6.0 Land Use Strategy and Appropriate Building Scale

The Richmond Road/Westboro CDP land use strategy is based on the division of the planning area into distinct sectors identified previously. The strategy provides recommendations on each sector’s land use character, maximum building heights and appropriate building scale, and development potential.

Map 9a

Map 9b

A common theme for the Traditional Mainstreet areas is the promotion of mixed use as per the policies of the Official Plan. Mixed use usually consists of a ground floor commercial use, such as retail or restaurants, and office uses in some areas, such as Scott Street. Upper floors would be residential. Mixed use can also occur side by side in separate buildings.

The CDP recommendations conform to the Official Plan policies for maximum building heights for Traditional Mainstreets. The Official Plan supports building heights in the range of four to six storeys, although greater building heights can be considered in any of the following circumstances: through CDP studies; if they conform to the prevailing building heights or provide a transition between existing buildings; if the development creates a community focus (e.g., corner lot, gateway or transit station/stop); if services/facilities are provided in return for an increase in height/density; or, are determined to be appropriate by the application of the Official Plan’s compatibility policies.

For all sectors, where heritage buildings exists, the CDP recommends the preservation and adaptive reuse of such buildings as part of the City of Ottawa’s heritage policies.

Maps 9A and 9B illustrate the changes in maximum building height proposed in the CDP as described in the following.

Sector 1, the Ambleside area, should gradually redevelop from automobile-oriented land uses to a residential community, in buildings with some ground floor commercial in order to serve the 3000+ residents in the sector. The existing eight-storey height limit of all the potential development sites fronting Richmond Road is sufficient to allow appropriately scaled intensification that provides a south to north transition from the low-rise residential neighbourhoods south of Richmond to the existing high-rise apartment buildings of the Ambleside community. 99 New Orchard should have its existing height limit increased from six to eight storeys in keeping with the sector’s eight-storey height limit for new infill development.

Sector 2, the Woodroffe North area of Richmond, should gradually redevelop from automobile-oriented type uses characterized by car dealerships, one-storey strip malls and stand-alone commercial buildings surrounded by parking to a residential/mixed-use community, in buildings with some ground floor commercial.

An automobile dealership at 955, 965 and 971 Richmond Road has been working with the adjacent Woodroffe North community over the last three years on a plan to formalize their operations. The community is satisfied with the more modest building expansion now being proposed, which includes a facade along the Richmond Road street edge, to improve the aesthetics of the new car display area. In spring 2007, City Council approved an application to change the zoning to permit the auto dealership use at all three addresses. In the longer term, it is expected that this use will be replaced by a more appropriate Traditional Mainstreet type of development.

As is the case throughout the planning area, recommended maximum building heights in this sector relate to the nature of the adjacent land use to the north. One of the CDP’s principles addressing compatible development states that intensification on key potential redevelopment sites (such as along Richmond Road) provide appropriate setbacks and a transition in building height, including lower heights along the edges of existing low density/scale residential neighbourhoods. In Sector 2, a four- storey (15 metre) height limit is appropriate for Richmond Road sites that are adjacent to, or are in the influence area of, the low density/low scale residential neighbourhood to the north.

Starting from the most westerly area, the existing eight-storey height limit of 993 and 979 Richmond should be maintained as they back onto the Ottawa River Parkway open space. Moving eastward, maximum heights should be reduced from eight to four storeys between 979 Richmond and Woodroffe (except for 945 Richmond – Parkview Place) adjacent to the low density/scale Woodroffe North residential community, taking into consideration the higher elevation of properties fronting Richmond compared to the residential area to the north.

East of Woodroffe, the existing four-storey limit should remain where the commercial lots on Richmond are adjacent to the Woodroffe North community.

The site of 809 Richmond Road has an existing height limit of six storeys and a very wide frontage of 100 metres. The Unitarian Church campus is located directly behind. However, as three houses on Aylen Crescent are within the influence area of the western half of 809 Richmond, the maximum building height should be reduced from the existing six to four storeys. The eastern half is of sufficient distance from these houses that the existing six-storey limit can be retained.

Moving eastward, still adjacent to the Unitarian Church campus, the existing four-storey height limit for 797-801 Richmond should be increased to six storeys as there is no low density/low scale residential uses adjacent to these properties.

The former CPR right-of-way parcels owned by the Church that are immediately adjacent to those fronting Richmond should also be the same height limit (four to eight storeys, including behind 793 Richmond, as shown on Map 9A) to ensure compatibility and an appropriate transition between these areas.

The CDP does not propose any change to the existing 15- storey height limit for 793 Richmond since it was approved by City Council in 2005 and by the Ontario Municipal Board in 2006. This zoning decision addresses the site-specific characteristics of 793 Richmond and is not considered to be the benchmark building height for the sector.

A Committee of Adjustment application for 793 and 761 Richmond was approved on January 10, 2007. The proposed development is for a 15-storey apartment building at 793 Richmond, with a two-storey office block linking it to a five-storey apartment building at 761 Richmond. The application was for minor variances that would increase the existing height limit for 761 Richmond from 13.8 to 15 metres and remove the FSI limit, among others. The decision noted that the owner had agreed to convey land at the time of site plan control approval for the purpose of widening Cleary Avenue and other roadway modifications. Similar land conveyances may be required from the owners of 747 Richmond Road at the time of site plan control approval to accommodate intensification of that site.

On the northeast corner of Cleary and Richmond, 747 Richmond Road is one of the more controversial sites in the planning area. Although there is stakeholder agreement that the existing four-storey height limit can be increased, a divergence of views emerged over what the appropriate increase should be.

The residents of the five-storey 727 Richmond Road (Parkway Terrace) to the east proposed a maximum of six storeys, as per the policies for Traditional Mainstreets. Several site development conditions were set forth if anything higher than six storeys is proposed. The Unitarian Church, an adjacent landowner, supports this position, as does the rest of the PAC.

The proponent for the rezoning of the site for a 19- and 21- storey condominium development stated that it conforms to the City’s intensification policies, enhances the pedestrian environment, and that the proposed building height is supported by the compatibility policies of the Official Plan. The proponent noted that the site was relatively isolated, with no development behind it, no adverse impact on adjacent uses, and that the area was in transition as demonstrated by the approval of a 15-storey building at 793 Richmond.

In April 2007 the proponent revised their application, in response to community concerns, to a 15-storey height for the east tower and an 18-storey height for the west tower of 747 Richmond Road. Staff had attempted a compromise alternative by proposing an 8-storey height limit on the east half of the site and a 12-storey limit on the west, but this compromise was not acceptable to either side.

The development at 747 Richmond Road raises some significant city-wide policy issues on intensification, compatibility and collaborative community building that go beyond this particular site. In recognition of this, staff are recommending that 747 Richmond not be rezoned as part of the Richmond Road/Westboro CDP. Instead, staff will be bringing forward a separate report, dealing specifically with the existing rezoning application submitted for this property, for consideration by Planning and Environment Committee and City Council.

On July 9, 2007 Council approved an amendment to the CDP to increase the maximum height on 747 Richmond Road to 6 storeys (18 metres). On September 16, 2008 the Ontario Municipal Board approved zoning provisions that will create a height limit of eight storeys on the east half of 747 Richmond Road and 12 storeys on the western half.

The character of this stable residential area should be preserved. There is no need for change for the foreseeable future until redevelopment opportunities in other sectors are more fully realized, except for the widening of the sidewalk and landscaping to ensure uniformity in the streetscape treatment.

Sector 4, Maplelawn/495 Richmond Road Area, includes: Rochester Field greenspace and the Maplelawn heritage building and gardens, both owned by the NCC; 495 Richmond (existing seven-storey office building, a six-storey residential building under construction and zoning for a future 20-storey residential tower); and, 471 Richmond (existing Rogers one and two storey office/telecommunications building).

This sector provides a transition and an interface between the Ottawa River Parkway open space network and the built environment. All of the Rochester Field parcel should be retained as a green space presence on the street and to provide a link to the recreational pathway network along the Ottawa River Parkway and to the Ottawa River. Access to the Maplelawn gardens and heritage building should also be improved.

New buildings should be setback from the street and provide a transition in scale from Richmond Road to the rear of the properties facing the Ottawa River Parkway open space corridor (maximum six to ten storeys).

The existing Traditional Mainstreet character and liveliness of Sector 5, Westboro Village, including its tightly knit urban fabric and an inviting streetscape, should be reinforced through updated urban design guidelines, improved storefront facades and street tree planting. Mixed use is encouraged, including a continuity of ground floor retail/restaurant uses and residential and office uses on upper floors. Underused lots and auto-oriented uses should be redeveloped with more pedestrian-friendly active commercial uses.

A sense of human scale is critical to enhance the Traditional Mainstreet character with maximum building heights in the four- to six-storey range with a minimum of two storeys.

Buildings should be built close to the street (except at the key Churchill/Richmond intersections, where wider sidewalks are needed). Beyond three storeys, buildings should be setback further from the street.

Most of Westboro Village has an existing eight-storey height limit. The CDP proposes to reduce this to a maximum of four and six storeys, which is more in keeping with the predominant one- to three-storey pedestrian-scale mainstreet character of the Village. Traditional Mainstreets, such as Beechwood Avenue and Bank Street in the Glebe and Old Ottawa South, have maximum building heights in the four-six storey ranges, and sometimes less. Six storeys can be supported at gateway intersections (Golden, Churchill), and other locations where there is sufficient lot depth to provide an appropriate transition with the adjacent low-rise residential neighbourhoods on either side of Richmond as per the rationale for Sector 2, Woodroffe North. Lots with shallower depths (e.g., less than approximately 45 metres) should be limited to four storeys.

An exception to this recommendation is proposed for the block fronting on both Richmond Road (south side) and Danforth Avenue and the block fronting on both Richmond Road (north side) and Madison Avenue. In these cases the existing eight-storey height limit should be retained as the blocks have sufficient depth and the rear street provides sufficient separation distance to provide an appropriate transition to the low-rise residential neighbourhoods to the south of Byron and on the north side of Madison. The blocks also have vehicular access to the rear street. Buildings facing onto Danforth or Madison would need to be appropriately articulated as the front of a building and stepped back after the second or third storey. At a minimum, the new TM zone provisions for setbacks at or above the fourth storey or 15 metres, whichever is lesser, will apply. On Madison, with low-rise residential uses on the north side, a minimum setback of 3.0 metres will be required, with no maximum.

On October 4, 2006 the Committee of Adjustment approved an application for an increase in the maximum building height on the western third (approximately) of 416-30 Richmond (known as the Bourk site/Westboro Station) from six to nine storeys based on a concept that reduced the middle portion to two storeys and retained the six-storey limit on the eastern third of the site. On August 28, 2008 City Council adopted a zoning by-law amendment permitting an eight storey building on the eastern third of the site.

Sector 6, East Village, does not have the well-defined Traditional Mainstreet character of Westboro Village. The East Village features a wide mix of building types, large institutional/industrial buildings with large landscaped front lawns, older heritage house-form structures, car lots, and newer retail buildings, both the large format Great Canadian Superstore as well as smaller scale retailers. The East Village should take on a more traditional mainstreet character, recognizing the varying character of the existing buildings and lot and block sizes, as an extension of Westboro Village and a link to the West Wellington mainstreet east of Island Park Drive. Maximum building heights in this sector should be four storeys where lots depth are shallow (less than approximately 45 metres) and back on to low-rise residential areas and up to six storeys where lot depths are deeper, as per the rationale for Sector 2,, Woodroffe North.

The Canadian Banknote Company will likely remain in its present location for the foreseeable future. Any future mixed- use redevelopment should consider use of all or part of the landmark building and the retention of the front green lawns, where possible, including a public square as a community gathering place. Due to the size of this site and the adjacent 175 Richmond Road, and with no anticipated redevelopment plans, the existing industrial zoning should remain in place until such time as future redevelopment proposals are forthcoming. At that time the properties can be rezoned to TM-Traditional Mainstreet, including an overall height limit of six storeys. Redevelopment of the rear of these sites should be compatible with, and provide an appropriate transition to, the adjacent low-rise residential areas.

Should the Soeurs de la Visitation Convent site be redeveloped sometime in the future, the convent wall should be taken down and the convent building be adaptively used, with mixed- use/ground floor commercial along Richmond and residential behind, incorporating as much of the existing landscaping as possible and views of the convent building. At that time the existing institutional zoning could be changed to more appropriate zoning (TM along Richmond, maximum six storeys; and residential zoning behind, maximum four storeys, compatible with the adjacent land use). Other heritage buildings on the south side of Richmond between Kirkwood and Hilson Avenues should be preserved and used for active commercial uses.

The used car lots and the Canadian Tire site from Patricia to Island Park Drive should be redeveloped for mainstreet type, mixed-use buildings with ground floor commercial. For 93 Richmond Road, the Committee of Adjustment granted an increase in maximum building height from four to six storeys and this was confirmed by the OMB. A gateway feature, such as a prominent, well-designed building (within the four storey height limit) should be developed at Island Park Drive on one or both sides of the intersection within the planning area to announce the entrance into the Village area.

Scott Street

The south side of Scott Street, a designated Traditional Mainstreet, should evolve from an industrial/auto-oriented, pedestrian-unfriendly landscape to a mixed-use environment where people can both live and work. Ground floor commercial should include employment uses, such as offices, to take advantage of the proximity of the Westboro Transitway Station. Although some lots are less than 45 metres in depth, existing maximum building heights in the six- to eight- storey range were established by site specific rezonings or as part of the 1997 M1 zoning study to encourage redevelopment of the existing industrial/commercial uses. New infill development will need to ensure that an appropriate transition is provided with the adjacent residential community.

The Granite Curling Club site provides an opportunity for future redevelopment as a mixed-use project, potentially incorporating the existing curling rink building, in keeping with the policies of the CDP.

Two additional properties to the west of Scott Street between Winston and Roosevelt (335 and 342-60 Roosevelt) currently have industrial uses, but have an existing residential zoning with an 18.3 metre height limit. There is an anomaly in the zoning that allows a six-storey retirement home, but only a four-storey apartment building. This zoning was established in 1997, as part of the MI zoning study, to encourage the industrial uses to be redeveloped for more appropriate residential uses compatible with the adjacent low-rise residential community. (A similar zoning situation exists for 1946-50 Scott Street.)

The rationale for this zoning is consistent with the compatibility principles established in the CDP. However, to correct the zoning anomaly, the CDP recommends that the existing Zoning By-law term “high-rise apartment building” be added as a permitted use. This will allow a six-storey apartment building consistent with the 18.3 metre height limit. In the new draft Zoning By-law, the new term “apartment dwelling, mid-high rise” will be used to provide a more accurate definition of the building form.

Westboro Transitway Station Area

This part of Sector 7 includes the former CBC site, now used for federal government offices, and the Westboro Transitway Station. This large (31,841 m2) site, with an existing height limit of six storeys, provides an excellent opportunity for intensification adjacent to a Transitway station in keeping with the policies of the Official Plan. For the southerly half of the site, a maximum of 12 storeys is proposed, in order to provide a transition from the 32-storey Metropole building to the east and the lower-scale apartment buildings to the west. The northerly half of the site is proposed to retain the existing six- storey height limit to provide a transition to the low scale residential neighbourhood to the north. Mixed-use development could occur either in the same buildings or separate buildings with office use on the southerly half and residential use on the northerly half. A sun/shadow study would be required at the time of site plan application to address potential shadow impacts on the Lanark area neighbourhood.

Due to the size of this site, and with no anticipated redevelopment plans, the existing zoning should remain in place until such time as a future redevelopment proposal is forthcoming. At that time a site-specific traffic study will be required to address the issue of traffic impact, particularly on Lanark Avenue, resulting from intensification overshadowing the Lanark area neighbourhood. Possible means of addressing this issue would be to provide vehicular access over the Transitway to Scott Street, and the developer undertaking a transportation demand management plan. Lower minimum parking requirements in the draft Zoning By-law for sites within 600 metres of a Transitway station would also apply ,as well as maximum parking space limits.

The pedestrian walkway to the Transitway station from 250 Lanark should be enhanced to help promote transit use.

Adjacent to the Westboro Transitway Station a public plaza should be built over the Transitway, creating a pedestrian-friendly environment including streetscaping elements. On the plaza, a one- or two-storey building could provide convenience retail and other services to Transitway passengers.

For Sector 8, the Atlantis-Selby lands should be preserved as green space to provide both a local community and a citywide attraction.

Bloomfield Yards will remain in its present location as the main facility for the City’s forestry operations, according to the City’s recent Strategic Alignment Initiative study. In addition, there are no plans to redevelop the Jules Leger Centre and it will remain as a special needs educational facility for the foreseeable future. Accordingly, the existing industrial zoning of Bloomfield Yards and the institutional zoning of Jules Leger Centre will be retained. Should these properties redevelop in the future, a rezoning to residential use would be appropriate that is compatible with the adjacent neighbourhood and addresses traffic impacts on Lanark Avenue. These two properties are located adjacent to a low-density residential neighbourhood and are not on an arterial roadway designated as a Mainstreet. The maximum height limit for any future rezoning for residential uses should be four storeys to provide a transition to the low-rise, low-density residential neighbourhoods to the north and west.

Sector 9, McRae and Churchill Avenues, between Richmond and Scott, should redevelop as mixed-use streets, including employment/office uses linking Westboro Village, Scott Street and the Transitway station.

For Churchill, the proposed GM-General Mixed-Use zone in the draft Zoning By-law is appropriate as a mixed-use zone with an 18-metre (six-storey) height limit. Churchill is not designated as a Traditional Mainstreet, is not under development pressure and will most likely see very gradual change. In this zone, residential, commercial and mixed-use development is permitted, though commercial uses are limited to those that do not affect the development of designated Traditional Mainstreet areas as viable mixed-use areas. Office is an example of this type of commercial use.

McRae Avenue addresses with industrial zoning should be rezoned to the former Ottawa’s existing Zoning By-law CG-General Commercial zone as part of the CDP recommendations to promote McRae as a mixed-use street. The existing lower maximum building heights within 20 metres of a residential zone are proposed to be retained. Upon adoption of the draft Zoning By-law, the CG zone will become the GM Zone.

Infill development on both Churchill and McRae will need to provide an appropriate transition to the existing residential community to the rear.

Table 3 provides a comparison between the maximum development potential under the existing zoning and the maximum development potential as proposed in the CDP for each sector. The number of residential units and square metres of floor space of other uses (e.g., retail, restaurant, office, institutional, institutional, recreational) are compared for each category.

An important proviso in reading the numbers in Table 3 is that maximum development potential has been used for comparison purposes in order to provide a sense of what the impact would be of full build-out under both the existing zoning and the CDP recommendations. It is unlikely that every property will redevelop to its full potential for many years. A few properties may not redevelop for many years because of difficulties of land assembly, existing land uses, property owner intentions, market conditions, among other reasons.

For example, redevelopment in Westboro Village will likely continue to include two storey commercial buildings that contain no residential units, along with taller residential/mixed-use projects. Table 3 illustrates what could be developed following the mixed-use principles for Traditional Mainstreets.

The development assumptions are as follows:

• On sites to be zoned TM-Traditional Mainstreet, or GM -General Mixed-Use, ground floor is commercial, upper floors are residential;
• For 250 Lanark Avenue, Table 3 assumes commercial-only buildings on the south half and residential-only buildings on the north half (actual development will be determined at the time of a development application);
• Residential and mixed-use buildings that have been approved but not yet built or not fully occupied by December 31 2006, are included in the existing and proposed development potential columns because the development has established the maximum zoning potential but there were no residents yet to generate traffic impacts;
• Zoning changes would occur as per the CDP recommendations;
• In some cases, such as the East Village, some of the potential development under the existing zoning for other uses (e.g., commercial, industrial) has been allocated to residential units in the CDP’s proposed maximum potential development;
• Only properties that have redevelopment potential are included in the table. Properties deemed to not have redevelopment potential, such as existing residential buildings along Richmond Road and heritage buildings, are not included.

Table 3 - Summary of Maximum Existing and Proposed Development Potential by Sector

*Other uses include retail, restaurant, office, industrial, institutional and recreational uses.
# Existing potential is the maximum development potential permitted under the existing zoning and proposed potential is the maximum development that could occur as proposed in the CDP.

This table shows that modest intensification from what can be developed under the existing zoning could occur across the planning area and need not be focused on any one or two sectors. Modest maximum potential increases in the number of residential units from the maximum potential under the existing zoning are shown in Sector 4 and the Westboro Transitway

Station area of Sector 7. Redevelopment under the existing zoning would have permitted intensification in all sectors, and in some cases the CDP is recommending reductions in the existing maximum building heights in keeping with the unifying vision and principles of the CDP and the policy direction for Traditional Mainstreets.

Sector 6, East Village has a larger potential increase for residential units based on a proposed shift from industrial use to residential mixed-use on 175 and 145 Richmond, should these properties be redeveloped in the future as per the development assumptions of Table 3. Sector 5, Westboro Village, has the greatest potential for new residential units, although the CDP proposal is actually for a small decrease in the maximum potential units under the existing zoning because of the recommendation to reduce most of the existing maximum height limits in the Village from eight storeys to six and four storeys.

For the entire planning area, the total floor area of other uses is proposed not to change significantly from the existing situation, although the type of use could change in some areas and it could be distributed differently. In Sectors 4 and 6 and McRae Avenue, industrial uses would eventually be replaced by mixed use. As previously noted, the Westboro Transitway Station area, particularly 250 Lanark, provides an excellent opportunity for intensification for office employment and residential uses.

Intensification can be achieved in Richmond Road/Westboro that is in keeping with the Official Plan’s growth management strategy while addressing the issues of compatibility with existing neighbourhoods. .

During the preparation of the CDP, the PAC proposed that "density caps" and "triggers" were needed to monitor intensification in Richmond Road/Westboro on an on-going basis. They felt that a development monitoring/review mechanism was necessary to determine if intensification was having negative impacts on the community (e.g., impact on traffic and infrastructure capacities, level of cut-through traffic, the transit modal share, among others). At a certain percentage increase in the number of residential units in the overall CDP area or subarea, a review mechanism of these impacts would be triggered to determine if the CDP's maximum development potential projections needed to be adjusted, the zoning amended accordingly, and/or future community infrastructure or facility needs should be addressed.

This issue is not unique to the Richmond Road/Westboro area. It has been raised in other CDP studies, and was most recently dealt with, on October 24, 2006, by Planning and Environment Committee in the report on the Queensway Terrace North Interim Control By-law study. The Committee directed staff to consider the Development Review Mechanism model, proposed by the Queensway Terrace North Public Advisory Committee, as part of addressing the interpretation and implementation of the City's intensification objectives during the five-year review of the Official Plan in 2008. The establishment of a development review mechanism to monitor the impact of intensification on established neighbourhoods is a city-wide issue and is better addressed on a city-wide basis. The Richmond Road/Westboro CDP area should also be included in the Official Plan review of intensification objectives.