1. ZONING – 74 EQUESTRIAN DRIVE ZONAGE –
74, PROMENADE EQUESTRIAN |
Committee
recommendation
That Council
approve an amendment to Zoning By‑law 2008-250 to change the zoning of 74
Equestrian Drive from Residential First Density Subzone T (R1T) to Residential
Third Density Subzone B exception [XXXX] (R3B[XXXX]) as shown in Document 1 and
as detailed in Document 2.
Recommandation DU Comité
Que le Conseil approuve
une modification au Règlement de
zonage no 2008-250 en vue de changer le zonage de la propriété
située au 74, promenade Equestrian, de Zone résidentielle de densité 1,
Sous-zone T (R1T) à Zone résidentielle de densité 3, Sous-zone B avec exception
[XXXX] (R3B[XXXX]) afin de permettre l’aménagement d’un complexe immobilier,
comme le montre le document 1 et l’explique le document 2.
Documentation
Deputy
City Manager's report, Infrastructure
Services and Community Sustainability, dated 13 December 2011 (ACS2012-ICS-PGM-0003).
Report to/Rapport au:
Comité de l'urbanisme
and Council / et au Conseil
13 December 2011 / le 13 décembre 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 : Derrick Moodie, Acting Manager/Gestionnaire
intérimaire, Development Review-Suburban Services/Examen des projets
d'aménagement-Services suburbains, Planning and Growth Management/Urbanisme et
Gestion de la croissance
(613) 580-2424,
15134 Derrick.Moodie@ottawa.ca
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 74 Equestrian Drive from
Residential First Density Subzone T (R1T) to Residential Third Density Subzone
B exception [XXXX] (R3B[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 no 2008-250
en vue de changer le zonage de la propriété située au 74, promenade Equestrian,
de Zone résidentielle de densité 1, Sous-zone T (R1T) à Zone résidentielle de
densité 3, Sous-zone B avec exception [XXXX] (R3B[XXXX]) afin de permettre
l’aménagement d’un complexe immobilier, comme le montre le document 1 et
l’explique le document 2.
The subject property, 74 Equestrian Drive, is located on the east side of Equestrian Drive, between Spur Avenue and Bridgestone Drive in the Bridlewood Community.
The subject property is currently a farmstead that has been at this location for many years and is one of the last remnant parcels of undeveloped land in the community. There is a detached dwelling, large barn and five associated outbuildings on the property. The subject site is irregular in shape, with 38.4 metres of frontage on Equestrian Drive and an area of approximately 0.83 hectares. The surrounding lands have been developed as a residential subdivison. To the north and west of the property are detached homes fronting onto Equestrian Drive and Spur Avenue. The easterly and southeasterly sides of the property abut freehold townhouses located on Waymark Crescent.
Purpose of Zoning Amendment
The purpose of the requested Zoning By-law Amendment is to rezone the property to accommodate its redevelopment as a planned unit development comprised of 22 dwelling units on a private street.
Existing Zoning
The subject property is currently zoned Residential First Density Subzone T (R1T). This zone permits primarily detached dwellings, together with other uses such as a secondary dwelling unit, retirement home, bed and breakfast and group home. A maximum building height of 11 metres is permitted.
Proposed Zoning
The proposed amendment is to rezone the subject property from the R1T Zone to a site-specific R3B Zone, to allow a planned unit development, defined as two or more residential use buildings on the same lot.
Longwood Building Corporation proposes to develop the site with 18 single storey townhouses and four single storey semi-detached homes. The homes will each have approximately 9 metres of frontage on a 6.5-metre wide dead-end private street. Fifteen of the 22 units will each have a double garage, with the remaining seven units having a single garage. All garages will be set back a minimum of 5.2 metres from the private street, to accommodate an additional parking space in the driveway. An exception to the proposed R3B zone provisions would specify a 5.5-metre rear yard depth and a 3.5-metre interior side yard depth for the proposed units.
Provincial Policy Statement
Under Section 3 of the Planning Act, all decisions affecting planning matters shall be consistent with the Provincial Policy Statement (PPS). The PPS states that healthy, liveable and safe communities are created by promoting efficient development and land use patterns, and that planning authorities shall promote opportunities for intensification and redevelopment where it can be accommodated, taking into account the availability of existing infrastructure and public service facilities.
An appropriate range of housing types and densities is to be provided to meet the requirements of current and future residents, by promoting densities for new housing which efficiently use land, resources, infrastructure and public facilities.
The proposed Zoning By-law amendment conforms to the PPS by making efficient use of undeveloped land for intensification within a built up area where existing infrastructure can support development. The proposal takes full advantage of an available opportunity to redevelop lands within an established neighbourhood with available services.
Official Plan
The subject property is
designated as General Urban Area in the Official Plan. This designation permits a full range of
housing types to meet the needs of all ages, incomes and life circumstances, in
combination with employment, retail and institutional uses to contribute to
complete communities. The Official Plan
supports infill development where it complements existing areas and contributes
to their long-term vitality, and directs growth to established areas to
maximize use of land that is already serviced, accessible and close to existing
amenities. New development proposed
within the interior of established neighbourhoods will be designed to
complement the area's pattern of built form and open spaces.
The proposed planned unit development is consistent with the intent of
the Official Plan in that it will maintain the low-rise residential character
of the community. The development
increases the mix of housing options in an area currently consisting of
two-storey detached and freehold townhomes, while the proposed low profile
bungalows with attached garages reduce any potential negative impact on the
surrounding area.
The
Official Plan emphasizes the importance of compatibility of new development to
its surroundings in order to reduce the possibility of negative impacts. Compatible development refers to development
that coexists with an established community without causing undue adverse
impacts on surrounding properties. The proposed planned unit development is
designed to reduce any negative impacts on the surrounding area and to be
compatible with the Bridlewood community.
The low profile bungalow dwellings will have negligible impact in terms
of shading and privacy. This will also
be aided by the fact that for the most part, the rear yards of the proposed
homes will abut the rear yards of the adjacent existing homes. The proposed development will maintain the
low-rise character of the neighbourhood and expands the range of choice of housing types
offered.
Section 4.11 of the Official Plan sets out criteria that are used to
evaluate compatibility of proposed developments. The Official Plan acknowledges
that in some situations, compatibility of infill development may be more
difficult to achieve than in other situations. Criteria that can be used to
evaluate compatibility include: traffic, vehicular access, parking, height and
massing, pattern of surrounding community, outdoor amenity area, lighting,
noise and air quality, sunlight, and supporting neighbourhood services. The
proposed development meets the criteria for compatibility as follows:
• Traffic: Equestrian Drive is
classified as a collector road, meant to carry a higher volume of traffic. Based on the minimal number of units
proposed, this development did not necessitate a Transportation Impact Study as
per the City’s guidelines. There would be no
significant impact on traffic as a result of this development, and no road
modifications would be required. Although
Equestrian Drive and Spur Avenue may currently experience occasional congestion
at peak times, the capacity of the street and nearby intersections are
sufficient to safely accommodate the additional traffic into the local road
network. The configuration and alignment of the proposed site access is
considered to be safe and appropriate.
• Vehicular Access: Location of vehicular access should address nuisance on adjacent
properties and should be oriented to non-local streets. The site will be
served by one shared access from Equestrian Drive in order to ensure improved
vehicular flow and a safer pedestrian environment. The proposed entrance has
been aligned as far as possible from the intersection of Equestrian Drive and
Spur Avenue, to provide exiting traffic with an unobstructed view and allow
safe merging into traffic.
• Parking Requirements: Infill developments should have sufficient parking to minimize potential for spill-over parking on adjacent streets. Zoning By-law requirements specify that in the case of a planned unit development, the minimum setback from a garage to a private street is 5.2 metres, to provide sufficient space for additional parking in the driveway. The by-law requires one parking space per unit, and in the case of a planned unit development, where a dwelling unit has a driveway accessing its own garage, no visitor parking is required for that dwelling unit. The proposed development satisfies and exceeds by-law requirements: seven units have a single garage and 15 units have a double garage, each with additional parking spaces in the driveway. Although not required, four visitor parking spaces will be provided in a small parking lot. The development therefore has ample parking to serve the residents’ needs, and is unlikely to generate any spillover parking off-site.
• Building Height and Massing: New buildings should have regard for the existing context of the area to
enhance compatibility. The proposed single
storey dwellings fall within the allowable building height limit of 11.0 metres
currently in effect and are in fact lower in profile than the surrounding
two-storey homes. The development includes two pairs of semi-detached units,
and five blocks of townhouses arranged in groups of only three or four units,
further reducing the visual impact on surrounding properties.
• Pattern of
Surrounding Community: The built form of the surrounding
residential subdivision is primarily detached and townhouse dwellings, all two
storeys in height. The low profile of the proposed residential development
provides an appropriate transition from the abutting detached residential
community on Spur Avenue to the higher density townhouse development that has
been built on Waymark Crescent. The General Urban Area designation supports ground‑oriented
housing forms such as triplex and low-rise stacked units as an appropriate
housing form for infill development in established low-rise residential
communities. The proposed residential development is on a smaller scale and is
kept low profile to ensure there are no adverse impacts on adjacent properties.
A 1.8-metre wood screen fence was installed along the easterly and southerly lot
lines of the subject site as part of the developer obligations associated with
the Waymark Crescent townhouse development.
A new 1.8-metre wood screen fence will be
constructed along the westerly lot line abutting the Spur Avenue properties,
which will provide consistency and further mitigate any impact.
• Outdoor Amenity Area: New developments are to respect privacy of outdoor amenity areas of
adjacent units. Siting of the proposed residential buildings close to the internal
private laneway provides separation from the shared lot lines, ensuring that
windows are not directly overlooking the yards of neighbouring properties. There
will be a setback of 5.5 metres from the rear wall of the units to the rear lot
line, providing adequate separation.
A yard setback of 3.5 metres from the
side wall of two end units to the lot line is proposed, and this configuration
is comparable to homes on corner lots backing onto the side yard of an abutting
property. Privacy of adjacent neighbours will be enhanced through a 1.8‑metre
wood screen privacy fence proposed around the perimeter of the development.
• Lighting, Noise, Air Quality, and Sunlight: New developments
should minimize potential nuisance related to lighting, noise or odour, and minimize shadowing on adjacent properties.
No impacts have been identified, since the proposed use will generate negligible
amounts of light or noise. There will be no shadowing effect on nearby
residential properties due to the low profile of the proposed development.
• Supporting Neighbourhood Services: The proposed
development is adequately served by all services and amenities. It is located
in proximity to a number of parks, a community centre, and neighbourhood
commercial uses. The slight increase in density helps to support existing
neighbourhood services and bring new residents into the area.
Design Guidelines for
Low-Medium Density Infill Housing
Well-designed residential infill projects can integrate harmoniously into and enrich a neighbourhood. Good design is essential for increasing densities appropriately, and being compatible with the scale of the neighbourhood. The Design Guidelines for Low-Medium Density Infill Housing are applicable to this site, and provide further details about compatibility and design. According to the guidelines, new development should reflect the existing or planned pattern of development in terms of height, front, rear and side yard setbacks, animate the public streets and provide a streetscape that is inviting, safe and accessible. The single storey units, wide lots and small blocks of townhouses minimize the visual impact on abutting detached homes. By orienting the end unit adjacent to Equestrian Drive so that its front door faces the street, with the garage accessed from the private road, the design enhances the streetscape, making it more inviting for pedestrians. Although details such as building orientation and site layout will be evaluated and finalized through the ensuing Site Plan Control approval process, the conceptual site plan submitted in support of the rezoning application satisfies the guidelines for infill housing.
An application for Site Plan Control Approval will be submitted should the Zoning By-law amendment be adopted. The proposed development, as illustrated on Document 4, will conform to the requested Zoning By-law at such time as the amendments recommended through this report are in full force and effect.
Detailed plans identifying building layout, setbacks, landscaping, fencing, servicing, grading and stormwater management will be prepared and evaluated through that process. In addition to the preliminary site plan submitted, conceptual servicing and stormwater management aspects of the development were reviewed as part of the subject application, and capacity exists to serve the proposed development.
Zoning By-law
The proposed zoning for the site is described in Document 2. The requested by-law amendment would rezone the site from R1T to a site-specific R3B Zone, with the following provisions: rear yard, where it abuts a rear yard on an abutting lot, to be 5.5 metres; interior side yard, where it abuts a rear yard on an abutting lot, to be 3.5 metres, and minimum width of driveway providing access to a parking lot to be 6.5 metres.
The proposed development balances the need for intensification and infill as supported in the Official Plan with appropriate consideration given to compatibility. The proposed Zoning By-law amendment conforms to the general intent of the Official Plan and staff recommend approval of the proposed zoning.
N/A
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy. The public comments and staff response are detailed in Document 3.
Councillor Allan Hubley is aware of the application and the staff recommendation.
There are no legal implications associated with this report. Should the report be carried by City Council, and the by-law is appealed to the Ontario Municipal Board, it is estimated that a hearing would take approximately three days and utilize City resources. Should Council not carry the report, and the refusal is appealed to the Ontario Municipal Board, it is estimated that a hearing would take three days, would require an external planner and an external infrastructure engineer and the approximate cost would be $35,000 - $50,000.
RISK MANAGEMENT IMPLICATIONS
N/A
Potential costs are outlined in the Legal Implications section above. Should the services of an external planner and an external infrastructure engineer be required, funds ($35,000 to $50,000) are not available within existing budget, and the expense may impact Planning and Growth Management’s operating budget status.
The Rideau Valley Conservation Authority has indicated that there are no environmental issues associated with the proposed Zoning By-law Amendment.
N/A
The proposed development aligns with the City Strategic Plan in that it respects the existing urban fabric, neighbourhood form, and the limits of existing hard services, so that new growth is integrated seamlessly within an established community.
The application was processed by the "On Time Decision Date" established for the processing of Zoning By-law amendments.
Document 1 Location Map
Document 2 Details of Recommended Zoning
Document 3 Consultation Details
Document 4 Conceptual Site Plan
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.
DETAILS OF RECOMMENDED ZONING DOCUMENT
2
Proposed Changes to the Comprehensive Zoning
By-law
1. The lands shown on Document 1 zoned R1T under By-law 2008-250 will be rezoned to R3B[xxxx].
2. Section 239 of By-law 2008-250 will be amended to add a new exception including the following provisions similar in effect to the following:
· Minimum interior side yard setback:
i) 3.5 metres for a distance of 30
metres measured from the rear lot line;
ii) 3.5 metres for that portion of
the lot line which abuts 225 Waymark Crescent;
iii) 5.5 metres from all other lot
lines; and
· Minimum rear yard setback: 5.5 metres.
· A driveway providing access to a parking lot must have a minimum width of 6.5 metres.
CONSULTATION DETAILS DOCUMENT 3
NOTIFICATION AND CONSULTATION PROCESS
Notification and public consultation was undertaken in accordance with the Public Notification and Public Consultation Policy approved by City Council for Zoning By-law amendments.
SUMMARY OF PUBLIC INPUT
There were numerous comments received from adjacent residents regarding this application. They are summarized below:
Compatibility: The density of the proposed development is out of character with the surrounding neighbourhood, and will have a negative impact on the immediate area.
Response: The proposed bungalow townhouses and semi-detached units are low profile, offer wide lots, provide sufficient parking and fit well within the neighbourhood. The proposed development serves as an appropriate transition between the detached homes on Spur Avenue and the townhouses on Waymark Crescent.
Setbacks from Existing Yards: There is concern that the 5.5-metre rear yard setback and the side yard setback of the new houses to rear yards of homes on Spur Avenue are insufficient, and will result in reduced privacy.
Response: The 5.5-metre rear yard setback, combined with the one-storey height of the dwelling, provides sufficient privacy for adjacent homes. The final configuration of the dwelling on the lot must strike an appropriate balance between various factors: floor area of dwelling, building height, yard setback from abutting lots and front yard setback to accommodate parking in the driveway. The required floor area could alternatively be accommodated in a two-storey dwelling, with a smaller footprint and increased rear yard setback, but this would result in an associated increased height. The proposed setback reflects the optimum combination of these factors, with the slightly reduced rear yard offset by the one-storey height. The side yard setback of the two end units has been increased from the 2.0 metres initially proposed to 3.5 metres, and is comparable to situations found on corner lots, where a rear yard abuts a neighbour’s side yard.
Access: The only access to the proposed development provides a difficult access for emergency and service vehicles. Measures should be taken to ensure that there is proper road maintenance so that there are no problems with snow removal, garbage collection and emergency vehicle access. There could also be issues with moving and delivery truck access.
Response: The 6.5-metre width proposed for the private street exceeds the by-law requirements, which specify a minimum 6.0-metre width. The preliminary street design incorporates elements such as a wide turning radius and a hammerhead for turn-around movements, which satisfy the requirements of Emergency Services vehicles. A more detailed review of the street’s engineering will be undertaken through the Site Plan Control process. In addition, a common elements agreement will be required as a condition of Site Plan Control Approval to address the owners’ joint responsibility for maintenance of the private street and associated services.
Lack of Visitor Parking: The private street does not provide any parking space for visitors or service vehicles, which would result in spill-over onto Equestrian Drive.
Response: Private streets of the width proposed are not intended to accommodate visitor parking, and the proposed development provides parking that is considerably in excess of what is required by the by-law. The by-law requires one parking space per unit and a 5.2-metre setback from the garage to the private street, to allow an additional parking space in the driveway. The majority of the units will have double garages, thereby providing four parking spaces per dwelling unit. Separate visitor parking is not required for planned unit developments where a private garage and driveway are provided for each unit, since visitor parking can be accommodated in the driveways. Nonetheless, the proponent is proposing to provide a parking lot with four visitor parking spaces to further improve the parking situation.
Traffic: The increased traffic generated by the development will contribute to slowing of traffic on Equestrian Drive, especially during the morning rush hour. There will also be increased traffic on Spur Avenue.
Response: The minimal number of units proposed by this development did not trigger the need for a Traffic Impact Study. The traffic generated by this development can be safely accommodated by the existing road network.
Landscaping: There is concern about the lack of greenspace and landscaping in the new development. The trees in existing yards could also be in danger.
Response: The proposed yard sizes are sufficient to provide adequate greenspace for the development, and new landscaping will be required through the Site Plan Control Approval process. A Tree Conservation Plan will also be required in association with that process, ensuring that existing trees will be retained where possible, and that measures are in place to ensure that trees in adjacent yards are unharmed.
Permitted Height: The developer may decide to build a different type of development than that proposed for the rezoning application. This could include increased building height or an increased number of units.
Response: The details of the requested rezoning are specific to the conceptual proposal submitted. Furthermore, the development will be subject to Site Plan Control Approval, which would result in the approval of site-specific plans. Any significant deviation from the approved plan would trigger further staff review.
Grading and Drainage: The site is higher than existing homes on Spur Avenue, and the proposed development will therefore be higher in elevation. The drainage and stormwater must be examined to ensure there is no run-off into rear yards.
Response: The Site Plan Control Application will require the submission of detailed engineering plans, including grading, drainage and stormwater management plans. All plans are reviewed to ensure that there is no run-off onto abutting properties.
It is a requirement that stormwater be managed on-site in an appropriate manner to ensure that run-off from the proposed development does not exceed pre-development flows.
Parkland: There is no plan for a park or greenspace. The developers should contribute money towards a park/greenspace elsewhere in the Bridlewood community.
Response: The developer will be required to contribute cash-in-lieu of parkland in accordance with the Parkland Dedication By-law. The payment is a standard condition of Site Plan Control Approval, with the amount based on a formula relating to the number of units and the appraised value of the property. The Parkland Dedication By-law specifies that a portion of the funds are directed towards parks development in the ward, and a portion towards City-wide facilities.
Servicing: Residents are experiencing problems with water pressure. The addition of the extra units may impact the water supply, sewers and storm water drainage.
Response: A servicing brief was prepared in support of the rezoning application and was reviewed by staff to ensure that there were no adverse impacts. The watermains, sanitary sewers and storm sewers have the available capacity to handle the proposed development.
Proximity of Private Street: The T-shaped private street extends to the property line, which allows the ends of the road to be used for purposes such as parking and snow storage. This could result in safety concerns for existing residents of the properties that back onto the segments.
Response: The conceptual plan does not include detailed design. The ends of the private street will be appropriately landscaped, with several metres of space being provided between the terminus of the asphalt and the property line.
Nuisance: Construction could damage existing homes through excavation and blasting, as well as create nuisance from noise and dust.
Response: Construction activities are
regulated by by-laws concerning allowable hours of work, requirements for dust
control and permitted noise levels. Blasting is not regulated by the City, but
is within the mandate of Provincial controls. Although some nuisance is to be
expected when a new development is under construction, activities must fall
within the allowable guidelines in place.
Potential Contamination: Demolition and decontamination of the current buildings and soil is a concern.
Response: A Phase 1 Environmental Site Assessment was undertaken for the subject site, to identify any potential contamination resulting from historical land use. The standard conditions of Site Plan Control Approval would require that any necessary soil remediation will be carried out as needed, and that the existing well and septic system be decommissioned in accordance with current regulations.
Wildlife: The safe re-location of wildlife currently occupying the barn must be ensured.
Response: The owner will be responsible for removing the animals with regard for the safety of adjoining property owners.
Impact on Schools: The proposed development might impact schools in the area which are already at capacity or exceeding it.
Response: The proposed development of only 22 units will have negligible
impact on the school population. The school boards were provided with notice of
the application and no concerns were identified.
COMMUNITY ORGANIZATION COMMENTS
The Bridlewood Community Association raised several concerns regarding the proposed zoning and the proposed development:
Staff responses to these concerns are addressed above and in the body of the report.
CONCEPTUAL SITE PLAN DOCUMENT 4