle Avenue include a seven-storey apartment building and the Centretown United Church northwest of the subject site, as well as large 2½-storey houses northeast of the subject site, many of which have been converted to offices including the Embassy of Afghanistan. Uses on the north side of Argyle Avenue, include (starting from the west) a two‑storey retail building, a three-storey residential condominium building, two two-storey office buildings, an 11-storey apartment building, the five-storey Bruyère Centre for Immigrants, and two single detached dwellings.
The property directly south of the subject site, across Catherine Street, is occupied by a three‑storey office building. Surface parking lots are located on each side of this building. These uses occupy the entire block to the south of the subject site. Highway 417 is located further to the south, creating a physical and visual separation between this area and the Glebe neighbourhood.
A two-storey office building (Ottawa Police Association) is located directly to the east of the subject site. A surface parking area separates this building from the eastern lot line of the subject site. Further to the east, still on the north side of Catherine Street, are three residential buildings which appear to have been converted into apartments, followed by a commercial surface parking lot extending to O’Connor Street. North of the parking lot is the Ottawa Curling Club; while across O’Connor Street is the YMCA/YWCA.
A two-storey building accommodating office uses is located directly to
the west of the subject site, followed by a three-storey apartment building
with retail uses at grade at the northeast corner of Catherine Street and Bank
Street. Across Bank Street is a gas station. Bank Street is a vibrant
mainstreet primarily characterized by active at grade commercial uses with, in
many cases, residential uses above.
As described in the inventory above, the area surrounding the subject
site is characterized by a relatively eclectic mix of uses and built forms,
with retail and employment uses being dominant along Catherine Street and Bank
Street. Catherine Street is very car dominated, particularly due to a low
streetscape quality, the presence of a number of surface parking areas, and the
presence of Highway 417 on and off-ramps and their related traffic. In contrast
the interior of the neighbourhood, including Argyle Avenue, is characterized by
a mix of smaller scale residential and office uses and benefits from the
presence of significant vegetation. The presence of Highway 417 is a
significant characteristic of the area, acting as a physical and visual barrier
between the area and the Glebe neighbourhood to the South. Moreover, uses along
Catherine Street can and do serve as a buffer between Highway 417 and the
interior of the community to the north.
Proposed Development
The proposed development is a 23‐storey building containing 244 dwelling
units. The building also features a 698 m² retail space at the ground floor,
with direct access from Catherine Street.
From a built form perspective, the development features a ground floor
podium which spans the entire lot area. A T‐shaped structure begins at the second floor,
forming part of the podium along Catherine Street until the seventh floor.
Beginning on the eighth floor the T‐shaped structure is slightly reduced in size, creating articulations in
the building façades and marking the beginning of the ‘tower’ portion of the
building. At floor 11 an L‐shaped structure facing west is introduced, culminating in penthouse
units and the mechanical penthouse on floor 23. A large outdoor amenity space
for residents is provided in the northwestern corner of the second floor. From
a design perspective, this area fulfills two objectives:
1.
provides a common outdoor amenity area
for residents,
2.
ensures an open space adjacent to the
church to the north, ensuring that a gap is created in the built portion of the
development.
Additional amenity areas are located in the eastern portion of the
building on the second floor and private terraces and balconies are also
provided for most units.
As shown on Documents 4 to 10, the building façade along Catherine
Street is set back 2.04 m from the current property line in order to
accommodate a future right‐of‐way (ROW) widening requested by the City.
Once the ROW widening is taken, the building will be set back 0 m from the
front lot line, increasing to 2.06 m at floor 8, 3.06 m at floor 11, and 2 m at
floor 23.
The rear yard setbacks are 0.9 m at the ground level, 7.5 m between
floors two and seven, increasing to 8.5 m at floor 8, 7.5 m at floor 11 and
11.5 m at floor 23.
Side yard setbacks vary greatly due to the various articulations of the
building:
-
At the ground floor the side yard
setback from both the eastern and western lot lines is 0 m.
-
Starting at the second floor,
the side yard setbacks for the front portion (first 20 m) of the lot remain 0 m,
whereas at the rear they increase to 10 m (east) and 10 m (west) as a result of
the T‐shaped
structure.
-
At floors eight to ten, the setbacks of
the front portion of the building are 3 m (east) and 12 m (west) whereas at the
rear they are 8 m (east) and 12 m (west).
-
From floors 11 to 22 setbacks are 10 m
(east) and 10 m (west).
-
The top floor is setback 8 m (east) and 12.6
m (west).
The varying side yard setbacks are the result of proposed building
articulations. In particular, the T and L‐shaped structures form the essence of the
building’s architectural expression. From a functional perspective, this design
provides for significant separation between the tower and the neighbouring lots
to the east and west, particularly in the rear half of the lot. This ensures that
future redevelopment of neighbouring lots is not compromised.
A highly transparent ground floor is proposed, which is particularly
appropriate for the retail space in the western portion of the building. This
will contribute to a more pleasant pedestrian environment along Catherine
Street. Landscaping in the form of street trees is proposed along Catherine
Street, creating a buffer between the future sidewalk and the street and
enhancing the pedestrian environment. The proposed landscaping is based on the
vision established in the Draft Centretown Community Design Plan, in which
Catherine Street is envisioned as a tree‐lined street.
Purpose of Zoning Amendment
The Zoning By-law
Amendment is requested to increase the height of the zoning from 19 metres to
76 metres, reduce the parking requirements, reduce yard setbacks, landscaped
area at grade and communal amenity area.
Permitted uses in the GM3 subzone include ‘dwelling unit’. A ‘retail
store’ is also permitted but subject to being located in an office or hotel.
Therefore, a Zoning By‐law
Amendment is required to allow the proposed retail use since it is not located
within an office or hotel.
Existing Zoning
The subject site is zoned GM3 F(3.0) H(19) – General Mixed Use, Subzone
3, Maximum Floor Space Index of 3.0, Maximum Height of 19 m.
The purpose of the GM zone is to allow residential, commercial and
institutional uses, or mixed use development; limit commercial uses to
individual occupancies or in groupings in well defined areas; permit uses that
are often large and serve or draw from broader areas than the surrounding
community and which may generate traffic, noise or other impacts provided the
anticipated impacts are adequately mitigated or otherwise addressed; and impose
development standards that will ensure that the uses are compatible and
complement surrounding land uses.
Proposed Zoning
It is proposed that the property be zoned GM3[XXXX]
H(76)-h which will retain all the existing permitted uses and create a new exeption to
address performance standards specific to the subject property. Zoning provisions are detailed in Document 2.
The Zoning By-law amendment proposes to modify the performance
standards of the GM3 F(3.0) H(19) zone as follows:
-
Allow a ‘retail store’ to be located in
the building;
-
Increase in maximum permitted height
from 19 m to 76 m;
-
Decrease the front yard setback from 3 m
to 0 m
-
Decrease the rear yard setback to:
·
for that part of the building 6 m or
less above grade: 0.5 m
·
for that part of the building above 6 m:
7.5 m
-
Decrease the minimum communal amenity
area to be provided from 50% to 20% of the required amenity area
-
Decrease the required parking rates to
correspond to those required under the former City of Ottawa Zoning By-law
-
Permit
balconies to project to 0 m from the lot line
DISCUSSION
Planning Act and the 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 include 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
The Provincial Policy Statement (PPS) broadly outlines the provincial
government’s vision and policies for land use planning and development in
Ontario. The Planning Act, 1990, s.
3(a) requires that municipal land use and urban/rural planning decisions be
“consistent with” the policy statement as issued under the Act.
Part V, Section 1.0, Building Strong Communities, encourages healthy
and sustainable communities by promoting an appropriate range of employment and
residential uses (Policy 1.1.1 (b)). The PPS also states that Planning
authorities shall identify and promote opportunities for intensification and
redevelopment where this can be accommodated taking into account existing
building stock or areas, including brownfield sites, and the availability of
stable existing or planned infrastructure and public service facilities
required to accommodated projected needs (1.1.3.3).
The proposed development complies with polices of the Provincial Policy
Statement in a number of ways. The
proposed zoning allows for an increase of residential units, which will
efficiently re-use land and contribute to a balanced community. The site is located on an arterial road (Catherine
Street). With respect to infrastructure, the existing
127 mm diameter watermain along this stretch of Catherine Street is in need of
replacement due to “aging”. According to
the City’s records, the existing watermain appears to have been in place since
1889. Moreover, it was indicated by the Watermain
Resources Unit – Asset Management Branch that the current watermain cannot
supply enough pressure and flows for both domestic and fire flow requirements
for the proposed development and future developments along this strip of
Catherine Street. Thus upgrading this
watermain from 127mmØ to 203mmØ will increase the water pressure and supply for
such development. Therefore, it is our
understanding that the upgrade of this watermain by the developer will be
beneficial for the City, the proponent, and future developers along this strip
of Catherine Street. The subject site is
located within walking distance of commercial, residential, and recreational
land uses. The Department is of the
opinion that the proposal is consistent with the matters of provincial interest
as outlined in the Planning Act and PPS.
The use of Section 36
is discussed in the Zoning Details section of this report. Section 36 of the Planning Act provides the authority for
municipalities the use of a holding symbol to specify requirements that need to
be met prior to the use of a property.
Once the requirements are met, the holding symbol is then removed by an
amendment to the by-law.
Official Plan
Strategic Direction (Section 2)
Section 2 of the Official Plan sets broad strategic directions to meet the challenge of managing growth, providing infrastructure, maintaining environmental integrity and creating liveable communities within Ottawa. To meet these challenges, polices are set out to pursue a mix of land uses, housing types and compact forms of development which in turn will enable the City to support a high-quality transit system and make better use of existing infrastructure and roads.
Urban Design and Compatibility (Section 2.5.1)
Compatible development means development that, although not necessarily
the same as or similar to existing buildings in the vicinity, nonetheless
enhances an established community and coexists with existing development
without causing undue adverse impact on surrounding properties. It ‘fits well’
within its physical context and ‘works well’ among those functions that
surround it.
The first
design objective of Section 2.5.1 is to enhance the sense of community by creating and
maintaining places with their own distinct identity. The unique architecture proposed for this
development and the urban design analysis undertaken as part of the Design
Review process ensure that design creates a distinctive identity.
Design should create places that are safe, accessible and easy to get to
and move through. The site is located on
Catherine Street, and safety has been ensured through the provision of commercial
uses at grade, ensuring “eyes on the street”.
Development should respect the character of
existing areas and define quality public spaces. The proposed development complements and
enlivens the surroundings. The
introduction of new residential units will bring new pedestrian activity to the
site.
Although the site is not located within one
of the key designations slated for intensification in the Official Plan, which
are centred along the rapid transit network, the Official Plan recognizes that
opportunities for intensification exist within areas designated General Urban
Area. The overall intent of the policies on Managing Growth is to support
intensification in the General Urban Area in appropriate locations, which do
not threaten the stability of the interior portions of stable residential
neighbourhoods.
The site’s location on the southern edge of
the Centretown community, in proximity to transit and major roads and along a
corridor which could benefit from significant renewal, makes it a suitable
location for intensification. Moreover, the proposed development achieves
several of the design principles outlined in Section 2.5.1. The development
will build on established patterns and built form by introducing a building that
creates visual interest and contributes to the image of Centretown through
architectural innovation, while providing a buffer to Highway 417.
Land Use Designation (Section 3.6.1)
The subject property is designated “General Urban Area” on Schedule B
of the Official Plan. The proposal conforms to the policy direction of the
General Urban Area designation. The proposed development will contribute to the
range of housing options available in the downtown area and builds upon
desirable established patterns and built form, while taking into consideration
the planned vision for the area. The proposed at‐grade retail use is conveniently located with
respect to concentrations of residential development and is of a scale that
will serve the needs of the surrounding neighbourhood.
Compatibility (Section 4.11)
At the city-wide scale, issues of compatibility are addressed in the Official Plan through the appropriate designation of land and associated policies that direct where and how certain categories of land use should be permitted to develop. At the scale of neighbourhoods or individual properties, issues such as noise, spillover of light, accommodation of parking and access, shadowing, and micro-climatic conditions are prominent considerations when assessing the relationships between new and existing development.
To arrive
at compatibility of scale and use will demand a careful design response, one
that appropriately addresses the impact generated by infill and
intensification. Consequently, the issue of ‘context’ is a dominant theme of
the Official Plan where it speaks to compatibility and design.
The
proposed development meets the compatibility criteria as follows:
a. Traffic:
The
site is located in the downtown area and in proximity to community services and
amenities and is therefore expected to reduce reliance on private vehicles and
in particular the generation of single occupancy vehicle traffic. The site
fronts on Catherine Street, identified as an ‘Existing Arterial’ roadway.
‘Existing Arterial’ roadways are designed to carry high volumes of traffic over
long distances while accommodating all modes of transportation. Bank Street and
O’Connor Street, in proximity to the site, are both identified as ‘Existing
Arterial’ roadways. The site is located in proximity to major bus routes along
Catherine Street, Bank Street, Elgin Street, and Gladstone Avenue. Given these
conditions, it is anticipated that existing roads will adequately serve the
development.
b. Vehicular Access:
Vehicular
access to the underground parking structure is proposed via a single right‑in/right‐out
driveway from Catherine Street, along the eastern property line. The access
will be designed to be safe for users and pedestrians and given its underground
location the parking area is not anticipated to create issues related to noise,
headlight glare and loss of privacy on adjacent development.
c. Parking Requirements:
The
development provides adequate on‐site parking to
minimize spillover on adjacent areas. The proposed
rezoning includes parking provisions considered adequate for the needs of the
proposed development, while recognizing the opportunity to reduce parking and
increase other modes of transportation.
d.
Building
Height and Massing:
New buildings
should have regard to the area context - the massing and height of adjacent
buildings, and the planned function for the area. The existing
context of the area contains a range of building heights and the Secondary Plan
policies recognize the surrounding area on this block and the block to the
south as “Queensway Commercial Area.” Design
principles have been applied to the site including locating the mass of the
building towards Catherine Street, away from the adjacent residential to the
north, respecting the setbacks to the rear that are currently in place under
the existing zoning, creating a sense of human scale at the ground level
through the retail/commercial component design and the addition of streetscaping
along Catherine Street.
e.
Pattern
of the Surrounding Community:
While there must
be recognition of the pattern of the surrounding
community, there is also acknowledgement that for development that proposes a
different height, building mass, proportion, street setback or distance between
buildings from the pattern of the area, the design of the proposed building may
compensate for this variation. It is the opinion of the Department that the
surrounding area contains a variety of building heights, massing, proportions
and setbacks. The proposed building is
higher than the immediately adjacent buildings; however, it also provides
architectural and functional features that contribute to enliven the
streetscape.
f.
Outdoor
Amenity Areas:
Outdoor
amenity areas are provided in the form of private balconies and terraces and a
common outdoor amenity area on the second storey in the northwest corner of the
site. These amenity areas respect the privacy of adjacent outdoor amenity
areas. In particular, uses to the east and west currently consist of office
buildings which do not feature outdoor amenity areas. Taking into consideration
the urban context of the site, the proposed development is located at a
sufficient distance from the balconies of surrounding buildings, particularly
the seven‐storey
residential building to the northwest of the site.
g. Loading Areas, Service Areas and Outdoor
Storage:
No
impacts related to the above are anticipated as a result of this development.
All loading areas, service areas, and storage are proposed within the interior
of the building.
h. Lighting:
The potential
for light spillover or glare from any lighting source onto adjacent
light-sensitive areas should be avoided or mitigated. Details regarding proposed lighting will be
dealt with through the Site Plan Control process, and if necessary, conditions
will be included in the site plan agreement to ensure minimal impact on
adjacent properties.
i.
Noise
and Air Quality:
The development
should be located and designed to minimize the potential for significant
adverse effects on adjacent sensitive uses related to noise, odours, and other
emissions. The proposed uses are not
significant noise generators and are consistent with those existing in the area. A noise study has been completed as part of
the Site Plan Control application and concluded that the building has been
designed appropriately to address noise impacts from Catherine Street.
j.
Sunlight:
The
development should minimize shadowing on adjacent properties, to the extent
practicable, particularly on outdoor amenity areas, through the siting of
buildings or other design measures. A
review of the sun‐shadow analysis comparing the proposed
development to the as‐of-right development
based on the existing Zoning By‐law provisions
reveals that the proposed building will cast a much longer shadow on properties
to the north than what would currently be permitted under the Zoning By‐law.
This is particularly the case in December as well as March, June and September
mornings. However, in most instances, particularly in the spring, summer and
fall months, this additional shadowing is not being cast on outdoor amenity
areas but rather at the rear or side of blank walls, parking areas, or office
buildings. In particular, the large majority of rear yards of buildings along
Argyle Avenue are paved. This significantly reduces the negative impact of the
additional shadowing and may in fact mitigate the heat-island effect of direct
sun onto asphalt. Moreover, the shadowing cast by the proposed building must
also be examined in the context of the planned vision for the area expressed in
the Draft Centretown Community Design Plan (CDP), which anticipates buildings
up to 25-storeys on the subject site and along the easterly portion of the
Catherine Street corridor. For this purpose, a separate sun‐shadow
analysis was created comparing the proposed development to a development that
would be permitted under the Draft Centretown CDP. This analysis reveals that
the difference in shadowing between the proposed development and the potential
development under the Draft CDP is not significant.
k.
Microclimate:
The development
should be designed to minimize adverse effects related to wind, snow drifting,
and temperature on adjacent properties.
The subject site permits a building with a maximum height of 19 metres. It is not anticipated that the effects from
the additional requested height will more significantly impact adjacent
properties than what is permitted currently.
The proposed tree line along Catherine Street creates a more desirable
microclimate.
l.
Supporting
Neighbourhood Services:
The
development should contribute to or be adequately served by existing or
proposed services and amenities such as health facilities, schools, parks and
leisure areas. The site is located downtown in proximity to several
neighbourhood amenities and commercial mainstreets (Bank Street and Elgin
Street) and is adequately served by neighbourhood services. The addition of new
residents to this section of downtown will contribute to the strengthening of
local demand for retail and services, which would benefit the entire area by
being accessible on foot.
Centretown Secondary Plan
The Centretown Secondary Plan in Volume 2 of
the Official Plan intends to conserve and enhance the residential character of
Centretown as an inner-city community with several identifiable neighbourhoods
focused around defined commercial corridors and public open spaces. Uses which are incompatible with the
residential character are restricted through the Secondary Plan policies.
The Secondary Plan recognizes that the
population of Centretown will increase over time, and that this increase will
support the residential character of the area, benefiting the retail and
commercial enterprises within Centretown. The Plan also recognizes that an
increase in population in Centretown will be beneficial to the city-wide
distribution of population and the use of existing public services and
facilities. The Secondary Plan acknowledges that the neighbourhoods of
Centretown will absorb some of the anticipated increase in population, however
the Plan also acknowledges that certain neighbourhoods, such as the area west
of Kent Street, the area between Elgin and O’Connor Streets south of Somerset
Street, and the area east of Elgin Street, as more suitable to family living.
Other neighbourhoods adjacent to Bank Street and along the boundary of
Centretown are recognized as areas less suitable to family living where medium
and high profile residential uses are more appropriate. The land use schedule
defines the land use designations which are reflective of the desired use and
built form patterns for the area. These designations are intended to serve as a
framework within which the objectives and policy directions of the Secondary
Plan are to be achieved.
The proposed development supports the two goals of the Centretown
Secondary Plan, which are to maintain and enhance the residential character of
Centretown while allowing for a moderate increase in population; and to
accommodate persons of all age groups, income levels, cultural backgrounds,
lifestyles and household sizes wishing to live in Centretown with good quality,
affordable housing (Section 3.3.1). The proposed development also supports
several of the Secondary Plan’s objectives (Section 3.3.2), including the following:
-
To
protect, maintain and improve existing good quality housing.
-
To
provide housing which meets the needs of handicapped persons, senior citizens, single
parent families and other groups with special needs.
-
To
encourage innovative building and site development; which will contribute to
the physical environment of the community and enhance the desirability of
Centretown as a place to live.
-
To
protect residential areas from adverse effects of adjacent commercial
development or major traffic routes.
-
To provide
neighbourhood commercial facilities and services for Centretown residents.
The subject property is designated Queensway Commercial Area on Schedule
H: Land Use Plan in the existing Centretown Secondary Plan. Section 3.4.2.i)
establishes land use policies for the Queensway Commercial Area. They state
that this area shall include offices, hotels, apartment hotels, parking areas,
bulk good outlets, wholesale operations and several other commercial operations
which serve the special needs of travellers and commuters as well as the
special needs of the residents of the city.
While the policies state that “residential uses are not considered to be
compatible”, the policies do not specifically restrict residential development.
In this case it is the Department’s opinion that residential uses are compatible with
the surrounding development. Over the last 10 years, there have been other
residential projects built along Catherine Street (i.e. the Beaver Barracks
Site) and along its equivalent street, Isabella, south of Highway 417 (i.e. the
Palisades Retirement Residence). These
developments highlight the desirability of downtown living and contribute to
the gradual re-integration of these streets as more pedestrian-friendly
components of their neighbourhood, away from the collector-lane function that
dominates them currently.
Policy i) also encourages the creation of a
buffer between the Queensway to the south and the residential areas to the
north, which is achieved by the proposed development. Maximum building heights
are intended to “be limited”, but the Plan does not provide specific height restrictions
in terms of maximum metres or storeys. Finally, the policies for the Queensway Commercial
Area seek to improve the streetscape along Catherine Street, which will be
achieved on a site‐specific basis by
the proposed development.
Section 3.4.6 of the Centretown Secondary
Plan provides site development policies to ensure that all development enhances
the physical environment of Centretown and is compatible with adjacent existing
uses. The proposed development conforms to the policies in the following way:
-
Municipal and public utilities and services are
available to serve the proposed development (Section 3.4.6 a) i.);
-
It will contribute to the overall physical environment
of Centretown (Section 3.4.6 a) ii.);
-
All parking and loading is located underground and
therefore screened from view (Section 3.4.6 a) iv);
-
It promotes a compact form of residential
development (Section 3.4.6 b) ii.); and
-
It does not unreasonable obstruct natural light,
view and air circulation from the main window of existing habitable rooms
(Section 3.4.6 b) iii.).
The proposed development conforms to the
policy direction of the Centretown Secondary Plan. It supports the goals of the
Plan and several of the Plan’s objectives. The development also conforms to the
policies for the Queensway Commercial Area designation and is in keeping with
the site‐specific development policies.
In addition, this property has been included in the new Draft Centretown
Community Design Plan which is currently underway. This proposal is consistent
with the draft version of this plan, wherein this property is proposed to be
part of the Catherine Street Corridor area which permits mixed-use building
heights up to 25-storeys.
Draft Centretown Community Design Plan
In 2010, the Department initiated the Centretown Community Design Plan
study. This CDP is being undertaken in response to recent development proposals
and a need to review and update the Centretown Secondary Plan in keeping with the
Official Plan intensification policies as well as its compatibility and urban
design objectives. The CDP will provide a broad and integrated 20‐year vision and guidance for the future of
the area. A Draft CDP was released on May 27, 2011, and the final document is
targeted for completion and approval in early 2012.
The current Official Plan policies, the Council approved‐policies of OPA 76 and the existing policies
of the Centretown Secondary Plan already provide direction for development
applications designated both General Urban Area and High Profile Residential
Area. The Terms of Reference for the Centretown CDP study responds to the same
policy framework used to review the proposed development.
The site is located in the CDP’s ‘Southern Character Area’. In terms of
development, the vision for this area includes:
-
Retain existing employment uses, permit
new commercial at grade along Catherine Street and residential uses.
-
Suitable for high‐rise
buildings, built on low or mid‐rise podiums.
-
Taller buildings require podiums, step backs,
minimum lot sizes and maximum tower floor plate sizes. Blank walls are not
permitted.
-
New developments should buffer the lower
rise neighbourhood and the highway noise.
-
Gateway buildings and architecture on
corner sites fronting major arterials.
-
Appropriate building height transition
required on the north side of Catherine Street.
The Draft CDP recommends a new Land Use Plan for Centretown. The
subject site would be designated ‘Catherine Street Mixed Use’. This corridor
would allow for a variety of uses to be accommodated in Centretown that require
a larger format/floor plate. Maximum building heights would be limited and
appropriate transition to the lower rise Residential Area is essential.
In the Catherine Street corridor, the Draft CDP states that it may be
appropriate for buildings to be as tall as 77 m (25-storeys). Taller structures
should be located closer to Bank and Elgin Streets and along the Queensway.
Development on the north side of Catherine Street, where the site is located,
would need to transition toward the lower profile development to the north on
Argyle Avenue and beyond.
The Draft CDP also puts a strong emphasis on built form. In the context
of tall buildings (10‑storeys or higher), the CDP establishes design
guidelines which focus on the development of point towers built on podiums. The
detailed guidelines focus on elements such as maximum floor plates for towers
(750m²), tower setbacks (minimum 10 metres from side and rear property lines),
face‐to‐face separation distance between towers
(approximately 20 metres), and podium setbacks (should be setback 3 m from the
expanded ROW and should be built to the side property line to help mitigate the
noise impact from the Queensway).
Based on the draft policies, it is the Department’s opinion that the
proposed development has strong regard for the policy direction set forth in
the Draft CDP and is in keeping with the general direction set out for the Catherine
Street Corridor.
The height of the proposed development is within the range anticipated
by the CDP, and the general built form of the development, consisting of a
podium and slimmer tower, is also in keeping with the general direction of the
CDP. In particular, the T structure provides for a strong architectural
expression but also a significant separation between the tower and the
neighbouring lots to the east and west, particularly on the rear half of the
lot.
Urban Design Guidelines for
High-Rise Housing
The Urban Design Guidelines for High-Rise
Housing state that development should provide compatibility in context,
coordinate parking, services, and transit into the site, mix uses and open
spaces, contribute to urban living and pedestrian-friendly streets, and provide
a response to the physical environment
and microclimate through design. The
guidelines promote high-rise buildings that contribute to views of the skyline
and that enhance the image of the city. The proposal meets the intent the
applicable guidelines. In particular:
-
The proposed development creates a sense
of transition through the location and orientation of the podium and the tower
(Guideline 5).
-
The proposed development establishes the
building form and massing that responds to the function, site characteristics,
context, and the type and mix of uses – regardless of stylistic approaches. The
proposed development provides a base, tower, and top (Guideline 12).
-
The lower portion of the building has
been designed to support, a human‐scaled streetscape,
open space and quality pedestrian environments. This has been achieved in
particular through the at‐grade retail use
and architectural treatment (Guideline 13).
-
Clear windows and doors are used to make
the pedestrian level façade highly transparent and accessible (Guideline 14).
-
An active use is located along the
street façade (Guideline 16).
-
The pedestrian entrances are at grade
and directly accessible, clear, and prominent with a direct link to the
sidewalk (Guideline 17).
-
The building has an architecturally-detailed
façade with limited visible blank or featureless sides, while taking into
account potential future redevelopment of surrounding lands (Guideline 18).
-
The proposed development provides for
separation between potential future adjacent towers to the east and west
through a T‐shaped
and L‐shaped
tower configuration, particularly on the rear half of the lot. This ensures
that future redevelopment of neighbouring lots is not compromised, while still
allowing for architectural innovation and creativity (Guideline 20).
-
Balconies are oriented to avoid close
balcony‐to‐balcony
facing with adjacent development (Guideline 22).
-
The top of the building is designed as a
‘fifth façade’ that will be distinctive against the skyline (Guideline 23).
-
Views have been provided from the
apartments to the streets allowing visual surveillance (Guideline 31).
-
Parking and service areas have been
located underground (Guideline 56).
-
The garage entry has been located and
designed so as not to detract from the streetscape (Guideline 58).
-
Utilities and services have been located
within the building and away from public view and public areas (Guidelines 61 and
62).
The building includes
distinctive and stylish design features, building forms and shapes to
contribute to a sense of place. Improvements
along Catherine Street provide a more pleasant and interactive pedestrian
environment. Underground parking and the garage entry will not detract from the
streetscape. The proposed
development has proceeded through the Design Review process, as detailed in
Document 12, and the architecture is of a high quality to ensure that views of
the skyline are enhanced.
Infrastructure Considerations
The proponent of the Zoning Amendment Bylaw application has
demonstrated, through Conceptual Site Servicing Study, that the public infrastructure
is available and all but the existing watermain has sufficient available
capacity to service the proposed development. The existing 127 mm
diameter watermain along the stretch of Catherine Street is in need of
replacement due to “aging”. According to the City’s records, the existing
watermain appears to have been a place since 1889. Moreover, it was
indicated staff that, currently, the existing watermain cannot supply enough
pressure and flows for both domestic and fire flow requirements for the
proposed development and future developments along this strip of Catherine
Street. Thus upgrading this watermain from 127mmØ to 203mmØ will increase
the water pressure and supply for such development. Therefore, the
upgrade of this watermain, by the developer, will be beneficial for the City, the
proponent, and future developers along this strip of Catherine Street.
With respect to
other infrastructure:
•
Sanitary
service: the proponent will connect to existing 300 mm diameter combined sewer
along Catherine Street via proposed 200 mm diameter PVC sanitary sewer service
(approximately 8.5 m long).
•
Storm
service: the proponent will connect to existing 300 mm diameter city combined
sewer along Catherine Street via proposed 200mm diameter PVC storm sewer
service (approximately 8.5m long) with proposed storm flow restrictor.
•
Water
service: the proponent will upgrade the existing 127mm diameter city watermain
to 200mm diameter PVC watermain along Catherine Street at a length of
approximately 130m (from 203 Catherine Street up to Catherine-O’Connor
intersection). The proponent will connect to the proposed 203 mm diameter
City watermain via a proposed 200 mm diameter water service (approximately 11.0
m).
•
Site
grading and stormwater management: the site is to be designed such that, flows
to the storm sewer in excess of the two-year post development storm event
run-off release rate, must be detained on site.
Heritage Considerations
The subject property is located adjacent to the Centertown Heritage Conservation District (HCD). The heritage policies in the Official Plan provide that the City may require a Cultural Heritage Impact Statement (CHIS) where a development is located adjacent to the HCD. In this case, while not required, a CHIS was prepared and submitted. The CHIS assessed the site in the context of its relationship to the HCD and noted that the project was being designed to be respectful of the adjacent properties in the heritage district and concluded that:
“the
proposed mixed-use commercial and residential design proposal, by virtue of its
massing, streetscape revitalization, and re-establishment of the Catherine
Street commercial corridor, is assessed as having modest impact to identified
heritage resources within the adjacent Centretown Heritage Conservation
District.”
Staff have considered the project in the context of its adjacency to the HCD and note that the HCD is premised on ensuring that existing heritage resources in the district are retained, that development within the district integrates sensitively with existing heritage to retain strong heritage character streetscapes. The subject site, as noted, is not within the district nor is it on a street that is within the district. Rather, the site backs onto the district with the development being a backdrop. Issues of integration and ensuring compatibility related to matters of shadow, impacts on amenity areas and residential properties have been addressed, and staff agree, as was concluded by the CHIS, that the proposal will have limited impacts on the adjacent Argyle Avenue properties, the heritage character of Argyle Avenue, the Argyle Avenue streetscape, or on the district.
Concurrent Application
The land to which the proposed zoning amendment applies is the subject of an application for Site Plan Control approval, file number D07-12-11-0201.
Conclusion
The Department is satisfied that the proposed increase in height
to 76 metres (23-storeys) and related amendments to performance standards
supports the direction of the Planning Act, Provincial Policy Statement
and Strategic Directions of the Official Plan.
The high-density residential development, which is located close to transit and in an area envisaged for high‑profile residential buildings, will contribute to a greater housing mix for the city. Compatibility and design criteria, transportation and servicing have been addressed satisfactorily.
As the City does not yet have implementation guidelines to address Section 37 of the Planning Act, the Department is recommending the use of a holding provision to secure monies for community benefits through the Site Plan Control process. The requirement for a holding provision will enable the provision of facilities that will benefit the greater community, which can be secured in a Site Plan Agreement for the development. The holding provision can be lifted once the requirements of the Site Plan Control are met and the monies for community benefits are secured.
In light of the discussion above, the Department recommends approval of the Zoning By-law amendment application.
RURAL IMPLICATIONS
N/A
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy. Details of the consultation can be found in Document 13.
COMMENTS BY THE WARD
COUNCILLOR
Councillor Holmes’ comments on 203 Catherine Street Development:
1. Twenty-three storeys is excessively high for this small lot. Please provide the chronology by which this developer submitted a 15-storey version of this development in July 2011, and following consultation with city staff and the Urban Design Peer Review Panel resubmitted a version that was sub sequentially 40% taller than originally proposed.
2.
The
podium at seven-storeys is overbearing for this section of Catherine Street.
The blank end walls with no side yard setbacks would encourage an unbroken wall
along the street which is in contravention of our urban design goals.
3.
The
tower, at approximately 12,250 sq. ft. is 50% bulkier than the maximum ‘point
tower’ size recommended in the draft Centretown Community Design Plan.
4.
The setback on the north lot line of only 5.0 to
7.5 metres is insufficient, and will create a looming mass that will overshadow
the significant heritage buildings on Argyle Avenue. The rear yard setback
should be 20 metres.
LEGAL IMPLICATIONS
If this matter is appealed to the Ontario
Municipal Board, it is anticipated that a three day hearing would result. Should the recommendation be adopted, the
hearing could be conducted within staff resources. If the application is
refused, reasons must be provided and in the event of an appeal, it would be
necessary to retain an external planner and possibly a transportation
consultant to speak to the issue of parking. The costs would range from
approximately $25,000 (planner only) to $50,000 if a transportation consultant
is also required.
RISK MANAGEMENT IMPLICATIONS
N/A
FINANCIAL IMPLICATIONS
Potential costs are outlined in the Legal Implications section above. Should the services of an external planner and a transportation consultant be required, funds ($25,000 to $50,000) are not available within existing budget, and the expense may impact Planning and Growth Management’s operating budget status.
ACCESSIBILITY IMPACT
Additional design considerations will be reviewed during the subsequent
Site Plan Control process.
ENVIRONMENTAL IMPLICATIONS
N/A
TECHNOLOGY IMPLICATIONS
N/A
CITY STRATEGIC PLAN
The application is consistent with the
Planning and Growth Management priority which encourages the infill and
intensification of lands designated General Urban Area.
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 Proposed
Site/Landscape Plan
Document 4 Proposed Ground
Floor
Document 5 Proposed Level 2
Document 6 Proposed Level 3-7
Document 7 Proposed Level 8-10
Document 8 Proposed Level 11-22
Document 9 Proposed Level 23
Document 10 Proposed South Elevation
(Along Catherine Street)
Document 11 Proposed Perspective
(Along Catherine Street)
Document 12 Urban Design Review
Panel Comments
Document 13 Consultation Details
DISPOSITION
City Clerk and Solicitor Department, Legislative Services to notify the
owner, applicant, OttawaScene
Canada Signs, 1565 Chatelain Avenue, Ottawa, ON
K1Z 8B5, 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. The subject lands shown on Document 1 are rezoned from
GM3 F(3.0) H(19) to GM3[XXXX] H(76)-h.
2.
Add
a new exception, GM3[XXXX] H(76)-h to Section 239, Urban Exceptions, with provisions
similar in effect to the following:
a.
In Column II, the text GM3[XXXX] H(76)-h; and,
b.
In Column IV, the text:
-
all uses except existing uses until the holding symbol is
removed
c.
In Column V, text:
-
the
provisions of Section 188.(3)(c) do not apply
-
minimum
front yard setback: 0m
-
minimum
rear yard setback:
-
for
that part of the building 6 m or less above grade: 0.5 m
-
for
that part of the building higher than 6 m above grade: 7.5 m
-
minimum
eastern interior side yard setback for the first 20 m back from the front lot
line:
-
for
that part of the building 25 m or less above grade: 0 m
-
for
that part of the building 25 m to 35 m above grade: 3 m
-
for
that part of the building 35 m to 76 m above grade: 8 m
-
minimum
western interior side yard setback for the first 20 m back from the front lot
line:
-
for
that part of the building 25 m or less above grade: 0 m
-
for
that part of the building 25 m to 35 m above grade: 12 m
-
for
that part of the building 35 m to 76 m above grade: 10 m
-
minimum
interior side yard setback in all other cases: 0m
-
minimum
communal amenity area to be provided: 20% of the required amenity area
-
minimum
required number of commercial parking spaces will be calculated using the
following rate: 3 per 100 m2 of gfa
-
minimum
required number of resident parking spaces will be calculated using the
following rates:
-
for
the first 162 d/u in the building: 0.5 per d/u
-
for
the remaining d/u in the building: 0.4 per d/u
-
minimum
required number of visitor parking spaces will be calculated using the
following rates:
-
for
the first 12 d/u: not required
-
for
the remaining d/u in the building: 0.083 per d/u
-
despite
Section 65, Table 65, Row 6(b), the maximum size and extent of projection for a
balcony is 2 metres and may be as close as 0 metres to the lot line.
-
the
holding symbol may not be removed until such time as the following conditions
have been fulfilled to the satisfaction of the General Manager, Planning and
Growth Management Department:
a.
The
execution of a site plan agreement; and
b.
The
conveyance of monies to be directed to a reserve account for off-site community
benefits as detailed in the site plan agreement referenced in a.
PROPOSED SITE/LANDSCAPE PLAN DOCUMENT 3
PROPOSED
GROUND FLOOR DOCUMENT 4
PROPOSED
LEVEL 2 DOCUMENT
5
PROPOSED
LEVELS 3-7 DOCUMENT
6
PROPOSED
LEVELS 8-10 DOCUMENT
7
PROPOSED
LEVELS 11-22 DOCUMENT
8
PROPOSED
LEVEL 23 DOCUMENT
9
PROPOSED
SOUTH ELEVATION(ALONG CATHERINE STREET) DOCUMENT 10
PROPOSED
PERSPECTIVE (ALONG CATHERINE STREET) DOCUMENT 11
URBAN
DESIGN REVIEW PANEL COMMENTS DOCUMENT
12
General Comments
· The proposed development is adjacent to the Centretown Heritage District. The City is waiting for a heritage report on this adjacent district to assess the impact the development will have on the district.
· The Panel supports the architecture of the project: it is a handsome building with many positive attributes. The building is well articulated; it is clear that the architect has given the expression a lot of thought.
· Concerns were expressed about building setbacks, especially in relation to future development of adjacent sites.
· The applicant is encouraged to take steps to ensure that the quality of the amenity space above the podium level is respected and considered over the long term, including after adjacent sites are developed.
Site Plan Setbacks
· The zoning line for the rear yard setback should be respected.
· The Panel feels very strongly that the setbacks along the east and north sides of the site should be bigger. The setbacks that the City has outlined in the zoning bylaw should be respected.
· The Panel has concerns about the impact of this development on the development potential of the surrounding sites. Unless in the same ownership, it is not good to limit the future development abilities of adjacent sites through setback restrictions. The adjacent site owners might undertake developments similar to the option illustrated by the applicant; but more likely they will not, due to the development taking place at different time with different objectives.
Ground Floor Treatment
· The Panel appreciates the helpful provision of the elevation details at the ground and lower floors of the podium.
· The applicant should strive to accommodate four street trees, not just the proposed three trees, along the Catherine Street streetscape.
· The majority of the Panel supports the clarity of expression of the seventh floor podium; however, some Panel members feel that the podium could do more to animate the street. For example, more articulation and human-scaled design for the ground floor retail would create more interest at street level for pedestrians. Respecting the front yard setback of 3 m would also create more pedestrian comfort at the street level. This will be a precedent-setting building on Catherine Street, and the applicant is encouraged to take additional steps to enhance the design at this scale.
· To help enhance the human-scale of the streetscape, more emphasis should also be placed on the main entrance. In addition, more dynamic forms should be incorporated to distract from the large parking access and truck docking station.
Sustainability Features
·
Simple solutions for the thermal breaks for the
balconies are now available. The applicant should explore these solutions.
There is an opportunity to use this kind of sustainability feature as part of
the sales pitch, which would be of benefit to the developer.
CONSULTATION DETAILS DOCUMENT 13
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. A summary of the public comments and staff
responses are provided below.
PUBLIC COMMENTS
1. I am
writing at the request of the Church Council at Centretown United Church,
507 Bank Street, Ottawa to register our concerns with aspects of the proposed
Zoning By-law amendment for construction of a 21-storey, 244 unit condominium
at 203 Catherine Street.
The
concerns of Council are in two areas:
1. A
reduction in the parking:
- Resident parking: From 110 spaces to 93
spaces
- Visitor parking: From 46 spaces to 19
spaces
- Retail parking: From 15 spaces to seven
spaces
- Bicycle parking: From 122 spaces to 110
spaces
The Council is concerned that any reduction
in parking requirements will lead to additional pressure on on-street parking
on neighbouring streets such as Argyle Avenue, Arlington Avenue, Flora Street,
and McLeod Street as Catherine Street has no on-street parking. Members of the
Centretown United Church congregation already notice that parking in evenings
and on weekends on Argyle Avenue is always at a premium. The addition of
this condominium with fewer than the required number of parking spots
along with new large condominium developments at Bank Street and
McLeod Street will exacerbate this problem.
We would request that there be no amendment
to the Zoning By-law to allow for reduced parking for this development.
2. A
reduction in the required rear yard from 7.5 m to 0.9 m for the first floor and
5 m for floors two to seven:
The Council is concerned that the area to the
rear of buildings on Argyle Avenue will be a less liveable space if rear yard
zoning requirements for buildings on both Argyle Avenue and Catherine Street
are not respected. The Church parking lot is at the rear of the apartment
building at 258 Argyle Avenue and making these areas more confined spaces will
increase security concerns for our congregation members when using the parking
lot, the wheel-chair ramp, and the rear entrance of the church.
We would request that the rear yard
requirement be maintained at 7.5 m for this development.
2. We are opposed to Zoning By-law Amendments
as found in your letter File No.: D02-02-11-0098. Specifically:
-
A retail
space of 698 m2 found on the main floor with direct access from Catherine
Street.
-
The removal
of the maximum floor space index to accommodate a 69.5-meter high mixed-use
building.
-
The change
and reduction required parking: From 110 parking spaces to 93 for 244 proposed
residential units.
-
The change
and reduction in required visitor parking: From 46 parking spaces to 19 for 244
proposed residential units..
-
The change
and reduction in required retail parking: From 15 spaces to seven spaces for
698 square meters of proposed retail space in this zone.
-
The reduction
in required Bicycle parking: From 122 spaces to 110 spaces.
-
A reduction in the communal amenity area from
50% to 35% of the total amenity area.
-
The reduction
in the width of the required landscape area abutting the street or residential
zone from 3 m to 0 m.
We are also very concerned with services on
Catherine Street being over taxed without proper upgrades to accommodate the
proposed increase in density “Electrical,
sewage and storm sewers”. Catherine Street at this particular section of
the street has a history of serious storm and sewer back up. We feel that
reductions to parking requirements under the current by-law will result in more
illegal parking in the neighbourhood. We are opposed to the reduction of
parking required for this development found at 203 Catherine Street.
3. As the owner of an adjoining
property at 258 Argyle Avenue, Centretown Citizens Ottawa Corporation (CCOC)
would like to express its concern and opposition to the SoBa Site Plan Control
and Zoning By-law Amendment Proposals.
Impact on
neighbours
In the proposed plan submitted, it
appears that the large bulk of the podium and block tower will overshadow the
north side adjoining properties located on Argyle Avenue, including 258 Argyle
Avenue. We do not believe that the design provides an appropriate building
transition to the residential community to the north in terms of scale. CCOC's
affected property at 258 Argyle Avenue is a seven-storey affordable rental
housing 75 tenants. Further to this, CCOC has received a building permit and is
presently installing solar collectors on the roof of 258 Argyle Avenue for a
new solar domestic hot water system. The design and choice of location for
these collectors was based on current zoning of properties to the South and we
are concerned that if a building triple the current zoning were approved, our
solar domestic hot water system would be rendered ineffective.
Parking
We commend the proponents for
decreasing the number of automobile parking spots, and agree that Centretown
developments should promote walking and cycling over cars, but the proponents
wish to actually build fewer bike parking spaces than what the zoning requires.
Bike parking should be increased, not decreased, to compensate for any
reduction to automobile parking.
Site
Services
Based on our recent experience with
our new development located at Catherine Street and Metcalfe Street, CCOC is
also concerned about the City's infrastructure and its ability on Catherine
Street to service the abundance of large new residential developments in the
Centretown area. The focus being primarily on storm and sanitary services,
street lighting, pedestrian-oriented sidewalks, and street side landscaping.
Catherine Street is serviced by an old combined sanitary and stormwater drain.
The site plan currently shows both sewer and storm water
feeding into this drain; the site plan should not be approved until the City or
the developer's civil engineers have confirmed there is demonstrable sufficient
capacity for connections to the combined system on Catherine Street.
Our understanding is that for a
combined sanitary and stormwater line like the one under Catherine Street that
this assessment would need to also be confirmed by the Ministry of the
Environment.
Height and
Density
CCOC is generally in favour of
increasing density with mid-rise towers on Catherine Street; however we are
opposed to this development because its current design is grossly out of scale
with the existing zoning. Although the design guidelines of the draft
Centretown Community Design Plan (CDP) suggest that 21-storeys could be
appropriate along Catherine Street if they meet certain conditions, this is a draft
document that should not yet hold any bearing. The CDP is not yet in place,
so it is premature to use it as an excuse for such a large rezoning. Mayor
Watson recently stated that developers should no longer treat zoning and
community design plans as mere suggestions. We demand that the City require the
same of this proposal. Either the current zoning applies, or the developer can
wait until the Community Design Plan is adopted and submit an application which
conforms to its guidelines.
If the Centretown CDP is adopted as
currently written, the proposed SoBa development would have to conform with the
stated design guidelines to exceed the current zoning. To do this, taller
buildings will require podiums, setbacks, minimum lot sizes, and maximum tower
floor plate sizes. The current SoBa tower floor plate is larger than the
recommended 750 m2 for towers that sit on podiums. The current SoBa
tower does not meet the minimum setback of 10 metres from rear and side
property lines. The SoBa proposal has presented a good occasion for the City
and Centretown community to begin the "cultural shift
in the development industry in Ottawa" that our Mayor has called for. The
SoBa podium exceeds the current zoning, and does meet the guidelines under the
draft CDP that would permit an increase in height. These documents must not be
treated as mere suggestions.
4. I am writing to you on behalf of Centretown Churches Social
Action Committee (CCSAC) of which I am Co-Secretary. CCSAC is a not for profit
organization, founded in 1967 to respond to social need in the Centretown area
and incorporated on December 14, 2009, located at 507 Bank Street. CCSAC is
currently comprised of 24 churches and its largest single activity is the
Centretown Emergency Food Centre (CEFC). The Centre’s mandate is to provide
food security for low-income residents of Centretown. It is open four days a
week, and provides clients with a 3-4 day supply of nourishing food according
to family size, as well as referrals to other social services.
CCSAC would not be able to deliver this
service, without dedicated volunteers, who donate approximately 7,200 hours to
the CEFC each year. They require parking spaces in Centretown United Church’s
parking lot to fulfill this work, as well as available street parking. We feel
that residents, visitors and clients of the retail stores at this site will
make parking a difficult chore to find, and frustrate our valued volunteers,
eventually turning away these volunteers.
The subject site abuts onto Centretown United
Church’s parking lot. We object to the Zoning By-Law Amendment Proposal of the
GM3 F(3.0) H(19) regarding:
·
A
reduction in the required parking as follows:
o
Resident
parking
o
Visitor
parking
o
Retail
parking
Please consider our concerns in the
evaluation of this proposal.
COMMUNITY ORGANIZATION COMMENTS
Centretown Citizens Community Association
The proposed building is totally out of scale with the surrounding
neighbourhood. The draft CDP for
Centretown does propose higher buildings along Catherine Street and in other
areas of Centretown but only within certain design guidelines which require
podiums etc. which this site is too small to accommodate. Furthermore the draft CDP is currently undergoing
revisions and, until approved by Council, cannot be used to rationalize new
development applications. This
application should be deferred until the CDP has been reviewed and approved by
Planning Committee and Council.
RESPONSE TO PUBLIC COMMENTS
Height/Density
It is the Department’s position that the site is appropriate for the
proposed high‐rise building. The massing and height of the proposed building will
provide a buffer between Highway 417 and the stable interior portion of
Centretown. The massing of the building is significantly reduced in the
northern portion of the lot through the T‐shaped design, which provides for a much
smaller built form directly adjacent to the lots to the north, particularly the
existing church. The proposal is in conformity with the policies of the
Provincial Policy Statement, the proposal capitalizes on an intensification
opportunity by developing an underutilized site with significant development potential
in an area where services and infrastructure are available.
The City’s Official Plan also supports intensification in appropriate
locations in the General Urban Area, including underutilized areas and
contaminated sites which would benefit from remediation. Moreover, the proposed
23‐storey development is also consistent with the proposed policies of the
Draft Centretown CDP, which envisions Catherine Street as a vibrant corridor
with high‐rise buildings up to 25-storeys.
While additional shadowing on properties to the north is anticipated
from the proposed development, when it is compared to what is currently
permitted on the site, for the most part this shadowing does not impact outdoor
amenity areas. Moreover, the additional impact compared to what would be
permitted under the Draft Centretown CDP is negligible. As such, it is our
opinion that the proposed height and massing are appropriate.
Parking
The Official Plan states that opportunities should be considered to reduce parking requirements and promote increased usage of walking, cycling and transit, particularly in the vicinity of transit. The Department does not have issue with the proposed reduction to parking spaces for future residents as detailed in Document 2. However, the Department did initially have concern about the requested reductions, recognizing the existing pressure for on-street parking in the area due to deficiencies of parking spaces in the surrounding area. The numbers proposed in the amendment reflect the parking requirements of the former City of Ottawa Zoning By-law, which the Department has been consistent in applying when applicants request relief from parking requirements.
There was an initial request for relief from the required bicycle parking and the Department would not support the request. The revised concept does not include a reduction in bicycle parking.
Also, the subject site currently contains two driveways to the building. Through the redevelopment, the driveway will be consolidated into one single access, and the introduction of on-street parking on the north side of Catherine Street means that the potential for additional on-street parking spaces is created through the proposed development.
The loading space has been provided within the interior of the building to minimize any impact of loading and delivery vehicles on the adjacent buildings.
Residential
parking is being provided within the building, but it is anticipated that
patrons of any new land uses will not be required to drive to and from the site
and will in fact be able to walk, cycle or take public transit, offering a
viable alternative to car ownership and requirement for a parking space. The addition of new residents to this section
of downtown will contribute to the strengthening of local demand for retail and
services, which would benefit the entire area by being accessible on foot. The Department is satisfied that the
proposed amount of residential, visitor and retail/commercial parking will be
sufficient for the building and will not cause undue adverse impact on the
surrounding community.
Rear Yard Setback
While the requested change to zoning is to permit the lower storey of the building to be 0.5 metres from the north property line, the upper storeys of the building are setback 7.5 metres from the north property line. The subject site backs onto the blank rear wall of a church and the blank rear wall of garages. The portion of the proposed development backing onto the church only consists of one-storey; above that podium an outdoor amenity space is provided which creates a gap in the T configuration of the building. Given this T configuration, the width of the portion of the building for which the reduced setbacks are required above the first floor is only 18.3 m. This portion backs onto a paved parking area and the blank wall of garages associated with the building to the north. As such, no negative impacts on surrounding properties are anticipated from the requested rear yard setback reduction.
Communal Amenity Area
The amount of total amenity area being provided significantly exceeds
the Zoning By‐law requirement (2,590 m² or 10.6 m² per unit, whereas the requirement is
1,464 m² or 6 m² per unit). Moreover given the proximity of the site to a range
of downtown amenities, it is anticipated that the amount of communal amenity
area being provided will be sufficient to meet the needs of the residents.
Width of Landscaped Area
The landscaped area would generally be required along Catherine Street and
along the rear lot line. However, the right-of-way widening provided along
Catherine Street will provide sufficient space for street trees, future
pedestrian and cyclist infrastructure and amenities, as discussed above.
Moreover, the rear lot line backs onto the blank rear wall of the adjacent
church, the blank rear wall of adjacent garages, and a small paved parking
area. It is therefore not anticipated that the lack of a landscaped area along
the rear lot line will create any negative impacts on surrounding properties.
The reduction in the width of the landscaped area is therefore deemed
appropriate.
RESPONSE TO COUNCILLOR HOLMES’ COMMENTS
1. Twenty-three storeys is excessively high for this small lot. Please provide the chronology by which this developer submitted a 15-storey version of this development in July 2011, and following consultation with city staff and the Urban Design Peer Review Panel resubmitted a version that was sub sequentially 40% taller than originally proposed.
Staff Response:
At the pre-consultation meeting on July 6th, 2011 Staff were presented with a 15-storey building that went lot line to lot line on all four sides. Staff indicated to the applicant that it would be more appropriate to redistribute the mass to ensure appropriate setbacks at the rear and side lot lines.
On September 1st, at the Urban Design Review Panel Pre-consultation, the applicant presented a 20-storey building with a 5m rear-yard setback. Staff again indicated that the current rear-yard setback of 7.5m and the 10m between towers must be respected. The Site Plan Control Submission on October 6th was revised slightly and the building came in at 21-storeys, but still did not respect the setbacks. On November 16th, the applicant presented a plan that was 23-storeys tall and respected both the rear yard setback and a 10m setback to side lot lines that will permit a 20-metre separation between towers, if towers are subsequently proposed on adjacent properties. Through the urban design review panel consultations, meetings with staff and public comments, this application has had many iterations. When reviewing, staff weighed a wider, shorter building against a thinner, taller building. The massing of the proposed building is significantly reduced on the northern, eastern and western portions of the lot through the T‐shaped design, which provides for a much smaller built form directly adjacent to the lots to the north, particularly the existing church.
While additional shadowing on properties to the north is anticipated from the proposed development, when it is compared to what is currently permitted on the site, for the most part this shadowing does not impact outdoor amenity areas. Moreover, the additional impact compared to what would be permitted under the Draft Centretown CDP is negligible. As such, it is our opinion that the proposed height and massing are appropriate and constitute a preferable design option.
2.
The
podium at seven-storeys is overbearing for this section of Catherine Street.
The blank end walls with no side yard setbacks would encourage an unbroken wall
along the street which is in contravention of our urban design goals.
3.
The
tower, at approximately 12,250 sq. ft. is 50% bulkier than the maximum ‘point
tower’ size recommended in the draft Centretown Community Design Plan.
4.
The setback on the north lot line of only 5.0 to
7.5 metres is insufficient, and will create a looming mass that will overshadow
the significant heritage buildings on Argyle Avenue. The rear yard setback
should be 20 metres.
Zoning - 203 Catherine
Street
ZONAGE – 203, Rue catherine
ACS2011-ICS-PGM-0235 SOMERSET (14)
(This matter is
Subject to Bill 51)
REPORT
RECOMMENDATION
That Planning Committee recommend Council
approve an amendment to Zoning By‑law 2008-250 to change the zoning of
203 Catherine Street from GM3 F(3.0) H(19) to GM3[XXXX] H(76)-h, as shown in
Document 1 and as detailed in Document 2.
Bliss Edwards, Planner, provided an overview of the application and
staff’s rationale for recommending approval. A copy of her PowerPoint
presentation is held on file with the City Clerk.
Committee heard from the following public
delegations:
Daniel Mullaly* spoke in opposition to the staff
recommendation. He also provided
Committee with a detailed written submission, copies of which are held on file
with the City Clerk. He expressed
concern that approval of the application would set an extreme precedent and
negate the Community Design Plan (CDP) process that was in progress, the
results of which would be coming forward in soon. With respect to the
Provincial and City policies supporting intensification, he noted that a more
intensive use of this area of Catherine Street was possible within the
constraints of the existing Centretown Secondary Plan. He spoke to the community’s frustration with
staff bringing forward 9 development applications in the past year, despite
community concerns and in the absence of the community plan. He emphasized the need for the new plan,
which could be a reference point for planning decisions going forward.
Ray Sullivan and Graeme Hussey, Centretown
Citizens Ottawa Corporation,
spoke in opposition to the staff recommendation. Owners and operators of two
sites on Argyle Avenue, they noted that they were erecting solar panels on the
roof of the property that would be in the shadow of the proposed development. Mr. Sullivan noted that, while they supported
intensification in Centretown and along the Queensway corridor, it should
happen within the context of good planning. He questioned the rationale for the
extent of intensification on this site, suggesting it would set a bad
precedent. He referenced the Mayor’s budget speech asking developers not to
treating zoning and CDPs as mere suggestions, and urged Committee to heed these
comments.
Catherine Grechuta, Fotenn Consultatns and
Babak Eslahjou, Core Architects*
spoke for the applicant in support of the staff recommendation. Mr. Eslahjou provided an overview of the
architectural elements of the building.
Ms. Grechuta raised some additional points. With respect to sun
shadowing, she indicated that a comparative analysis was done between the
current proposal and what would be allowed under existing zoning. It indicated
that both would have shadow impacts on properties to north, but the current
proposal would result in longer, slimmer shadows pass over sites to north more
quickly. Specifically, CCOC’s property
would be impacted, but under the current proposal all sun shadowing would be
off that property. With respect to building height and density , she noted that
no units were added as a result of reshaping the building from 15 stories to 23
stories. She further noted that the
staff inventory of servicing, as outlined in the staff report, did not
indicated a required upgrade for the sanitary sewer.
* Presentation
and/or comments held of file with the City Clerk.
Councillor Harder put forward the following
technical amendment to correct the staff report:
MOTION NO PLC 25/3
Moved by Councillor J. Harder
BE
IT RESOLVED that the following changes be made to the details of the
recommended zoning contained in Document 2 of the staff report:
Add
the following to the existing column V changes:
-
despite
Table 187, row (g) there is no maximum floor space index
-
Minimum
width of landscaped area: no minimum
Replace
the following text in the existing Column V changes:
-
minimum
required number of commercial parking spaces will be calculated using the
following rate: 3 per 100 m2 of gfa;
with,
-
minimum
required number of commercial parking spaces will be calculated using the
following rate: 1 per 135 m2 of gfa;
That there be no further notice pursuant to Section 34 (17) of the Planning Act.
CARRIED
The report recommendation
was put to Committee and CARRIED, as amended, with the following direction to
staff:
DIRECTION TO STAFF
That staff provide a memo to
Council outlining the water and wastewater requirements
for the site, and that this
be provided prior to Council’s consideration of the Zoning By-lawamendment.