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13. ZONING - 450 CHURCHILL AVENUE ZONAGE –
450, AVENUE CHURCHIL |
Committee
recommendation
(This matter is
Subject to Bill 51)
That Council
approve an amendment to Zoning By‑law 2008-250 to change the zoning of
450 Churchill Avenue from I1A to LC[XXXX] H(16) and R3A[XXXX] as shown in
Document 1 and as detailed in Document 2.
Recommandation DU Comité
(Cette question est assujettie au Règlement 51)
Que le Conseil approuve
une modification au Règlement de zonage
2008-250 afin de changer la désignation de zonage du 450, avenue
Churchill de I1A à LC[XXXX] H(16) et à R3A [XXXX], 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 17 November 2011 (ACS2011-ICS-PGM-0234).
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
17 November 2011 / le 17 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,
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: |
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OBJET : |
REPORT RECOMMENDATION
That the Planning Committee recommend
Council approve an amendment to Zoning By‑law 2008-250 to change the
zoning of 450 Churchill Avenue from I1A to LC[XXXX] H(16) and R3A[XXXX] 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 afin de changer la
désignation de zonage du 450, avenue Churchill de I1A à LC[XXXX] H(16) et à R3A
[XXXX], comme il est indiqué dans le Document 1 et expliqué en détail dans le
Document 2.
BACKGROUND
The subject property is located within the Westboro Community. The site is located on the west side of
Churchill Avenue at the south-west corner of the intersection of Churchill
Avenue and Ravenhill Avenue. The site is a corner through lot that has frontage
on Edison Avenue, Ravenhill Avenue and Churchill Avenue. The site has an area of 2 445 sq. m. It has a
frontage of 40.2 m on Churchill Avenue and Edison Avenue and a lot depth of
60.7 m (see Document 1).
Currently, the site is home to the former Westboro United Church, a
1913 building. To the south of this
site, along Churchill Avenue toward Kenwood Avenue are single detached dwellings
and a semi-detached dwelling. On the east side of Edison Avenue toward Kenwood Avenue
are single detached dwellings and a semi-detached dwelling. To the west and at
the rear of the site, across Edison Avenue, are recently built semi-detached
dwellings and single detached dwellings toward Kenwood Avenue. To the north of
the site, across Ravenhill Avenue is the Churchill Alternative School site
owned by the Ottawa Carleton District School Board. The existence of the school has resulted in
limitations on parking and traffic circulation on Ravenhill Avenue at certain
hours of the day. To the east, across Churchill Avenue are small apartment
buildings, residences converted to commercial and office uses, single detached dwellings
and townhouse units and a neighbourhood convenience store.
Purpose of Zoning Amendment
The purpose of the applications is to enable the former Westboro United
Church building to be used by the Ottawa Music Foundation for office purposes
for Bluesfest and other music organizations as well as for community space
including a community centre and community health and resource centre. The
balance of the site, which is occupied by additions at the rear of the church
building adjacent to Ravenhill Avenue and Edison Avenue that are to be
demolished, will be developed with a planned unit development of 16
three-storey townhouse units and four live-work/office/townhouse units in a
three-storey building facing Ravenhill Avenue at the immediate rear of the
original church building.
Existing Zoning
The site is currently zoned Minor Institutional (I1A). This zone allows
a place of worship and a day care, which are the current uses of the site. In
addition, a community centre and a place of assembly are permitted.
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 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. 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 and range of housing types and densities which
efficiently use land, resources, infrastructure and public service facilities,
and support the use of alternative transportation modes and public transit.
The
proposed zoning allows for a mix of residential, commercial and retail uses,
which will efficiently use land and contribute to a balanced community.
The site
is located on an arterial road and transit priority corridor (Churchill
Avenue), which provides excellent access to the site and is a focus for a
mixed-use development. The site is
conveniently located nearby residential and commercial areas to allow for
access by pedestrians. The density of the proposal makes good use of existing
urban lands, services, and infrastructure. Staff conclude that the proposal is
consistent with the matters of provincial interest as outlined in the Planning Act and PPS.
Official Plan
Strategic Direction
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. The proposed development
provides a density that will support this overall goal.
Land Use Designation (Section 3.6.1)
The subject property is designated “General Urban Area” on Schedule B
of the Official Plan. The General Urban Area designation permits the
development of a wide range and choice of housing types to meet the needs of
all ages, incomes and life circumstances, in combination with conveniently
located employment, service, cultural, leisure, entertainment and institutional
uses. The non-residential uses that are permitted in areas under this
designation are aimed at satisfying the local, everyday needs of the residents,
and direct those uses that also serve wider parts of the city to the edges of
neighbourhoods on higher-order roads, where the needs of these land uses can be
more easily met, and impacts controlled.
The proposed development achieves a more intense, yet human-scaled
built form with a mix of uses in this part of Westboro and will contribute to
supporting the public transit system and community services, and therefore is
in conformity with the General Urban policies.
Compatibility and Urban Design (Section 2.5.1 and 4.11)
Section 2.5.1 establishes design objectives which describe the vision for
the form of the City’s built environment. These objectives are broadly stated
and are applicable to all land use designations either at the city-wide level
or on a site-specific basis. Design principles are further set out to describe
how the City intends to achieve the design objectives, with acknowledgment that
all the design objectives may not be achieved or be achievable in all cases.
The proposed development is consistent with and implements the design
objectives which speak to enhancing the sense of community, defining public and
private spaces through development, and having new development respect the
character of existing areas. Public and private spaces are being further
defined through the establishment of a strong street edge and pedestrian environment.
The proposed new development respects the character of the existing area by
complementing the massing pattern, height, and character of the surrounding
context.
Sections 4.11 as well as the Urban Design Guidelines provide further
direction on design and compatible development. Twelve criteria are listed in
Section 4.1.1 in evaluating a proposal for compatibility:
a.
Traffic:
Churchill Avenue, as a major collector road,
has the capacity to adequately handle the limited amount of additional traffic
generated by this planned unit development of 16 townhouse units and four
live-work/office/townhouse units and the new uses occupying the existing church
building.
b.
Vehicular
Access:
Site access is proposed onto Churchill
Avenue. Ravenhill Avenue would normally have been preferred, but is not in this
case because of limited access restrictions during certain hours of the day as
well as conflicts with the adjacent alternative school and student drop off
activity, nor is Edison Avenue preferred because it is a local street with very
low traffic volume due to its low density residential nature. Conversely,
Churchill Avenue is preferred from a neighbourhood compatibility point of view.
The access serves only 24 parking spaces which equates to only six to eight
vehicles per hour in the peak period or one vehicle every eight to 10 minutes
with lower volumes for the rest of the day.
c.
Parking
Requirements:
The existing church building was exempt from
providing parking spaces on site with its initial construction. The former use
of the site as a church generated a larger requirement for parking than the
proposed new uses of the church building. In addition, the community space
planned will likely be used in the evening and weekends, when the office space
is not occupied. The Transportation Overview notes that there are approximately
100 parking spaces on the streets in the immediate area (Churchill Avenue,
Kenwood Avenue, Edison Avenue and Melbourne Avenue) with three hour parking,
which is much in excess of the parking required by the new uses in the church
building. Ravenhill Avenue allows three-hour parking on both sides of the
street with prohibitions for one hour in the morning and afternoon to allow for
student transportation activity.
d.
Building
Height and Massing:
The proposed three-storey new development is
compatible with its surroundings through a variety of design techniques. A
three-storey building is compatible in terms of height with the adjacent one
and a half and two-storey buildings on the abutting properties. Most of the
townhouse units have their private amenity space oriented to the interior of
the site and the interior five-unit townhouse building has its rear yard
amenity space abutting the rear yards of the two adjacent residential
properties. The reduced massing of the 16 townhouse units, with their stepping
back of the third storey from the front façade of the lower two floors is
intended to increase compatibility with adjacent residential units. Landscaping
is used as means of reducing visual impacts and improving compatibility with
adjacent sites.
e.
Pattern
of the Surrounding Community:
The techniques listed in “d.” are also used
to compensate for any variation in design from the adjacent community which is
essentially low-rise and lower density residential.
f.
Outdoor
Amenity Areas:
The design of this project respects the
privacy of adjacent outdoor amenity areas. Additional landscaping is being
provided on site and setbacks for the proposed building are designed to
mitigate impacts on adjacent outdoor amenity areas.
g.
Loading
Areas, Service Areas, and Outdoor Storage:
No loading areas are required for the
proposed uses, although drop-off locations are available on adjacent streets.
The underground parking lot includes a mechanical service area and a garbage
room. No outdoor storage of refuse or materials is proposed.
h.
Lighting:
Site lighting must be designed
not to spill over onto adjacent properties.
- Noise
and Air Quality:
All on-site parking is
underground. The driveway to the parking garage is located between the three units
facing Churchill Avenue and the existing church, and therefore is designed to
minimize the potential for adverse effects on adjacent properties.
- Sunlight:
The building is three storeys
(11 meters) in height and is located at the southwest corner of an
intersection. Therefore, the shadows from the proposed new development will
largely fall within the site itself or onto the abutting streets.
- Microclimate:
Given the low height of the
proposed buildings, no noticeable change in the microclimate is anticipated.
- Supporting
neighbourhood services:
The project is intended to
provide supporting neighbourhood services in the form of meeting space and
space for community services.
The subject site is well suited to supporting higher density residential
development. The surrounding area contains a predominance of residential and
employment uses and the General Urban designation supports the proposed uses.
The proximity of commercial and employment areas offers ideal integration
opportunities based on common linkages (roads and pathways). Additionally, the
road network can easily accommodate a minor increase in traffic with public
transit servicing the site along Churchill Avenue for service to and from the
downtown core.
Details of Proposed Zoning
The Zoning By-law Amendment proposes to rezone the lands from Minor Institutional Zone (I1A) to LC[XXXX] H(16) and R3A[XXXX], which would permit the conversion of the former church building to permit Local Commercial uses and the proposed planned unit development of 16 three-storey townhouse units and four live-work/office/townhouse units, a reduction in the required parking and modifications (reductions) to the yard provisions. The details of the zoning amendment are contained in Document 2.
Traffic Issues
Site access is proposed onto Churchill Avenue. Ravenhill Avenue would normally have been preferred, but is not in this case because of limited access restrictions during certain hours of the day as well as conflicts with the adjacent alternative school and student drop off activity, nor is Edison Avenue preferred because it is a local street with very low traffic volume due to its low density residential nature. Conversely, Churchill Avenue is preferred from a neighbourhood compatibility point of view. The access serves only 24 parking spaces which equates to only six to eight vehicles per hour in the peak period or one vehicle every eight to ten minutes with lower volumes for the rest of the day.
Noise Issues
A noise impact assessment was completed as the site abuts Churchill Avenue, a major collector road. The Assessment Report concluded that the predicted noise levels in the three townhouse units facing Churchill Avenue will experience noise levels above Ministry of the Environment (MOE) criteria at the daytime building face and the night-time building face.
For development to occur within accepted MOE standards, central air conditioning is required only for the three units abutting Churchill Avenue. In addition, a standard noise warning clause is required to be included in all offers of purchase and sale for these units that states that the unit has been supplied with a central air conditioning system which will allow windows and doors to remain closed, thereby ensuring that the indoor noise levels are within the City’s and the Ministry’s noise criteria. To meet the Ministry’s criteria for daytime noise levels, the first floor of the three units facing Churchill Avenue must use EW5 construction, including double-glazed windows and exterior doors with 45 mm glass-fibre reinforced plastic doors having foam or glass-fibre insulation and up to 20% of the area glazed.
The inclusion of these standard measures to will allow the residential development to proceed in accordance with MOE criteria with respect to environmental noise.
Servicing Issues
The existing infrastructure in the area has adequate capacity to support the proposed development.
Concurrent Application
A Site Plan Control application is being processed concurrently.
Conclusion
The proposed development supports the direction of the Planning Act and Provincial Policy Statement by creating new development at densities and locations that efficiently uses land, existing infrastructure and supports alternative transportation. It represents an appropriate form of intensification, and is in conformity with the policies in the Official Plan.
Staff are satisfied that compatibility, design, and transportation aspects of the site have been adequately considered in light of the relevant Official Plan policies and design guidelines. The proposed Zoning By-law amendment conforms with the general intent of the Official Plan and existing zoning in the area, and as such, staff recommend approval of the proposed zoning.
RURAL IMPLICATIONS
N/A
CONSULTATION
Notice of this application was carried out in
accordance with the City's Public Notification and Consultation Policy.
COMMENTS BY THE WARD COUNCILLOR
This proposal is a shining example of a developer working with nearby residents to create a plan that is profitable, compatible and desirable. Springcress has continuously worked with the community and Churchill Alternative School to ensure the most sensitive possible development. They have recently committed to working with the school travel planning group to ensure their construction puts the safety of school children first, and I look forward to holding them to that and working with them to make it a reality.
I am pleased to see this development come forward and for the vitality it will bring to the area, both in terms of new residents and a new home for Ottawa Bluesfest and other festivals.
I am especially pleased to see 11 new doors and sets of eyes on the street, and housing that will attract more families to the area.
LEGAL IMPLICATIONS
There are no legal
implications associated with this report.
RISK MANAGEMENT
IMPLICATIONS
N/A
FINANCIAL IMPLICATIONS
There are no direct financial implications associated
with this report.
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 Plan
Document 4 Proposed Landscape Plan
Document 5 Proposed Elevations
Document 6 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
- Rezone the property shown on Document 1 as follows:
- Area A from I1A to R3A[XXXX];
- Area B from I1A to LC[XXXX] H(16)
- Add a new exception to Section 239, Urban Exceptions, with provisions similar in effect to the following:
a. In Column II, the text LC[XXXX] H(16); and,
b. In Column IV, the text:
- drive-through facility
- service and repair shop
c. In Column V, the text:
-
Minimum
corner side yard setbacks: 0m
-
Minimum
interior side yard setbacks: 0.5m
-
Minimum
rear yard setbacks: 0.75m
-
Maximum
building height: 16m
-
Minimum
width of landscaped area: No minimum
-
No
parking spaces are required for the following uses:
-
office
-
community
centre
-
community
health and resource center
-
instructional
facility
-
The
lands zoned LC[XXXX] H(16) and R3A[XXXX] are considered one lot for zoning
purposes
- Add a new exception to Section 239, Urban Exceptions, with provisions similar in effect to the following:
a. In Column II, the text R3A[XXXX]; and,
b. In Column V, the text:
-
Minimum
front yard setback: 2.4m
-
Minimum
corner side yard setback: 1.2m
-
Minimum
interior side yard setbacks: 1.2m
-
The
lands zoned LC[XXXX] H(16) and R3A[XXXX] are considered one lot for zoning
purposes
PROPOSED SITE PLAN DOCUMENT
3
PROPOSED LANDSCAPE PLAN DOCUMENT
4
PROPOSED ELEVATIONS DOCUMENT
5
CONSULTATION DETAILS DOCUMENT 6
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.
SUMMARY OF PUBLIC COMMENTS
1. THE DEVELOPER
We are pleased with the collaboration we had so far with the developer and
architect and are hopeful it will continue.
2. ZONING
The proposal requests two separate Local Commercial Exception Zones: one for the original church building and the land under it, and one for the severed balance of the site. Edison Avenue and Churchill Avenue have an R3R zoning next to this property and it would be better in if this site other than the church itself could be zoned as an R3 zone.
RESPONSE:
We agree that the whole site does not need to be zoned commercial and as such are recommending that the three units facing Churchill Avenue, the former church and the four live/work units along Ravenhill Avenue be placed in a Local Commercial zone, and that the remainder of the site be placed in a Residential Third Density zone (See Document 1 and 3).
3. UNDERGROUND PARKING ENTRANCE LOCATION
It is important that the entry/exit to the underground parking be off Churchill Avenue.
Adjacent to the subject property across Ravenhill Avenue to the north is the Churchill Alternative Public School where students from kindergarten up to and including Grade 6 attend. In this school building, they also offer before-school day care and after-school day care for these students. The impact of this is that there are children coming and going from early in the morning until into the evening, not only in the busy start and end time periods (7:45 a.m. to 8:15 a.m. and 2:15 p.m. to 2:45 p.m.) when there are restrictions on vehicle traffic on Ravenhill Avenue.
Edison Avenue is a major route for school children whether walking, cycling or being driven, as well as for school buses. And, during the restriction time periods on Ravenhill Avenue between Churchill Avenue and Edison Avenue, the vehicular traffic increases on Edison Avenue, particularly between Ravenhill Avenue and Kenwood Avenue. Also, the traffic on Edison Avenue is going to be further impeded by increased parking on the sides of the street, for example, from the staff and activities at the Church and also from the second vehicles of those in the residential units for which there is not, for most, second underground parking spaces.
Already without these changes, traffic on Edison Avenue in the winter, once the snow piles up, is often down to one lane, with vehicles including school buses having to pull in between parked cars to let other vehicles pass through the single lane.
For these reasons, neither Ravenhill Avenue nor Edison Avenue is an option for the underground parking entry/exit.
RESPONSE:
Staff agrees. The site access is
proposed onto Churchill Avenue. Ravenhill Avenue would normally have been
preferred, but is not in this case because of limited access restrictions
during certain hours of the day as well as conflicts with the adjacent
alternative school and student drop off activity, nor is Edison Avenue
preferred because it is a local street with very low traffic volume due to its
low density residential nature. Conversely, Churchill Avenue is preferred from
a neighbourhood compatibility point of view. The access serves only 24 parking
spaces which equates to only six to eight vehicles per hour in the peak period
or one vehicle every eight to ten minutes with lower volumes for the rest of
the day.
4. BUILDING SETBACKS ALONG RAVENHILL
The site plan does show that the setback of existing buildings on Edison Avenue and the edge of the proposed multiple attached dwellings do not align. Increased setback from the street in keeping with that of surrounding homes will maintain the look and the feel of the street.
RESPONSE:
The proposed setback to Edison Avenue will be 2.4 m. Street trees and landscaping will be required to establish a pedestrian-friendly street edge.
5. BUILDING HEIGHT
Maximum height similar to surrounding homes (including third floor setbacks) would go a long way to integrating this development into the streetscape. This is consistent with the idea that the church building is the focus of the site and in keeping with the character of the neighbourhood.
RESPONSE:
The residential zone will have the 11 m height
limit, which is consistent with the surrounding R3R zone and the Local
Commercial zone will be approximately 16 m to recognize the existing height of
the church.
6. PARKING REQUIREMENTS
There are concerns about the request for a
relief from parking requirements for the existing church building. Although the
building currently has this privilege, it is believed that its current use as a
day care during the week means that is has minimal parking requirements. It is
also believed that this privilege was granted at a time when people drove less.
Any increased parking needs will result in more cars parking on the street, and more cars circling the blocks looking for parking. This is potential dangerous to the children in the neighborhood, especially with an elementary school across the street. It will also be unpleasant for those living nearby. To make this kind of parking readily available, there will need to be roadwork done on all of these streets.
RESPONSE:
The existing church building was exempt from providing parking spaces
on site with its initial construction. The former use of the site as a church
generated a larger requirement for parking than the proposed new uses of the
church building. In addition, the community space planned will likely be used
in the evening and weekends, when the office space is not occupied. Roadwork,
including sidewalks and curbs, etc., will be completed as part of this project
to formalize on-street parking spaces. The Transportation Overview notes that
there are approximately 100 parking spaces on the streets in the immediate area
(Churchill Avenue, Kenwood Avenue, Edison Avenue and Melbourne Avenue) with
three hour parking, which is much in excess of the parking required by the new
uses in the church building. Ravenhill Avenue allows three-hour parking on both
sides of the street with prohibitions for one hour in the morning and afternoon
to allow for student transportation activity. The Official Plan seeks to
promote alternate modes of transportation, and this proposal satisfies that
goal.
COMMUNITY ORGANIZATION COMMENTS
The Westboro Community Association appreciates the effort the developer and his team have put into trying to reach a consensus on the development at 450 Churchill Avenue. That being said we do have some concerns.
1. Edison Avenue and Churchill Avenue have an R3R zoning next to this property and it would be better in our opinion if this site other than the church itself could be zoned as an R3 zone.
2. The local streets are in poor condition and we have concerns not just about parking but traffic that will impact not just the school but also the existing neighbourhood. We strongly urge the City to consider all this before construction begins not down the road when issues are noted. Storm water management is also an issue of concern not just for the site but the impact on the surrounding streets.
3. We would like to see some of the proposed uses for the reconfigured church building be reconsidered as they could require a lot of on street parking which is currently not available and will be even less available when this project is completed.
4. While we accept the new height for the residential units we also have a concern that grades are sometimes raised and result in units higher than 11M. The City is currently looking at how this may be better controlled and we see this as a great opportunity to ensure the height is 11M from the original grade.
5. We believe the neighbours as well as the developer have gone to great lengths to ensure this project blends into the community and we sincerely hope their concerns are treated objectively.