Mainland Lebreton and Victoria and Amelia Islands
Sections 1.11.2 – 1.11.5 are applicable only to the mainland area of Lebreton Flats and Victoria and Amelia Islands. [Amendment 143, OMB File #PL141340, November 18, 2015]
Reference may be made to the report entitled "The LeBreton Flats Plan incorporating Official Plan Amendments" prepared by the National Capital Commission, January 1997. This report contains extensive background information concerning LeBreton Flats. [Amendment 143, OMB File #PL141340, November 18, 2015]
Chaudière and Albert Islands
Reference should be made to the report titled The Isles: Domtar Lands Redevelopment, dated April 22, 2014. This report is the developer’s design framework and development principles, which will guide the overall development in Ottawa and Gatineau and, specifically, on Chaudière and Albert Islands.
Sections 1.11.6 - 1.11.12 are applicable only to the Chaudière and Albert island area of Lebreton Flats. . [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.1 Vision – Mainland Lebreton and Victoria and Amelia Islands
[Amendment 143, OMB File #PL141340, November 18, 2015]
LeBreton Flats is a unique site, critical to the future of the heart of the Nation's Capital and the Central Area of the City of Ottawa. LeBreton Flats has a destiny, other than as idle lands, and has the potential to support a vibrant community once again.
The Vision is to make LeBreton Flats a people-place for the next century; to challenge the developers and decision makers of the future to create an urbane community within the Ottawa downtown where people can live, work, socialize and play. This community will be one of mixed uses, surrounded by open spaces. It will consist of compact neighbourhoods, linked together and to the wider open space network by pathways and pedestrian-friendly streets. The entire area will be supported by highly accessible public transit, to reduce reliance on the automobile.
LeBreton Flats will mean residential intensification in the Central Area and the introduction of new community-based employment opportunities. Mixed use will be a priority, in achieving a balance of jobs and housing and more efficient use of valuable urban land and infrastructure. Housing types, sizes and costs will respond to current and upcoming demographic shifts, and offer new opportunities for high quality design at medium to high densities within the Central Area. It will "reclaim" an orphaned site, through ensuring that remediation is undertaken as the site is developed.
National Capital Role
The role of Ottawa as the National Capital will be enhanced by the future LeBreton Flats. One of the last waterfront pieces of real estate in the downtown area will be retained in public hands as open space, with an emphasis on public access, and cultural and office uses of national and capital significance. A "LeBreton Common" will be provided as a major gathering place and stage for events, filling a critical gap in the current system of programmable open spaces in the Capital.
Blueprint for 21st Century
The LeBreton Flats plan represents a blueprint for the 21st century, which has the ability to satisfy many objectives through its diversity, balance and orientation.
- To provide an extension to the Central Area, with a diverse range of uses and activities, where people can live, work, socialize and play.
- To create an opportunity to increase the National Capital presence in the Central Area, with development that will attract visitors to Ottawa.
- To promote compact development and encourage the efficient use of land in proximity to the LeBreton Flats transitway station.
- To provide an opportunity to substantially increase the number of dwelling units in the Central Area, with a range of housing options.
- To promote increased employment opportunities in the Central Area.
- To promote linkages with the adjacent areas and encourage the use of LeBreton Flats by the existing community.
- To ensure that development is compatible with the adjacent areas.
- To enhance the unique attributes of the site, such as the riverfront and the aqueduct.
- To encourage public use and accessibility of the Greenway System.
- To protect and integrate the designated heritage features such as the aqueduct, its bridges and the Pumping Station, in a sensitive manner.
- To ensure that infrastructure improvements are identified and undertaken.
- To ensure that the area meets the applicable soil and groundwater remediation standards.
- To ensure that development proceeds in an orderly and efficient manner.
1.11.3 Land Use Policies
The following policies apply to the land use designations shown on Schedule Q - LeBreton Flats Land Use. The land use categories include: Cultural/Office; Greenway System - Waterway Corridor, Major Open Space, Linkage; Mixed Use; and, Residential.
188.8.131.52 Cultural/Office Area
- City Council shall support and encourage the development of publicly-oriented uses in the northern section of LeBreton Flats, to serve as a western anchor for Confederation Boulevard and the Parliamentary Precinct.
- City Council shall permit uses such as museums, art galleries and offices, and shall encourage public access, at least within the ground floors of buildings.
- City Council shall permit at-grade supporting uses such as retail, entertainment and restaurant venues, to promote this as a lively and attractive people-place during the days and evenings.
- City Council shall encourage and support the development of new nationally significant non-governmental and governmental uses, and in the expansion of the range of tourist attractions.
- City Council shall ensure that a generous setback is provided between the Waterway Corridor Area and buildings north of the proposed "LeBreton Common", in order to increase the amount of open space between buildings and the Ottawa River; and, shall encourage this setback area to be developed as publicly-accessible outdoor space associated with those buildings.
184.108.40.206 Greenway System
- City Council shall ensure that the Greenway System provides for public access to the Ottawa River, protection of significant natural areas, provision of municipal and federal park spaces, internal pedestrian/cycle linkages, and connections with the adjacent Greenway System; and in this regard shall support the provision of approximately 40 percent of LeBreton Flats as open space lands.
City Council recognizes that the "Greenway - Major Open Space" designation north of Scott Street and west of the proposed municipal park will remain as vacant land until its future use and remediation requirements are determined and that an official plan amendment may at some time be forthcoming to permit this land to be developed.
- City Council shall ensure that the Waterway Corridor lands provide a variable width of parkland of at least 40 metres, between the edge of the Ottawa River and the Cultural/Office area, to facilitate public access to the riverfront in an open space environment.
- City Council shall require that a Landscaping/Habitat Restoration Plan be prepared to the satisfaction of the City of Ottawa, prior to the development of the Cultural/Office lands, and in conjunction with the proposed removal of the Ottawa River Parkway.
Major Open Spaces
- City Council shall encourage and support the use of the Major Open Space lands, identified as "LeBreton Common" on Schedule Q, for the staging of national, regional and local festivals and special events, and as a park area for ceremonial and leisure activities.
- City Council shall encourage the planning and programming of the "LeBreton Common" to address the mitigation of potential negative impacts on the adjacent community; and, shall permit only park use in this regard.
- City Council shall ensure that adequate community recreational uses are provided through zoning and the development of a proposed municipal park of approximately 2.5 hectares, as shown on Schedule Q.
- The City of Ottawa shall undertake the planning and design of the proposed municipal park.
- City Council shall require that the municipal park be dedicated and developed within one year of the registration of a plan of subdivision, or the approval of a site plan control application for any lands adjacent to the park.
- City Council shall require the retention of the major wooded areas and natural features within Linkage lands in the vicinity of the Fleet Street Pumping Station and the tailrace.
- City Council shall require that a minimum of 5 metres of open space is provided between the proposed fence line along the aqueduct and adjacent properties, to provide pedestrian/cycle paths for access to the proposed municipal park and to the rest of the Central Area.
- City Council shall encourage the National Capital Commission to develop the aqueduct area as parkland, taking into consideration its heritage, and landscape/habitat values, in the context of its importance to the vitality and attractiveness of LeBreton.
- City Council shall investigate using the aqueduct inlet water area as a leisure resource, while recognizing its function as the inlet to the operating underground conduit which provides water power to the Fleet Street Pumping Station.
- City Council shall ensure that the existing aqueduct bridges, where possible, provide pathway connections over the aqueduct
- City Council shall ensure that any potential negative impact on the aqueduct inlet and tailrace areas resulting from the construction of new bridges associated with the proposed "LeBreton Boulevard" is minimized through an Environmental Assessment process.
- City Council shall encourage the retention of the kayak training course in the tailrace.
- City Council shall require that applications for site plan approval for developments abutting the aqueduct tailrace are supported by geotechnical assessments to evaluate slope stability and development setbacks.
- The City of Ottawa shall undertake a recreational and cultural needs study for Planning District 3, which will identify those requirements that should be included in the development of the LeBreton Flats community.
- City Council shall permit commercial uses in the Thomson-Perkins Mill heritage building.
220.127.116.11 Mixed Use Area
- City Council shall permit a broad range of uses including residential, retail, office, entertainment, cultural, institutional and recreational uses within mixed use areas abutting arterial roads to generate all-day and year-round activity, and serve the needs of the community; and, in this regard, the primary uses shall be office or residential uses.
- City Council shall permit high density/profile office and/or residential uses above the ground floor of buildings along Booth Street, south of the proposed "LeBreton Boulevard", to encourage the use of transit facilities.
- City Council shall support the integration of residential and commercial and other uses within the same blocks and/or the same buildings.
- City Council shall require that Booth Street provides a variety of small-scale, continuous, ground floor pedestrian-oriented uses, such as retail, restaurant and personal service uses, in creating a "Main Street" focus to serve the new community and visitors to the area.
- City Council shall permit a variety of ground-floor, small-scale retail, cultural, restaurant and entertainment uses, below residential uses along the north side of the aqueduct, to enhance public activity along this part of the aqueduct; and, in this regard, shall encourage the integration of the non-built area of these properties with the adjacent aqueduct Linkage lands.
- City Council shall permit limited retail development in other areas to provide for the immediate needs and convenience of residents, workers and visitors, while not detracting from the "Main Street" focus along Booth Street.
- City Council shall require that predominately residential development be provided along local residential streets with commercial development focused along Booth Street.
18.104.22.168 Residential Area
- City Council shall support the provision of a range of housing forms in medium to high profile buildings of a density appropriate to the downtown area, generally ranging from stacked townhouses to apartment buildings, to make effective use of the infrastructure, services and facilities within the inner-city area.
Affordability and Accessibility
- In support of the City Council’s commitment to achieve affordable housing within the Central Area, City Council shall require;
- That the amount of land to be set aside through the subdivision approval process shall be sufficient to allow 25% of the total housing stock within LeBreton Flats to be affordable Housing to the Action Ottawa criteria, or to the new Official Plan and proposed Municipal Housing Statement when approved;
- That the City work with the National Capital Commission to facilitate partnerships between non-profit housing providers and commercial developers to explore options for providing affordable housing above ground floor commercial developments, to meet the 25% target;
- That should affordable housing targets not be met prior to 50% of the building permits being issued, City Council will require that the subdivision agreement provide for the City to be given by the National Capital Commission, the first right to acquire the lands for affordable housing.
- That Council request the National Capital Commission to explore options for facilitating affordable housing by providing long term leases for one ($1.00) dollar to developers willing to build and maintain affordable housing. [Amendment #2, September 3, 2003]
Density and Profile
- City Council shall permit high density/profile residential buildings immediately south of the proposed municipal park, and along "LeBreton Boulevard", which will function as an arterial road.
Small-Scale Open Spaces
- City Council shall require that the local open space and recreation needs that are not met by the proposed municipal park, such as small play areas for children, be provided within residential areas through the development application review process.
- City Council shall encourage housing development to be oriented to the local streets, in order to promote community interaction, safety and security.
- Through the subdivision and site plan control processes, City Council shall investigate with property owners, options for providing childcare facilities in residential developments. These facilities should be provided at a rate of 9.3 square metres per child for interior space and 5.6 square metres per child for exterior space. Each facility constructed should be for a minimum of 50 children. [Amendment #2, September 3, 2003]
1.11.4 General Policies
The following general policies shall apply to LeBreton Flats.
Transit Way and Station
- City Council shall encourage the construction of the proposed new transitway and station, prior to the start of development, to avoid negative impacts on the new community during construction; and, shall encourage a high level of pedestrian/cycle access to the transit station and the provision of cycle storage facilities.
Parkway Relocation and LeBreton Boulevard
- City Council shall support the relocation of the Ottawa River Parkway within LeBreton Flats, in order to ensure that the riverfront area is opened up to the public. With regard to LeBreton Boulevard, the National Capital Commission will ensure the required environmental assessment and functional design will address the impacts that the alignment will have on building heights and views in accordance with the City of Ottawa Official Plan.
Traffic Impact Studies
- City Council shall require that traffic impact studies be undertaken prior to the approval of applications for development, to ensure that site-generated traffic can be adequately accommodated and/or that measures are carried out to meet identified deficiencies, to the satisfaction of the City of Ottawa and the Regional Municipality of Ottawa-Carleton.
- City Council shall require that noise studies be undertaken to the satisfaction of the City of Ottawa for development adjacent to the proposed transitway and station, and along arterial roads, and that appropriate mitigation measures are undertaken to address potential impacts.
- City Council shall require that traffic calming be considered in the design of local roads serving the residential areas, with a focus on minimizing potential shortcutting by through traffic, and as a means of improving livability and pedestrian and cycle safety, through Urban Design Guidelines, as set out in 22.214.171.124 a) below.
Alternate Development Standards
- City Council shall require that Alternate Development Standards be considered in determining the appropriate rights-of-way and adequate pedestrian, cycle and roadway facilities, through Urban Design Guidelines, as set out in 126.96.36.199 a) below.
Pedestrian/ Cycle Path System
- City Council shall encourage the incorporation of a continuous pedestrian/cycle path system within the Greenway, to encourage non-automobile movement; and, shall ensure its integration with facilities in the rights-of-way, and linkage with pathways outside LeBreton Flats.
- City Council shall encourage publicly-accessible pathways to the waterfront area through the northern Cultural/Office lands, and the "LeBreton Common".
- City Council shall support the provision of commuter cycling lanes along the proposed arterial roads.
- City Council shall require an at-grade connection to Booth Street from the proposed pedestrian/cycle path along Ottawa Street to the west and the Linkage lands to the east.
- City Council shall support the retention of the existing Heritage Designated aqueduct bridges as pedestrian/cycle connections across the aqueduct, in order to encourage safe north/south movement.
- City Council shall support the retention of the Heritage Designated Pooley's Bridge as a pedestrian/cycle connection.
- City Council shall support the provision of a pedestrian/cycle link under the Preston Street extension at the aqueduct, for access to the proposed municipal park.
- City Council shall support shared parking facilities in mixed use developments, to encourage the efficient use of lands and the integration of uses; and, shall consider reduced parking requirements for developments within walking distance of the proposed transit station, to encourage the use of public transit; and, shall discourage surface parking facilities, to minimize the negative impact of such facilities.
Tour Bus Parking
- City Council shall support the continuation of tour bus parking in LeBreton Flats in cooperation with the National Capital Commission, while ensuring that potential noise, visual and traffic impacts are minimized, and the development of the LeBreton Flats Character Area is not compromised.
- City Council shall encourage the provision of adequate automobile and tour bus parking to serve the proposed LeBreton Common through such means as:
- shared use of parking facilities associated with uses within the Cultural/Office lands on LeBreton; and
- utilizing parking facilities in the adjacent non-residential areas such as the Core Area and Parliamentary Precinct.
- City Council shall encourage the provision of adequate pedestrian and cycle connections across Scott/Wellington/Albert Street, to encourage the safe movement of people between LeBreton Flats and the existing community.
Transit Servicing Plan
- City Council shall, as a priority, develop in consultation with the National Capital Commission, a transit servicing plan for LeBreton Flats that will be integrated with the City's transit system and shall require the provision of infrastructure and facilities such as but not limited to pedestrian paths and connections, transit stops, transit priority lanes along new roads, and Transportation Demand Management plans, to support the transit service plan through the development approvals process. [Amendment #2, September 3, 2003]
Roadway Concept Plan
- City Council shall require that the National Capital Commission develop a comprehensive roadway concept plan for all the roads to be developed and/or improved within LeBreton Flats. This concept plan will identify roadway cross sections that respond to policies in the Secondary Plan, the location of below and above grade services and will be subject to acceptance by the City and Utility Agencies. City Council will require that the accepted concept plan be used to define/detail conditions related to the construction of roads through subdivision and road opening approvals. [Amendment #2, September 3, 2003]
Soil and Ground Water Contamination
- City Council shall require environmental site assessment and restoration within the spirit of the Ministry of the Environment Guidelines for Use of Contaminated Sites in Ontario 1996 (revised February 1997), or other federal, provincial, or municipal regulations, as applicable, in effect at the time of development. In this regard, a Phase II Environmental Site Assessment shall be completed within the spirit of the Guidelines, prior to the final approval of a subdivision, severance or site plan control application for the area of such application. It is acknowledged that both City Council and the Ministry of the Environment have accepted certain Phase I and Phase II Environmental Site Assessments completed prior to the release of this guideline, towards fulfilling the spirit of the Guideline. [Amendment #2, September 3, 2003]
Site Remediation Plans
- City Council shall require that site-specific remediation plans and commitments to site restoration be undertaken prior to the final approval of a subdivision, severance or site plan application for the area of such application within LeBreton Flats; an Integrated Environmental Report will be required prior to the final approval of such applications.
Methane Gas Monitoring
- City Council shall require further methane gas monitoring of the Nepean Bay landfill site, to assess the impact on the feasibility and soil management requirements for the proposed municipal park lands, as part of the Phase 2 ESA, as set out in Policy 188.8.131.52 a) above.
- City Council shall require methane gas monitoring of any development within 30 metres of the Nepean Bay landfill.
- City Council shall encourage the augmentation of the urban forest throughout the site in the review of applications for site-specific developments.
Master Servicing Plan
- City Council shall require that a Master Servicing Plan, to address existing and proposed utilities and piped services, be prepared to the satisfaction of the City of Ottawa, and appropriate utility companies, prior to the submission of the initial development application; and, that this Plan provide details on the anticipated timing, funding, construction, maintenance and ownership responsibilities, in the context of the phasing of development. Should changes occur to the assumptions contained in this Plan as development takes place, the Plan shall be adjusted accordingly.
- City Council shall require that electrical, telephone and television cables be placed underground.
- City Council shall require that Stormwater Site Management Plans be submitted prior to the final approval of a subdivision, severance or site plan application, to the satisfaction of the City of Ottawa. These plans shall be consistent with the overall Stormwater Management Feasibility Plan and, where phased development is proposed, will identify any phasing for the implementation of the stormwater site management plan and any necessary interim stormwater management measures.
184.108.40.206 Urban Design
Urban Design Guidelines
- City Council shall require that a set of broad Urban Design Guidelines for the entire LeBreton Flats area be prepared, in order to assist in the design of development, rights-of-way and open spaces, and their interrelationships, in an integrated and cohesive manner, prior to the initial submission of an application for development approval; and, that such urban design guidelines shall consider Alternate Design Standards and Traffic Calming.
- City Council shall require wind testing of medium and high profile development proposals to evaluate the impact on streets, open spaces and other pedestrian activity areas and determine mitigation measures, prior to the approval of applications for Site Plan Control Approval.
- City Council shall require that maximum building profiles be as described generally in the following:
- up to six storeys for buildings fronting on Scott/ Wellington/Albert Streets to provide for compatibility with the existing community;
- up to eight storeys at Preston and Booth Streets along Scott/ Wellington/Albert Streets , to provide for landmark buildings at the southern entrances to LeBreton Flats, and high density development in proximity to the transitway station on Booth Street;
- up to ten storeys along Booth Street south of "LeBreton Boulevard", to provide for high density development in proximity to the transitway station on Booth Street;
- up to twelve storeys along the "LeBreton Boulevard" arterial road, while ensuring that a high-profile continuous wall of buildings is avoided, and that the policies in the Official Plan for protecting views of the Parliament Buildings and Other National Symbols are respected;
- up to six storeys in the Cultural/Office Area, north of "LeBreton Boulevard", in recognition of its proximity to the Greenway System, while ensuring that the policies in the Official Plan for protecting views of the Parliament Buildings and Other National Symbols are respected; and
- up to six and eight storeys within the majority of the Residential Areas.
- To ensure that appropriate scale relationships will be provided along streets where development with a height of 10 stories is permitted on one side of the street and a building height limit of six stories is established along the opposite side of the street as shown on Map 4, City Council shall require that the higher profile development integrate with lower profile development through various techniques as set out in the Urban Design Policies of the Official Plan (Central Area Urban Design Policies set out in Chapter 5.0 and the General Urban Design Policies set out in chapter 12.0) to provide for achieving harmonious street environments consistent with the principals set out in the urban design guidelines developed as required by policy 220.127.116.11. [Amendment #24, May 25, 2005]
- City Council shall ensure that:
- in the area identified on Ottawa Official Plan, Annex 6 C- LeBreton Flats Foreground View Control Planes extending from Viewpoint 16 as shown on Ottawa Official Plan, Annex 6 A to the eastern limit of LeBreton Flats Character Area as shown on Schedule B - Central Area Character Area and Theme Streets, with the exception of Area "A" identified on Ottawa Official Plan, Annex 6 C, no building, part of a building or building roof structure, shall project above the building height limit planes established by the central and lateral foreground view planes defined by geographic co-ordinates and above sea level elevations on Ottawa Official Plan, Annex 6 C;
- building heights in Area "A" on Ottawa Official Plan, Annex 6 C shall not exceed 79.9 metres above sea level;
- in the area adjacent to the LeBreton Flats Foreground View Control Planes as shown on Ottawa Official Plan, Annex 6 C, no building, part of a building or building roof structure shall project into the lateral foreground view planes described on Ottawa Official Plan, Annex 6 C;
- in the area defined by a view with a viewpoint located in the centre of the proposed LeBreton Boulevard right-of-way immediately west of the intersection of the Booth Street right-of-way, no building, part of building or building roof structure shall be constructed. This protected view, as illustrated on Figure 1, is intended to provide for an unobstructed foreground view panorama extending from the Great Hall of the National Gallery in the north to the northwest corner of the upper terrace of the Garden of the Provinces on the south.
- City Council shall encourage the integration of residential, office, and retail uses in mixed use areas in configurations and building forms that allow unique opportunities for creative development.
- City Council shall ensure that development accommodates the needs of persons with disabilities and other special needs groups.
[Amendment 143, OMB File #PL141340, November 18, 2015]
- City Council shall require that prior to the submission of the initial application for development within LeBreton Flats, in the form of a Plan of Subdivision, Master Plan, rezoning, severance and/or site plan, the following have been prepared for the entire LeBreton Flats area, to the satisfaction of the City of Ottawa and the National Capital Commission, as appropriate, or other pertinent agencies:
- Urban Design Guidelines, as set out in Policy 18.104.22.168 a) above;
- Master Servicing Plan, as set out in Policy 22.214.171.124 a) above; and
- City Council shall ensure that the following have been prepared to the satisfaction of the City of Ottawa and the National Capital Commission and other pertinent agencies as appropriate
- Traffic Impact Studies as set out in Policy 126.96.36.199c), prior to the final approval of site specific applications for rezoning, subdivision, site plan control or severance;
- Phase II Environmental Site Assessment and Contamination studies, as set out in Policy 188.8.131.52a), prior to the final approval of site specific applications for Subdivision, Severance or Site Plan Control;
- Site Specific Remediation Plans as set out in Policy 184.108.40.206c), prior to the final approval of site specific applications for subdivision, site plan control approval or severance;
- Noise Studies, as set out in Policy 220.127.116.11d), prior to the Final Approval of applications for subdivision, severance or site plan control; and
- Stormwater Site Management Plan, as set out in Policy 18.104.22.168c), prior to final approval of applications for subdivision, severance or site plan control".
- City Council shall encourage the National Capital Commission to prepare regular reports on environmental management and planning aspects for LeBreton Flats, to inform the public and agencies of progress in this regard.
- City Council shall ensure that streets are named through the normal street naming procedures, with priority given to retaining existing street names and recognizing the history of the area.
- 22.214.171.124 Implementation Tools
Plans of Subdivision
- City Council shall encourage the submission of applications for Plans of Subdivision as the preferred means of ensuring the orderly and efficient development of LeBreton Flats; should applications for Plans of Subdivision not be forthcoming, Master Plans shall be undertaken prior to the approval of development applications.
- City Council shall ensure that Plans of Subdivision and Master Plans are consistent with the Urban Design Guidelines, as set out in Policy 126.96.36.199 a) above.
- City Council may utilize a holding (h) symbol in conjunction with any use designation in the Zoning By-law, to defer development of all or part of the LeBreton area, where it is determined that any proposed development is premature or that immediate development is inappropriate. These determinations will be based on the preconditions and prerequisites, as set out in Policy 188.8.131.52 a) and b) above, and will be used wherever cost sharing arrangements may be required and/or funding is not committed.
- City Council shall encourage the Committee of Adjustment to ensure that the Plan of Subdivision method is upheld as the primary method of providing lots, to ensure orderly and efficient development.
- City Council shall encourage the Committee of Adjustment, in reviewing consent applications, to take into account the preconditions and prerequisites of Policy 184.108.40.206 a) and b) above, and the objectives and policies of the LeBreton Flats Character Area.
1.11.6 Vision and Principles – Chaudière and Albert Islands Vision
Chaudière and Albert Islands are situated in a unique and distinctive location, within the Ottawa River next to the downtown core of both Gatineau and Ottawa and adjacent to the Chaudière Falls, one of the City's most distinctive natural features. As a result of the lands becoming available for redevelopment, there is an opportunity for the site to be transformed into a dynamic precinct within the City’s downtown to in itself become a place contributing to the image and identity of downtown Ottawa and raise the City’s profile as a visitor destination to be on par with some of the most iconic urban places within major cities across North America, such as Granville Island in Vancouver, the Distillery District in Toronto, and the Market District in San Francisco.
The development concept plans will serve as the frame of reference for the transformation of the islands, which capitalizes on the site's potential and opportunities to showcase Ottawa's industrial heritage. The Plan will also provide opportunities for the first time in the history of Ottawa for direct public access to the waterfront of the islands and Chaudière Falls within a dynamic quality urban mixed use community. The Islands will accommodate residential, employment, retail, and cultural uses located in both rehabilitated industrial heritage buildings and new development that will define unique open spaces within a pedestrian priority environment. The islands will become a must see, must visit place for residents and visitors of Ottawa and embody the principles of the One Planet Communities, reflecting and incorporating the highest standards of urban sustainability. The development concept plans are shown on Annex 1 to the Secondary Plan. [Amendment 143, OMB File #PL141340, November 18, 2015]
The following core principles have been defined for the overall development of the former Domtar lands and provide the foundation for the Secondary Plan policies for Chaudière and Albert Islands. The development principles recognize the significant opportunity and potential for the Islands to become one of the most unique and dynamic places within the core of the City that will bridge the downtowns of Ottawa and Gatineau.
- Celebrate Heritage: Create a community that respects and celebrates the unique history and heritage assets.
- Connect the Capital: Provide connectivity across the River for Ottawa and Gatineau residents, including active transportation networks and exemplary public transit.
- Healthy Living: Ensure a robust public realm framework of new open spaces which will allow residents and tenants to live the healthiest life possible.
- Ecological Systems: Demonstrate that economically viable urban renewal can serve as a catalyst for ecological renewal.
- Vibrant Waterfront: Create new river fronts that have not been publicly accessible for generations, including areas where people can gather and experience the Ottawa River.
- Complete Community: Feature a mix of residential, retail, commercial and recreational spaces so that people can live, work and play within the community.
- Incubate Innovation: Foster innovation through inspiring social spaces and architecture that facilitate collaboration and an embedded commitment to creativity.
- Create and Enhance Views: Respect existing views of Parliament, the National Gallery, the War Museum, Gatineau Park, city skylines, the Ottawa River and Chaudière Falls and create new opportunities for views of theses national symbols and the Falls. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.7 Land Use
The land use policies are focused on providing for Chaudière and Albert Islands to be transformed into a unique world-class sustainable community where people can live, work and play in one location. The site is to become a truly mixed use community, where residents would not need to leave the islands for most services or amenities. [Amendment 143, OMB File #PL141340, November 18, 2015]
220.127.116.11 - Districts
The Islands comprise three districts that will each capitalize on their unique situations and conditions in a way where each will work together to create a complete sustainable urban place. Council will require that development within each of the districts achieve the following overall development concept as reflected on Annex 1 to the Secondary Plan. [Amendment 143, OMB File #PL141340, November 18, 2015]
West Chaudière District Development
The West Chaudière district comprises Chaudière Island located on the west side of Booth Street. This district will feature some industrial heritage buildings and a number of new buildings ranging from low to high profile. The District will accommodate a mix of uses to establish a lively mixed-use area with several stand alone residential buildings and mixed use buildings. High profile development will be strategically located on the west side and central portions of the District. The overall development for this District will provide for the creation of a new central civic square where retail type uses will be provided to establish an active pedestrian environment. As part of the internal street network, the civic square will be located on a new “heritage” street in the location of a previously existing street. The western tip of the District will be retained as public open space with a pedestrian focused on-site circulation system that will provide for ease of movement through the District and the urban street spaces leading to the shoreline and lookout over the Chaudière Falls. The District will also feature a connection to the Chaudière Falls Visitor Centre planned by the hydro authority to educate people on the history of the falls and their use in harnessing electricity to provide power for the City of Ottawa. [Amendment 143, OMB File #PL141340, November 18, 2015]
East Chaudière District Development
The East Chaudière District comprises Chaudière Island located on the east side of Booth Street. This District like the West Chaudière District will feature a number of new buildings ranging from low to high profile. The distinguishing feature of this District will be the historic Board Mill where portions of the building will be retained and materials adaptively reused. The extension of the heritage street from West Chaudière will be continued on East Chaudière, similarly following the path of a formerly existing street leading to the east end public park. This District will accommodate a mix of uses to establish the district as a lively mixed-use area with several stand alone residential and mixed use buildings. The District will feature park and open space areas that will capitalize on opportunities for providing waterfront open spaces around the perimeter of the eastern side of the District with a larger public park at the east end that will provide for dynamic views down the Ottawa River and to the downtown skylines of both Ottawa and Gatineau. The on-site circulation system will be pedestrian focused and provide for connections to the shoreline at strategic locations. Built form will be predominately low to medium profile with some strategically positioned higher profile development. [Amendment 143, OMB File #PL141340, November 18, 2015]
Albert Island District Development
Albert Island, the smaller of the islands, features existing industrial heritage buildings that are to be preserved and adaptively re-used with new low or medium profile buildings being introduced. The predominant uses will be small scale employment incubator uses, retail and restaurant uses to capitalize on the place-making opportunities for the site to become a unique destination within the islands. A pedestrian and cycling connection will be provided at the west end of Albert Island between the War Museum and West Chaudière District. [Amendment 143, OMB File #PL141340, November 18, 2015]
18.104.22.168 - Mixed Use
The area to be redeveloped with new residential and non-residential buildings and repurposed industrial buildings are designated Mixed Use on Schedule Q. Mixed use development and the publicly accessible open spaces contained within the internal street network and layout of the districts are to be provided as set out in the following policies:
- All three districts shall accommodate a mix of uses to provide for a dynamic mixed use community for the islands with a targeted total gross floor area (GFA) of approximately 100,000 square metres. This total GFA will accommodate a breakdown of uses generally as follows: 70-80% for residential uses; 5-10% for retail type uses; 10-15% employment type uses; and 5 10% other commercial, community, cultural related uses.
- The nature of mixed use that will be permitted and that are to be provided within each district are as follows:
- A broad range of non-residential uses are permitted within the Albert, East Chaudière and West Chaudière Districts, including: retail, office, entertainment, cultural, institutional and recreational uses within the mixed-use areas.
- A broad range of residential uses are permitted within the Albert, East Chaudière and West Chaudière Districts, including: low, medium and high-rise apartment dwellings and townhomes.
- The predominant uses within the East Chaudière and West Chaudière Districts shall be office and residential with retail type uses generally located on the ground floor of office and residential use buildings to contribute to public realm animation and activity.
- The predominant uses within the Albert Island heritage buildings will be retail, commercial and office to establish itself as a unique place within the islands. [Amendment 143, OMB File #PL141340, November 18, 2015
22.214.171.124 – Greenway / Open Space
The West and East Chaudière Districts will provide for publicly accessible open spaces along the shoreline generally as reflected on Annex 1 with the western tip of the West Chaudière District and the eastern tip of the East Chaudière District being developed as waterfront public parks shown as Greenway / Open Space land use designation on Schedule Q. The following policies apply to the lands designated Greenway / Open Space:
- The parks located on the tips of West Chaudière and East Chaudière Districts are encouraged to be landscaped with creative look-out features to allow for visitors to experience the views of the downtown skyline, Parliament (east end park) and of the falls (west end park).
- The park space is encouraged to be designed so that visitors can connect to the River.
- The park is encouraged to be naturalized with multi-use pathways.
- The west end park, located on Chaudière West District, is envisioned to include a water play plaza, perimeter multi-use pathway, boardwalk, and a naturalized foreshore park planting.
- The east end park, located on Chaudière East District, is envisioned to include a street end plaza, a river overlook area, boardwalks and benches, and a restored river landscape. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.8 - Heritage
The site has cultural heritage value derived from its association with First Nations, the early settlement of Ottawa, and the role that it has played in the industrial history of the City as the site has redeveloped over time with various industries, including wood, pulp and paper, and hydro-electric power. There are a number of structures throughout the site, including the buildings on Albert Island and West Chaudière District and portions of the Booth Board Mill abutting the Ottawa River’s edge on East Chaudière District that are under investigation for adaptive re-use. Equally important are the historic streets and public spaces to be reintroduced as a reminder of the former public realm and human activity that has existed on this site for over a century. The site’s cultural heritage value is reflected in various physical attributes that will be designated as heritage resources under the Ontario Heritage Act to protect and honour the site’s cultural heritage value after redevelopment.
The City and Windmill Development Group have signed a Memorandum of Understanding, which identifies the resources to be designated as well as the development of a heritage interpretive plan to commemorate the site’s history. To ensure protection of heritage resources, appropriate adaptive re-use, and the suitable integration with new development, the following policies apply to Chaudière and Albert Islands.
- A heritage interpretive plan which will include, but not limited to, the historic themes of First Nations, early settlement, the wood industry, the fire of 1900 and subsequent reconstruction, the pulp and paper industry, labour history, and others that may emerge as a result of further study shall be developed and implemented.
- The City will initiate the designation of identified heritage resources as part of the multi-year plan for the site.
- The developer shall consult with City heritage staff on plans for the adaptive re-use of heritage resources to ensure that the cultural heritage value of these resources is protected.
- New streets are encouraged to be located in historical rights-of-way to establish the history and importance of the site.
- New additions or construction in the vicinity of a place of heritage significance shall be in harmony with the existing structure but also identifiable as a new building or structure.
- New additions or construction are to include high quality design elements and materials. The design of new buildings will include transitional elements and considerations to proportion, scale and rhythm in order to respond to the character and scale of existing heritage buildings.
- The Cultural Heritage Impact Statement (April 2014) for the Domtar Lands Redevelopment Project demonstrates how the development will respect the site’s cultural heritage values. This report will be a reference document for the review of Site Plan Control applications. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.9 - Built Form and Building Design
The Islands are to a series of three districts comprised of buildings that are architecturally interesting, well proportioned, integrated with the heritage fabric, and that engage people in the public realm. Buildings are to have well defined street edges that frame the public realm and convey a sense of activity and liveliness, reinforcing the Islands as a pedestrian focused environment.
The tallest buildings within the three districts will generally be located on the western side of the West Chaudière District to respect the views from the Champlain Bridge of the Parliament buildings and the building rooftops along Confederation Boulevard. There will be limited high rise buildings on East Chaudière District and no high rises within the Albert Island District. The remainder of the site will provide for variety of building heights in the low and medium profile range and are to be located to create a unique and eclectic urban environment reflective of the building profile characteristic for this historical industrial site. The development concept plans shown on Annex 1 set out the general location of where buildings of different profiles shall be located to respect the principles of view protection and integration of new development with the heritage fabric to be retained. The maximum building profiles permitted on the islands are shown on Map 5.
In addition to the City-wide design guidelines for low and medium density infill, high rise development and transit-oriented developments, the following guidelines shall be considered and to the extent practical, be advanced for the different building typologies that will be developed to achieve the overall transformation of the Islands to ensure that the buildings and related uses succeed in defining and supporting the public realm environment.
- Low-rise Buildings:
- Buildings which are a single storey up to four storeys are considered low-profile buildings which may be single use or mixed use buildings as well as adaptive reuse heritage buildings.
- Low-rise residential buildings are to include stairs, stoops, garden patios, terraces, private outdoor amenity areas to support social life for adjacent public realm areas. Residential ground floor living spaces should be designed to directly engage the public realm, through the use of stoops, stairs, yards, and porches.
- Provision of decks and amenity areas are encouraged to enliven facades and roofs of buildings.
- Facades should be articulated to express individual residential units and individual tenants in multi-use buildings.
- Medium-rise Buildings:
- Five to nine-storey buildings will be used to create the primary character of the urban fabric for the Islands.
- To create a family-friendly and pedestrian focused environment, buildings should convey a sense of activity and bring building life to the pedestrian level and into the public realm. This can be achieved by encouraging multiple building entries, a high degree of transparency at the ground floor, direct physical connections to public amenity areas and a comfortable buffer between the street and the interior of residential units.
- Generous common spaces including roof top amenity areas are encouraged. Facades should be enlivened with balconies, decks and architectural articulations.
- Buildings should be articulated into smaller massing with breaks in the façade and roof line.
- Through block connections are encouraged to provide alternative pedestrian routes.
- High-rise Buildings:
- High-rise buildings over nine storeys are to be located on Chaudière Island so as to protect and maximize views of national symbols, Chaudière Falls, and the Ottawa River. The buildings are to maintain an open and permeable skyline.
- Tops of towers should be distinctive in order to enrich the skyline and enhance the role of the building as visual points of reference.
- Tower facades should be articulated to express the scale of an individual unit for residential towers and to reduce the mass of the overall building.
- Terraces and sky gardens are encouraged on tower facades.
- The base of towers should relate to the pedestrian scale and include active ground floor uses.
- Where there are two or more high rises in close proximity to one other, the towers shall not face or be parallel to one another to avoid creating a tall building focal point as well as ensuring tower separation of at least 15 metres.
- High-rise buildings up to 15 storeys are permitted. Minor changes to increase the number of storeys may be considered without requiring an Official Plan amendment where a detailed design review analysis demonstrates that the intent of the built form, urban design, view protection, and heritage policies of the Secondary Plan are respected. Number of storeys does not include mezzanines or elements to add architectural distinction for the tops of towers or roof top structures associated with roof top amenity. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.10 - Urban Design
126.96.36.199 - Views
Given the central location of the Islands within the Ottawa River and downtown, there are significant views in all directions of the shorelines of Ottawa and Gatineau as well as the Parliament and other national symbols, Chaudière Falls, and landscapes. Protecting the view corridors are outlined in the policies as follows.
- Public viewing opportunities of the national symbols and Chaudière Falls should be created and/or enhanced with the development.
- Building placement and open spaces should be positioned and designed to maximize public viewing opportunities of the iconic views described above.
- Views of the Islands from Ottawa and Gatineau are to be designed to be interesting, varied and dramatic. [Amendment 143, OMB File #PL141340, November 18, 2015]
188.8.131.52 - Public Realm
The public realm will be comprised of a network of parks, open spaces, right-of-ways, plazas and courtyards as shown on image C of Annex 1. These public realm components will be integrated with the existing street network and connected to the surrounding open space network and river valley. The following public realm areas are identified by district. They will be carefully programmed to become popular public destinations.
Head Street Square, West Chaudière District
Head Street Square is a unique urban square to be established within the heart of West Chaudière and is to be designed to function as the village square for the district. The square should incorporate such features as a stage to accommodate special events, seating framing the square, featured plantings and paving, a water feature, and a wide perimeter for commercial animation.
Union Square, East Chaudière District
Union Square is to be located on the East Chaudière along Booth Street, near Chaudière (Union) Bridge, and across from downtown Gatineau. It is to be designed as a publicly accessible space offering views of the nearby bridges and falls. This square should be designed to provide a street end plaza, a commemoration feature, tree plantings, overlook and seating area of the River, and incorporate a terrace when the Board Mill building is redeveloped.
Courtyard, Albert Island
A new covered courtyard framed by existing industrial heritage buildings will be provided on Albert Island to create a comfortable pedestrian area which is accessible at all times of the year, creating a place within a place. At the west end of the island, a new pedestrian and bike crossing will provide a connection to the south shore of the River and to the West Chaudière District to the north. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.11 - Transportation
The number of residents and visitors will increase in the City’s downtown core as Chaudière and Albert Islands intensifies over time. The transportation strategy to be implemented with this redevelopment will be focused on creating a highly walkable site that is connected to the multi use pathway and cycling networks and that is well serviced by transit. Achieving high modal shares for these non-automotive modes of transportation will be a high priority in the overall development of the Islands. Decreasing the need for automotive travel will be accomplished through a transportation demand management (TDM) program and ensuring that the appropriate infrastructure and initiatives to support use of sustainable transportation are put into place as the site develops. Best practices in walking, cycling, street design, and parking will be implemented to achieve a mixed-use community supported by sustainable transportation. A green transport plan will form part of the transportation strategy to monitor carbon emissions reduction targets.
Access to the Islands and linkages to the City's overall transportation system is provided by Chaudière (Union) Bridge linking Ottawa and Gatineau. The bridge is a federal asset owned by Public Works Government Services of Canada (PWGSC) and requires upgrades to improve pedestrian and cycling connections. Council supports improvements that will improve conditions for pedestrians and cyclists consistent with Council's overall priority for these travel modes as expressed in the Transportation Master Plan and Official Plan. The City will work with PWGSC and other stakeholders, including the NCC, City of Gatineau, and the developer, who collectively have been working on the overall Isles development project, to achieve these improvements. [Amendment 143, OMB File #PL141340, November 18, 2015]
184.108.40.206 - Active Transportation and Transit Infrastructure
Building on the development principle of healthy living, an active transportation network will be established that will prioritize walking, cycling, and transit to capitalize on the site’s location between the future Pimisi LRT station and the Portage bus transfer station at the heart of the region’s most transit rich area.
With the goal to reduce the need to travel off-site through the mix of uses to be made available on-site and to facilitate the ability to come to the site by non-automotive means, the development will support use of sustainable transport modes through the provision of the following transportation facilities to be provided as development progresses.
- Streets are to be designed as complete streets which provide suitable facilities for pedestrians and cyclists.
- The Booth-Eddy street corridor is to be improved with pedestrian, cycling and transit facilities and infrastructure in both travel directions. The City shall assist in the discussions with the other stakeholders to pursue pedestrian and cycling improvements on the Booth-Eddy street corridor and Chaudière Bridge, which may involve proposed changes to the cross-section along the corridor. These improvements will allow for the corridor to function as a central connector within the public realm network that provides improved multi-modal connectivity between both sides of the river.
- A pathway connection is to be provided from the existing NCC pathways along the south shore of the Ottawa River to the western tip of Albert Island and western edge of West Chaudière District.
- The right-of-ways for internal streets are to be landscaped with street trees and pedestrian and cycling amenities such as bike racks and seating.
- Existing bus lines will service the site with two new stops, one located along Eddy Street in Gatineau and the other along Booth Street in Ottawa. As development proceeds, the City will provide additional transit service to meet transit ridership needs and targets. [Amendment 143, OMB File #PL141340, November 18, 2015]
220.127.116.11 - Transportation Demand Management
The goal of the transportation strategy is to achieve high non-automotive modes of travel amongst those who will be living, working and visiting the Islands. The City’s Official Plan modal share target for sites near rapid transit is: 45% transit; 20% for non-motorized; 25% auto driver; and 10% auto passenger. To achieve these targets a Transportation Demand Management (TDM) program will be developed and implemented in a phased approach.
There are a number of TDM strategies and initiatives, which will be utilized to reduce vehicle traffic and parking demand. The following policies will form part of the strategies in the TDM program, but does not limit the development of other initiatives as the program is developed.
- The developer will create a TDM program acceptable to the City that includes a transportation strategy, implementation plan, and monitoring program, which sets out the methods and initiatives to achieve the modal share targets noted above.
- Future employers, employees and residents will be targeted through the TDM program with incentive and educational programs implemented in the early phases of the development.
- Parking for residents, visitors, and other users should meet and not exceed the City’s minimum parking requirements. A parking rate maximum should be applied to the site.
- Parking is encouraged in underground parking garages with limited surface parking to increase available space for other uses including public realm and private amenity areas.
- Car sharing and bike programs are to be made available on-site. [Amendment 143, OMB File #PL141340, November 18, 2015]
18.104.22.168 - Internal Street Network and Design
Booth Street provides the only public vehicular access and dissects Chaudière Islands into two districts. The private street network on West and East Chaudière Districts is conceived as an interconnected network of shared use streets and lanes to be carefully dimensioned and encompassing a series of short blocks to promote the ease of movement within a compact development. The concept plan of the street layout is illustrated in Annex 1. There are streets which existed on the Islands before but no longer exist due to the redevelopment of the site over the years. A number of these streets are to be reintroduced as heritage streets located in similar locations.
The primary objective of the street design is easy access and connection between all modes of transportation and providing multiple routes between all areas of the site and surrounding destinations. With an emphasis on pedestrian and bicycle friendliness, the street network also incorporates strong connections to surrounding pathway networks, with generous crossing where these networks come together. The following policies address the street design envisioned on the Islands.
- The street network on the Islands will be designed to include dedicated bicycle lanes, a minimum of 3 metre pedestrian zone on either side of the street, designed with plantings and street furnishings.
- Streets that are to be pedestrian priority zones such as around public squares and key pedestrian linkages will be designed as woonerfs (narrow curbless streets shared by all users), which assigns priority to pedestrians and cyclists.
- North-south streets should be oriented and designed to increase the amount of sun that reaches the public realm throughout the year.
- Streets should provide direct access to the riverfront.
- Streets that are oriented east-west should be staggered to buffer the public realm against prevailing west winds. The staggering also helps to establish a pedestrian scale, meandering urban character. [Amendment 143, OMB File #PL141340, November 18, 2015]
1.11.12 - Phasing and Implementation
22.214.171.124 – Phasing Plan
The transformation of the Islands is to be in the spirit of the vision and in accordance with the policy directions set forth in the Secondary Plan. It is expected that the redevelopment of the Islands will occur through a phased development program that will extend over multiple years. The overall phasing as currently contemplated, comprises of six phases, but may be revised as further study is undertaken.
- Phase 1: Removal of several structures from the site and the reconstruction and occupation of multiple heritage buildings.
- Phase 2: New buildings to be added to the west side of Albert Island, completing development on the island. New buildings constructed at the west end of West Chaudière District.
- Phase 3: Additional new buildings in the West Chaudière District.
- Phase 4: The completion of development of the West Chaudière District. This will include the last buildings on the Island to be constructed, including a new building along Booth Street.
- Phase 5: Adaptive reuse of the Board Mill building and associated new construction as a possible hotel, and the construction of buildings on the north side of East Chaudière District.
- Phase 6: Complete development on East Chaudière District with two new buildings.
Council supports a phased approach to achieve the overall transformation of Chaudière and Albert Islands through the following implementation measures to ensure that requirements to support each phase of development will be undertaken. [Amendment 143, OMB File #PL141340, November 18, 2015]
126.96.36.199 – Implementation Tools
The vision and policy direction for the development of Chaudière and Albert Islands have been described in Sections 1.11.6 through to 1.11.11. The development as it proceeds through future development applications are to have high regard and consideration for the policies of the Central Area Secondary Plan and satisfy requirements where stipulated. The following additional tools will be utilized by the City to ensure the implementation of the development concept plan for the Islands.
The Zoning By-law will be amended to rezone most of the Islands to Mixed-Use Downtown (MD) subzone. Holding provisions will be applied to the new zone to detail the provisions that are required to be met before the holding zone may be lifted. This will include, but is not limited, to the preparation of environmental, transportation, and infrastructure reports as well as approval through a two-stage approval process where the Stage 1 approval will deal with the overall development directions for each district with Stage 2 approvals for each phase of development detailing and demonstrating how the phased development aligns with and will contribute to achieving the overall development directions for full build out as detailed in the next section.
Site Plan Control
A 2-stage Site Plan Control application process for the full development of the project will be undertaken. The Stage 1 Site Plan Control application will deal with putting in place approval for the development concept plan for the whole site as well as servicing, transportation, and environmental conditions and requirements to be addressed either as part of the Stage 1 approval or through the Stage 2 approval. A Stage 1 Site Plan approval is required before proceeding to Stage 2 Site Plan applications.
A number of Stage 2 Site Plan applications will be submitted over the course of the development. These will be detailed plans demonstrating the architecture and building design as well as public realm treatments and may be submitted by building or groups of buildings on the same block or parcel of land. Each Stage 2 application will be subject to review by the City’s Urban Design Review Panel (UDRP). The Stage 2 applications will be implemented as set out in the Stage 1 Site Plan conditions and can be approved individually. [Amendment 143, OMB File #PL141340, November 18, 2015]
City Council shall ensure that interpretation of the LeBreton Flats Character Area has regard to all applicable policies set out in the City of Ottawa Official Plan. [Amendment 143, OMB File #PL141340, November 18, 2015 ]