3.0 Revitalization Strategy

St. Joseph Boulevard is ideally suited for the scale and character of revitalization and intensification envisioned in the City’s Charting a Course. St. Joseph Boulevard becomes Montreal Road in Vanier, Rideau in downtown Ottawa and Wellington Street in front of the Parliament Buildings. The basis of this strategy is that the character of development abutting St. Joseph Boulevard can evolve to the more urban form that exists along this street as it extends west into downtown Ottawa.

Discreet neighbourhoods and focal points will be defined along its 3.5 km length to avoid the monotony of an endless string of plazas. The City recognizes that transit is key to success and that it will be important to shape plans for intensification. Transit will, over time, be improved along St. Joseph.

In addition, the function of the road will change over time as development intensification occurs. Travel speeds will be reduced, on-street parking will cause friction and traffic operations will take on the conditions typical of Montreal Road, not a suburban arterial road.

There is not a single item that will facilitate or stimulate change in the St. Joseph corridor but rather, a series of incremental and complementary steps that will occur over time. The revitalization strategy is based on:

• 4 principles that describe the fundamental basis of the approach to revitalization;
• 7 general strategies;
• 24 specific initiatives;
• Guidelines for the public sector improvements;
• Guidelines for private sector redevelopment; and,
• An Action Plan that identifies 5 implementation measures.

1. Create distinct and vibrant urban districts
St. Joseph Boulevard will be a centre of activity - the spine of Orléans - knitting the community together across the corridor. The healthy, vibrant mixed-use districts along the corridor will include places to live, work, shop, and play, building upon its convenient transit access. As a result, St. Joseph Boulevard will be appealing for pedestrians, cyclists, transit users, as well as motorists. Traffic will be calmed, and the function of St. Joseph Boulevard will evolve from a suburban arterial to a more traditional “main street”.

2. Create a beautiful landscaped boulevard
The new mixed use district will be improved with significant landscape treatment and pedestrian amenities within the public right-of-way to identify this distinct street and to upgrade its visual quality. St. Joseph Boulevard has a unique geographic and landscape setting that will be celebrated.

3. Ensure a sensitive and flexible design strategy
The overall design strategy will be sensitive to the needs of all users. Accessibility for the handicapped will always be considered. Furthermore, the design strategy will be flexible enough to accommodate unique circumstances as public and private sector development occurs along the corridor.

4. Establish partnerships to enable revitalization to occur
The evolution of the St. Joseph Boulevard district will occur incrementally and through public/ private sector partnerships. It will require champions and pioneers who will ignite the imagination and foster a willingness to participate in a new vision for the civic focus of Orléans. The public sector will lead by action. Both the public and private sectors have a role to play in realizing a new vision of St. Joseph Boulevard. But the public sector has to lead the way by showing an obvious commitment to revitalization by investing in the quality and amenity of the public domain. Private development initiatives can be expected only in response to a clear, demonstrated redirection of the public initiative.

Revitalization of St. Joseph Boulevard is based on 7 general strategies.

1. Establish an incentives-based planning policy regime that promotes revitalization
A simplified planning policy regime is suggested that provides sufficient and realistic incentives to promote redevelopment, while at the same time minimizing the impacts on abutting low density housing and ensuring an appropriate relationship between the buildings and the adjacent streets, especially at the identified urban gateways. Design guidelines for private property development are also required to ensure that the public’s intentions for redevelopment are well understood. The primary purposes of this revitalization strategy are:

• To establish the St. Joseph Corridor as a focus of activity by promoting new development that includes a broad mix of land uses at higher densities than the adjacent neighbourhoods;
• To maximize pedestrian transit and vehicular accessibility and safety; and,
• To establish an urban design and policy regime that results in a high quality of built form and landscaping on both public and private sector properties. The objectives of the new planning policy regime are to:
  • Encourage redevelopment with an array of land uses that support transit and provides a comfortable and attractive pedestrian environment;
  • Promote new buildings that create an improved image for the Corridor, contain the street and accentuate gateways and intersections;
  • Encourage redevelopment with higher densities that supports transit and provides a comfortable and attractive pedestrian environment;
  • Encourage appropriate and achievable redevelopment at a scale that is financially feasible;
  • Promote a level of uniformity of built form adjacent to the street edge;
  • Reduce parking standards and permit on-street parking to promote a more intensified and transit supportive urban environment;
  • Promote a rational reduction in the number of accesses to St. Joseph Boulevard; and,
  • Establish a program of financial incentives and a regulatory regime that facilitates appropriate redevelopment.

Intensified mixed residential and commercial development in Woodbridge, Ontario

2. Define the urban gateways as locations of intensified, mixed use development
Urban gateways are suggested to define special areas of intensified development along the length of St. Joseph Boulevard. Intensified development typically evolves at intersections. Gateways are locations where higher density development would be permitted and are suggested at Jeanne d’Arc Boulevard, Orléans Boulevard and Edgar Brault.

3. Areas between the gateways to include mixed use, street related development
Redevelopment with mixed use, street related buildings should be encouraged between the gateways. Higher density residential, office and commercial uses are all appropriate for the Boulevard. No single-use land use districts are suggested.

4. Create a beautiful street with consistent streetscape treatment
The strategy for the public sector improvements focuses on enhancing the streetscape. A consistent approach to tree planting, the location and material of the sidewalk and the location of high quality public amenities (such as lights, benches and transit shelters) will completely transform the appearance of St. Joseph Boulevard. The intent is to create a lush and green urban boulevard that is a great place to walk and cycle, as well as to drive. The revitalization strategy is intended to ensure a level of consistency among some elements of the streetscape across the 3.5 km length of the Boulevard. The streetscape will provide the coherent and flexible framework within which a variety of private sector development initiatives will occur. It will also provide the framework for streetscape enhancements that reflect site specific features along the corridor.

5. Create beautiful green spaces protecting and accentuating natural features
St. Joseph Boulevard is crossed by two river valleys - one tributary west of Jeanne d’Arc Boulevard and Bilberry Creek. The valley in the west has been destroyed on the north side of St. Joseph Boulevard through redevelopment. Bilberry Creek is still intact on both sides of the street. Care must be taken to ensure the natural features are protected and enhanced. Bilberry Creek flows through an open space and by a cemetery, a perfect location for park improvements to become a key focal point along the Boulevard.

6. Market St. Joseph Boulevard as a prime location for professional offices, niche and convenience retail and higher density residential development
The demographic profile of the area is oriented to retail consumption patterns offered at the nearby Place d’Orléans Mall. Considerable retail space is already located in the area to effectively serve the Orléans community including relatively new commercial space along St. Joseph Boulevard. As a result, the potential for new retail development will likely be niche-driven (e.g., specialty service and restaurants) and relatively small in scale. The potential for infill residential projects would (like the retail market) represent a niche opportunity for higher intensity development that recognize a location near transit, shopping and community services. Redevelopment opportunities that include a mixture of office, retail and residential uses should be promoted and marketed to the development community.

7. Continue to work towards a strategy for underground hydro service as a long term goal
There is no question that the visual quality of St. Joseph Boulevard would be enhanced as a result of placing the hydro service underground. Realistically, there are a variety of hurdles that a hydro service burying strategy must overcome, including:

• The cost is substantial, and no funding sources are available;
• The City of Ottawa has no program in place that would remove the poles and replace them with underground services; and,
• The poles are not ready for replacement at this time - most are still good for 20+ years.

Notwithstanding those hurdles, it is suggested that affected landowners be surveyed to determine their willingness to support the service burying strategy, including their desire to pay for underground services to their individual buildings, either in retrofitting existing development, or as a requirement of redevelopment.

In the meantime, successful revitalization on private and public lands can proceed without placing the hydro service underground. Certainly there are many streets that are exceptional urban districts that have similar conditions with overhead wiring.

Specific initiatives have been identified along St. Joseph Corridor.

Youville Neighbourhood

Reinstate the valley on north side of St. Joseph Boulevard

Protect creek valley on the south side of St. Joseph

Protect heritage features

1. Protect the Escarpment
The entrance to the St. Joseph Boulevard area is defined by a beautiful, vegetated escarpment on the south side of the road. This “green gateway” should be protected.

2. Gateway
The north side of the Youville Drive/St. Joseph Boulevard intersection is a suitable location for intensified development. The area north of the boulevard is the location of employment uses.

3. Protect the creek valley
The creek valley must be protected and further enhanced.

4. Reinstate the creek valley
The valley on the north side of St. Joseph Boulevard has been completely destroyed through redevelopment. A parking lot has been constructed over the valley. An ambition of the revitalization strategy is to reinstate important natural features, such as valleys, in the long term.

5. Protect heritage buildings
There are interesting heritage buildings in the Youville Neighbourhood that provide an important link to the evolution of this area. These buildings should be maintained.

6. Mixed use street related development
The areas between the centres are ideal locations of mixed use street related development. Design guidelines describe the appropriate scale and character of development.

7. St. Joseph Streetscape
Consistent streetscape treatment along St. Joseph Boulevard will add a sense of coherence to the area, in spite of the existing widely varying and disparate developments. Design guidelines describe streetscape character and elements.

Figure 9: 24 specific initiatives

Jeanne d’Arc Neighbourhood

Prime sites for redevelopment of mixed use street related uses

Bridge at Bilberry Creek

Open space along Bilberry Creek, north of St. Joseph Boulevard

8. Gateway at Jeanne d’Arc
The intersection of Jeanne d’Arc and St. Joseph Boulevard is an ideal location for intensified development. Over time as redevelopment occurs, this location is suited to higher density residential, commercial and/or office uses that accentuate the importance of this intersection.

9. Pedestrian Connection
A pedestrian connection is suggested between the end of Bakker Court and St. Joseph. With relatively few streets intersecting with St. Joseph, the adjacent neighbourhoods are relatively disconnected from the shopping district. Since it is unlikely that there will be significant changes to the street and block pattern, pedestrian connections should be added wherever possible.

10. Remove the bus bays
The bus bays should be removed. This initiative is consistent with the direction of the City to give priority to transit.

11. Mixed use street-related development
As redevelopment occurs over time, the areas between the gateways are ideal locations for mixed use, street-related development. This is a perfect location for higher density housing, especially given the transit service on the Boulevard.

12. St. Joseph Streetscape
Consistent streetscape treatment along St. Joseph Boulevard will add a sense of coherence to the area, in spite of the existing widely varying and disparate developments.

Orleans Neighbourhood

13. Remove bus bays
The bus bays should be removed. This initiative is consistent with the direction of the City to give priority to transit.

14. Gateway
The intersection of Orleans Boulevard and St. Joseph Boulevard is identified as a gateway, a site for intensified development. The sketch on the opposite page illustrates the concept of higher density development concentrated at the corner location. A typical development would include residential units on upper stories and ground floor retail. Buildings are located to front, face and feature St. Joseph Boulevard. Redevelopment occurs within the context of existing commercial plazas remaining. Wherever possible, parking is located underground, behind the buildings or in the interstitial areas between buildings or developments in small parking lots. The ambition is to avoid large expanses of parking from dominating the street edge.

15. Mixed use street related development
The areas between the gateways should be developed with mixed use street related development. The sketch illustrates lower buildings located mid block. Mixed uses would still be encouraged in these locations.

16. St. Joseph Streetscape
Consistent streetscape treatment along St. Joseph Boulevard will add a sense of coherence to the area, in spite of the existing widely varying and disparate developments.

Bilberry Creek Neighbourhood

17. Protect Bilberry Creek
Bilberry Creek crosses St. Joseph Boulevard just west of the church. It is imperative that this important natural feature be protected. The landscape along the creek should be naturalized, including the use of a naturalized approach to bank stabilization.

18. Continue to enhance the bridge
Improvements have already been made to the bridge with special lighting and fencing. The bridge is a key location for continued upgrading.

19. Upgrade the landscape of the open space
Bilberry Creek flows through open space associated with the church. The retaining wall has been the target of graffiti over the years. The landscape could be upgraded to provide a key focus to the St. Joseph district.

20. Church as a focus of the district
The church is an obvious focus for the entire St. Joseph district. The church spire is a highly visible beacon from most of the district. Its location next to the open space and Bilberry Creek make it a cultural focus for the district.

21. Mixed use street related development
The area near Edgar Brault is the location of the original village. Most buildings are located at the edge of the right-of-way. This is the area that appears ripe for redevelopment, especially on the north side of the street. A mix of uses in street-related buildings is recommended. Buildings should include retail uses on the ground floor. The adjacent residential neighbourhoods are well connected to St. Joseph Boulevard through a closely spaced street system which results in small blocks.

22. St. Joseph Streetscape
Consistent streetscape treatment along St. Joseph Boulevard will add a sense of coherence to the area, in spite of the existing widely varying and disparate developments.

23. Gateway
The gateway at Place d’Orléans Drive is an important location for intensified development to mark the east gate to the district. A “pad” building associated with Place d’Orléans Mall could be located to help define the north east corner of the intersection. Over time as redevelopment occurs, the existing individual commercial buildings could evolve into a more intensive form of development.

24. Encourage landscape enhancement on abutting private property that complements streetscape improvements in the public right-of-way
There are many locations where existing development has wide front yard setbacks that could incorporate landscape treatment that complements streetscape improvements within the public right-of-way. Property owners should be encouraged to provide front yard landscape treatment that further enhances the City’s initiatives with the public realm.

1. Right-of-way

The St. Joseph Boulevard right-of-way should not be widened. It should remain at its current width which will accommodate 2 lanes of traffic in each direction with off peak, on-street parking along commercial frontages.

St. Joseph Boulevard looking west at Gabriel Street

The existing right-of-way (ROW) width for St. Joseph Boulevard varies. The ROW through the east end near Edgar Brault Street is 25 to 28 m. The rest of the ROW is 30 to 34 m wide. The Official Plan of the former Regional Municipality has identified St. Joseph Boulevard between Jeanne d’Arc Boulevard and Place d’Orléans Drive as being protected for a 34 m ROW.

An analysis of Ottawa’s urban arterial roads, such as Bank Street in the Glebe neighbourhood and Montreal Road in the former City of Vanier are protected for a 23 m ROW in the Regional Official Plan.

Overtime, as redevelopment and intensification occurs, St. Joseph Boulevard should take on the role and function of an urban arterial. Therefore, it is recommended that the existing ROW for St. Joseph Boulevard should generally remain as it is. It is intended to maintain the 4 lane configuration, with on-street parking located along the commercial frontages, for use in off-peak hours. The 4 lane configuration can generally be accommodated within existing curbs. Landscaping in the boulevards would be eliminated at intersections to permit the addition of a left turn lane, where necessary. Cyclists could be accommodated in the traffic lane. As redevelopment and intensification occurs, the conditions of this road will change. It will, over time, function similar to Montreal Road with reduced speeds and friction caused by on-street parking.

The following cross sections illustrate typical conditions for the 26 m and 32 m ROW. They illustrate the reconfiguration of the lane widths. In the long term, when St. Joseph Boulevard undergoes full road reconstruction, curbs will be moved to provide for wider pavement widths of 15.0 m in the 32 m ROW, and 14.5 m in the 26 m ROW. The distribution of features outside of the curbs is described in the following section.

Figure 11 Cross section of 26m ROW

Existing Conditions - Typical cross section of St. Joseph Boulevard in the area near Edgar Brault with the existing 26 m ROW

Initial Streetscape - Typical cross section of St. Joseph Boulevard near Edgar Brault

Figure 12 Cross section of 32 m ROW

Existing Condition - Typical cross section of St. Joseph Boulevard with a 32 m ROW

Initial Streetscape - Typical cross section of St. Joseph Boulevard with a 32 m ROW

Ultimate Streetscape - Typical cross section of St. Joseph Boulevard with a 32 m ROW

2. Pedestrian Zone

Provide a significant pedestrian zone along the curb edge to accommodate a continuous sidewalk and distinctive streetscape treatment.

St. Joseph Boulevard should be a grand landscaped avenue - the primary public place in this community. Sidewalks are the main pedestrian routes, representing the largest and most valuable public open space. Currently, the wide open expanse of pavement, which extends almost uninterrupted from one building face to another, is a bleak and uninviting prospect to pedestrians. Conditions are inhospitable.

The suggested right-of-way dimension has a 9.2 m pedestrian zone between the curb and the edge of the right-of-way. This zone will accommodate a sidewalk, planting bed and pedestrian amenities such as benches and transit shelters. In the long term, the pavement width will be increased to 15 m therefore reducing the pedestrian zone to 8.5 m.

The most important attribute of a good pedestrian system is its continuity; continuity of the alignment and surface of the sidewalks, without hazardous breaks and obstructions, continuity in the walls or other elements which define the edges of the pedestrian areas, continuity of materials.

The typical pedestrian realm on St. Joseph Boulevard would include:

• A setback to the planting bed;
• A 3 m wide raised planting bed;
• A 2 m wide sidewalk located between the alley of trees; and,
• A boulevard with tree at the edge of the right-of-way.

The intent is to create a wide, defined and clear passageway for pedestrians. The clear passageway is protected from the road edge by the planting bed and trees. No obstacles would be located within the pedestrian route.

The following pages illustrate cross sections for both the 32 m typical right-of-way condition and the 26 m right-of-way near Edgar Brault. Cross sections illustrate streetscape treatment that can be applied to the full length of St. Joseph Boulevard. Streetscape enhancement is illustrated within the context of the existing hydro poles and overhead wires.

Cross sections also illustrate how the initial streetscape treatment will accommodate private sector development over time.

Specific conditions of property ownership, location of off-street parking, and underground services are widely varying along the corridor. During detailed design, a surveyed base map will be required to accurately locate all above and below ground features. These guidelines will be applied to the development of a detailed streetscape plan for St. Joseph Boulevard.

The setback to the planting bed, width of the planting bed, width of the sidewalk and width of the grass boulevard may vary across the entire length of the corridor. This is a menu of elements that can be adjusted based on the specific situations in each block. Figures 13 and 14 illustrate the evolution of changes to the streetscape.

Figure 13 Sequence of change to the 32 m ROW

Proposed 32 m ROW Initial Streetscape

Proposed 32 m ROW - Ultimate with private sector redevelopment

Existing Condition:

• Sidewalk at curb
• No street trees
• No buffer between front yard parking and sidewalk

Initial Streetscape

• Raised planters with trees + shrubs
• Clear pedestrian sidewalk
• Double row of trees lining sidewalk
• Textured paving to define amenity zone for benches, new pedestrian lights, waste receptacle, transit shelters
• Special paving defines cross walks

Ultimate

• New buildings locate at the edge of the right-of-way
• Entire pedestrian zone becomes hard surface
• Trees at the edge of the ROW have tree grates around their base in a more typical urban condition
• Pavement width is widened
• Setback to raised planter is narrowed

Figure 14 Sequence of change to the 26 m ROW

Initial Streetscape

3. Street Trees

Plant a row of street trees along both sides of St. Joseph Boulevard in a low, raised planting bed.

Trees in a continuous planting pit, topped with pavers.

The co-ordinated development of building sites along the street is a long term objective. Establishing a new perception of St. Joseph Boulevard is a short term goal which may only be achieved through a series of incremental steps. A comprehensive program of tree planting within the road right-of-way should be a fundamental and early part of this transformation process.

Introduction of consistent tree planting along the street edge, supplemented by other repetitive elements (such as lighting) would collectively define the sides of the street space, without interfering with views of storefronts or other buildings.

Trees should be planted in continuous planting beds and not in individual tree pits. The planting beds would enable trees to be clustered in open planting beds.

Low, raised planters provide one option for defining the edge of the planting bed. Trees clustered with ground covers planted in an open planting bed, contained by a low curb edge or wall, would also help to screen the view of parking from the street. The planting bed could be filled with stone, perennial flowers, shrubs, ground cover and/or annuals. The ambition is to ensure that understory planting provides some year round interest to the street.

Where existing development is set back, a second row of trees is recommended, near the edge of the right-of-way either within the right-of-way or on private property.

The streetscape treatment is envisioned to be relatively consistent across the corridor, giving it a sense of coherence in spite of the widely varying forms of existing development and the changing right-of-way width.

The cross section illustrates that initially, street trees are located in low planters set back from the curb. The second row of trees at the edge of the ROW are planned in a grass boulevard. This planting should be integrated with the landscape screening of adjacent parking lots.

Over time, as redevelopment occurs, the grass boulevard at the edge of the ROW would be replaced with paving and a tree grate at the base of the tree to accommodate more urban conditions.

Figure 15 Streetscape treatment in 32 m ROW

Initial streetscape

Plan of St. Joseph with proposed streetscape treatment

View looking west on St. Joseph Boulevard at Edgar Brault. Lane widths are reconfigured with wide outside lanes to accommodate cyclists, as well as vehicles. New raised planters are set back 1.5m from the curb edge. Planters have trees and other perennials. A clear passageway for pedestrians is located beside the planters. The planters are set within a zone with a textured sidewalk that also has new pedestrian lights, benches, trash receptacles and transit shelters. The new streetscape is added within the context of the existing hydro wires and poles.

Figure 16 Photo montage simulating new streetscape at Edgar Brault

View of St. Joseph with proposed streetscape treatment

4. Furniture and other Amenities

St. Joseph Boulevard should have a consistent vocabulary of other streetscape elements such as lights, transit shelters and benches.

St. Joseph Boulevard streetscape should have distinctive features such as pedestrian scale lights, flags, banners, information kiosks, transit shelters, newspaper boxes, waste receptacles, bicycle racks and benches that will identify this special community. These elements of the public infrastructure can help to create an inspiring landmark and a public place.

Furniture and amenities are recommended as an important component of the streetscape to help organize the public realm. New pedestrian lights would light the sidewalk and add a new quality and safety to the street. In certain locations, they could be clustered to identify special areas such as transit stops.

Many downtowns are distinguished by their unique furnishings and amenities. The entire palette of furnishings are selected to complement other materials chosen during detailed design. For example, lighting, transit shelters, benches and waste receptacles designed or selected as a “kit of parts” will add a sense of continuity across the district.

5. Transit

Efficient transit service is critical to the long term redevelopment success along St. Joseph Boulevard. Transit stops should be designed as special and high quality places.

Existing transit stops along St. Joseph Boulevard

Several bus routes travel along St. Joseph Boulevard. There are 20 bus stops along this 3.5 km stretch of roadway.

The City of Ottawa has approved the removal of bus bays along major arterial roads, where it has been determined that buses have difficulty merging back into traffic from the bus bays. It is recommended that the process to remove the 9 bus bays along St. Joseph Boulevard commence.

The existing transit stops are purely utilitarian. Benches and waste receptacles double as sign boards and lack any special quality. Transit stops provide an opportunity to add a new amenity to the public space of the street with custom designed shelters, beautiful and comfortable benches, waste receptacles and special pedestrian scale lighting.

The amenities at transit stops should be designed as a component of the ‘kit of parts’ to the St. Joseph streetscape. Transit stops should be designed as barrier free. Streetscape treatment should be adjusted to ensure unimpeded access to and from buses, while providing shade at key bus stop locations.

New transit shelter, Toronto

6. Crosswalks

Improve the crosswalks on St. Joseph Boulevard and other arterial/major collectors.

St. Joseph Boulevard between Jeanne d’Arc Boulevard and Place d’Orléans Drive has 6 intersections controlled by traffic control signals, and 8 intersections controlled by stop signs. All approaches at signalized intersections provide for pedestrian crossings. Unsignalized intersections controlled by stop signs provide pedestrian crossing at the minor roadway approach at the stop sign, but not across St. Joseph Boulevard. There are no mid-block pedestrian crossings within the study area.

Along the easterly portion of the study area, there are regularly spaced signalized intersections providing safe pedestrian movement across St. Joseph Boulevard at approximately 250 to 300 metre intervals. The westerly portion allows for no formalized pedestrian crossing between Jeanne d’Arc Boulevard and Orleans Boulevard. Pedestrian crossings are recommended between Jeanne d’Arc and Orleans Boulevard. They should be located at both Boyer and Grey Nuns Drive.

Crosswalks should be regularly spaced and clearly defined with special paving such as concrete. This gives prominence to the pedestrian route.

7. Signage

Street addresses of major commercial establishments should be located within the public right-of- way in a manner that will help add a sense of consistency across St. Joseph Boulevard.

Street address incorporated into planting beds suggested for St. Joseph Boulevard

The focus of the improvements to the road right-of-way will be on the landscape and infrastructure of public amenities. New street trees will be planted in clusters, the sidewalk will be in a consistent location and designed with a consistent width and materials. There is a need for a similar consistency in the identification and location of street addresses to help with orientation when on the street.

It is suggested that the new planting beds incorporate a signage element that will identify street addresses. This new element will be located in the view plane between the bottom of the tree canopy and the sidewalk, in easy view of motorists.

It is recommended that the current moratorium on billboards and temporary signs be continued.

Existing pedestal mounted signs should be upgraded with landscape.

8. Gateways

Gateways should identify the St. Joseph District and help to punctuate the precincts along the corridor.

There are 5 gateways across St. Joseph Boulevard:

• Place d’Orléans Drive
• Bilberry Creek
• Orleans Boulevard
• Jeanne d’Arc Boulevard
• Youville Drive

These gateways are defined at locations of entry to this district from the east or west, from major connecting arterials or natural features.

Bilberry Creek both north and south of St. Joseph Boulevard should be restored through natural channel design and naturalized landscape treatment.

The open space north of St. Joseph, associated with the church, should be upgraded with extensive planting. This corridor is an important open space connector.

The gateways at Place d’Orléans Drive and Youville Drive should be enhanced with significant landscape planting at the intersection. There are many great precedents for such treatment in Ottawa, especially along the Parkways where they intersect with arterial roads, for example, Montreal Road at Vanier and Montreal Road at Aviation.

The gateways at Orleans Boulevard and Jeanne d’Arc Boulevard will be defined through new built form to establish a more urban character to the corridor. Buildings should be located close to the edge of the right-of-way to define the street edge, they should be more than two stories and parking should not dominate the street edge.

The east and west gateways at Place d’Orléans Drive and Youville Drive should be upgraded as the first priority.

Figure 17: Location of gateways

Design guidelines for private property can be implemented and enforced through a variety of statutory mechanisms provided under the Planning Act, including:

• Official Plan Policy;
• Zoning regulations; and,
• Site Plan Control.

It is the intention in this report to identify objectives, and to codify some in an Official Plan Amendment and proposed zoning regime, which are included as an Appendix.

1. Permitted Land Uses

Encourage redevelopment with an array of land uses that support transit and provide a comfortable and attractive pedestrian environment

Mixed office, residential building, Aurora town centre

It is the intention of this strategy to permit, unconditionally, a broad array of land uses. The permitted land uses can all be made to be compatible to each other, based on sensitive urban design on a site-by-site basis, and, as such, there is no need to separate them through zoning categories. Single use and mixed use buildings are permitted.

The list of permitted land uses includes:

• Street, block and stacked townhouses;
• Apartments;
• Special needs housing (in townhouse or apartment form) which may include assisted housing, group homes, hospices, shelters, nursing homes and seniors housing;
• Retail stores, personal service establishments and restaurants;
• Automobile service stations and repair facilities;
• All types of offices;
• Community and recreational facilities;
• Institutional and government facilities;
• Cultural and entertainment uses;
• Convention centres and hotels; and,
• Public utilities, parking structures, surface parking lots and all forms of parks and open spaces.

Notwithstanding any other permitted use, outside storage shall be specifically prohibited.

2. Built Form Guidelines

Promote new buildings that create an improved image for the Corridor, contain the street and accentuate gateways and intersections

Building frontage creates a great street, Portland Oregon

It is the intention of this strategy to promote buildings that are of high quality individually, and when considered collectively, create a great street with high quality pedestrian amenity.

• The proportion of the ground floor coverage of the building footprint will be maximized and building heights will create a street space better scaled to pedestrians.
• Landmark buildings, higher density and taller buildings should be located within the identified “urban gateway sites”. Additional built and/or landscape features will be sought in the design of these sites to accentuate their importance.
• All new buildings adjacent to St. Joseph Boulevard will be sited to face, front and feature the street. A continuous frontage, close to the edge of the right-of-way will be created. Windows will be provided that look out onto the street and entrances will provide direct accessibility to the landscaped pedestrian zone adjacent to the pavement. Buildings on corner sites will face, front and feature both streets, and continue the principle façade around the corner. Blank facades are to be avoided on all elevations.
• Office uses, retail stores, personal service establishments and restaurants should be located at grade level with clear physical and visual connection to the landscaped pedestrian zone. In a mixed office/retail or residential/retail building, the retail stores, personal service establishments and restaurants should be located at grade level, with office uses and/or residential uses located on the upper floors. Buildings that are residential at grade should have the first floor raised a few steps above grade (1 metre maximum) and slightly setback (3 to 6 metres) from the pedestrian zone to create a semi-private security zone.
• Canopies or other weather protection over entrances and the pedestrian zone should be considered adjacent to retail, personal service and restaurant frontages. Where a hard surface is provided within the required front yard setback on private lands, the canopy may extend into the required front yard setback.
• Loading, and service parking associated with any permitted use must not be located adjacent to, or visible from St. Joseph Boulevard.

3. Height Guidelines

Promote new buildings that create an improved image for the Corridor, contain the street and accentuate gateways and intersections

Height is an important indicator of physical compatibility and an important incentive for redevelopment. Currently, height is not overly restrictive in the zoning by-law, ranging from 10.7 metres up to 48.0 metres in certain locations. Interestingly, very few buildings take advantage of these heights, likely as a result of other restrictions on density and/or on-site parking requirements.

Within the St. Joseph Corridor the key height issue is related to the proximity to adjacent low density residential land uses and the resultant interface between them. In a general sense, every site within the Corridor already has as-of-right permission for buildings that are 10.7 metres tall. This Strategy suggests an increase to 12.5 metres to accommodate a 4 storey building.

The following revised height regulations are suggested:

• For a site that has a lot depth of 40 m or less, the maximum height of any building shall be 12.5 metres.
• For a site that has a lot depth greater than 40.0 metres and up to 60.0 metres, the maximum height of any building between 7.5 and 20.0 metres of the rear lot line shall be 12.5 metres. The maximum height for any building between the front lot line and 20.0 metres of the rear lot line shall be 18.75 metres.
• For a site that has a lot depth of greater than 60 metres, the maximum height of any building between 7.5 and 20.0 metres of the rear lot line shall be 12.5 metres. The maximum height for any building between 20.0 metres and 30.0 metres of the rear lot line shall be 18.75 metres. The maximum height for any building between the front lot line and 30.0 metres of the rear lot line shall be 25.0 metres.

In addition to the these height regulations, on any corner lot identified as within an urban gateway, the minimum height shall be 9.0 metres within 0.0 and 4.0 metres of the front and exterior side yards (any yard that abuts a public road right-of-way).

4. Density Guidelines

Encourage redevelopment with higher densities that supports transit and provides a comfortable and attractive pedestrian environment

Density is typically measured as a Floor Area Ratio (FAR – a measure of the amount of Gross Floor Area divided by the area of the site), and/or in residential units per hectare. Within the St. Joseph Corridor, permitted density is considered quite low, and is a significant impediment to redevelopment.

This strategy suggests that density be measured only through the FAR approach, which is a better tool for understanding the built form that results from development. In addition, the following density regulations are suggested:

• For sites that have an average depth of less than 40.0 metres: 1.5;
• For sites that have an average depth of between 40.0 and 60.0 metres: 3.0; and,
• For sites that have an average depth of greater than 60.0 metres: 3.5.

5. Lot Size/Frontage Guidelines

Encourage appropriate and achievable redevelopment at a scale that is financially feasible

Lot sizes and frontages vary considerably within the St. Joseph Corridor. Typically, larger lots with larger frontages are easier to redevelop because they provide more on-site flexibility. Smaller lots are substantially more difficult to redevelop, and in some cases, land assembly may be required to facilitate appropriate redevelopment. The issue of lot depth has been considered in the discussions of height and density.

In addition, and given the intention to promote development close to the street line, with parking in the rear, the issue of lot frontage also plays a crucial role in the redevelopment strategy, primarily because of the need to gain vehicular access to the rear yard parking areas. Our analysis indicates that redevelopment of any significance requires a minimum frontage of 24.0 metres, except on a lot where rear yard access can be gained over the exterior side yard, or via a rear lane – in those cases 18.0 metres of frontage is adequate. As such, the following minimum lot frontages for redevelopment are suggested:

• The minimum lot frontage for redevelopment is 18.0 metres where access to the rear yard is provided by a public lane, a secured private driveway, or over an exterior side yard.
• The minimum lot frontage for redevelopment is 24.0 metres where access to the rear yard is provided from St. Joseph Boulevard.

There are very few lots that would not meet these minimum requirements. However, where lots exist that cannot achieve the minimum lot frontages, and where alternative access from an adjacent site cannot be secured, alternative regulations and development forms may be considered by the City, subject to the proposals ability to achieve the other objectives of this Strategy.

6. Yards and Setback Guidelines

Promote a level of uniformity of built form adjacent to the street edge

The regulations for yards and setbacks are intended to promote a high level of uniformity of built form adjacent to St. Joseph Boulevard and the various side streets. Current zoning provides minimum front yard requirements of between 0.0 and 4.0 metres, which are appropriate, but usually not of concern because the buildings are set well back from the street – with the gaps usually filled with parking lots. These regulations should be made more valid by the imposition of a “build within zone” adjacent to all streets.

Similarly, interior side yards are dealt with as minimums, and this approach promotes the built form typical of a suburban arterial road, with significant gaps between neighbouring buildings. Usually these gaps are also filled with parking lots.

The following yard setbacks and build within zones are suggested:

• For all new buildings the required build within zone adjacent to a public road right-of-way (front yard, exterior side yard) shall be between 0.0 and 4.0 metres. For corner sites, the minimum linear percentage that the main wall of the building must occupy is 75% adjacent to St. Joseph Boulevard and 50% adjacent to the side street. For all other sites, the minimum linear percentage that the main wall of the building must occupy is 50% adjacent to St. Joseph Boulevard. Minor variations to this build within zone may be considered in the review of site plans to accommodate appropriate urban design features, such as an urban square and/or additional landscape features.
• Canopies may be permitted to encroach into the front yard, and the front yard may be used, on a seasonal basis, for outdoor commercial activities.
• For any building that is entirely residential, the required build within zone adjacent to a public road right-of-way shall be between 0.0 and 6.0 metres, where the additional front yard is used for enhanced landscape treatments.
• All development where access to the rear yard is provided from St. Joseph Boulevard shall have one side yard of a minimum of 6.0 metres to accommodate a driveway, the other may be 0.0 metres. Alternative side yard setbacks may be considered to recognize shared access driveways and/or structured parking facilities.
• All development shall have a rear yard setback of 7.5 metres. This rear yard may accommodate an access lane and one row of parking perpendicular to the rear lot line.
• It is intended that, as redevelopment occurs over time on lots with no rear lane access, the rear yard setback may be used to provide rear lot vehicular access to all lots within a block. It is recognized that this rear lane access would remain in the private domain, however, the City can ensure shared public access over these lands through easements required through the development agreement process.
• For the purposes of this Strategy, the front yard is always abutting St. Joseph Boulevard.

7. Shared Access and Parking Guidelines

Reduce parking standards and permit on-street parking to promote a more intensified and transit supportive urban environment.

Promote a rational reduction in the number of accesses to St. Joseph Boulevard

The City, in reviewing and approving any development within the St. Joseph Corridor shall explore every opportunity to promote shared access and parking among adjacent landowners. The intent of this policy is to reduce the number of individual vehicular accesses on St. Joseph Boulevard and to consider parking supply more comprehensively, to ensure a more effective utilization of this land extensive resource.

The parking standards identified in the current zoning regime are based on individual uses, are complex and are based on the promotion of auto-oriented development. In addition, the imposition of these parking standards, in association with density restrictions, obviates redevelopment potential and reinforces the suburban development form.

It is the intent of this strategy to manage the evolution of the St. Joseph Corridor as it changes into a more vibrant and urban main street model, where the accommodation of the automobile is not ignored, but is not the most dominant feature.

The following guidelines with respect to parking are suggested:

• Whenever possible, development applications shall be considered on a comprehensive basis in association with abutting lands and the nearby on-street parking supply. Consideration shall be given to consolidating access points to St. Joseph Boulevard, as well as shared parking facilities.
• Redevelopment shall be based on reduced onsite parking standards recognizing the intent of the Corridor to become more transit and pedestrian oriented. The following standards are suggested:
  • for residential development – 1.15 spaces per unit; and,
  • for all non-residential development – 1.0 space per 40 square metres of Gross Floor Area
• Parking requirements will not preclude the redevelopment of any site if the City is satisfied that adequate parking can be provided in proximity to the site. The City may opt to accept cash-in-lieu of individual on-site parking facilities.
• When redevelopment occurs, no parking shall be permitted within the front yard of any building, and where new parking lots are visible from St. Joseph Boulevard, they shall be adequately screened and landscaped to ensure an attractive streetscape. Furthermore, parking facilities in exterior side yards are to be discouraged, but may be considered subject to a review of the aesthetic impacts by the City.
• The maximum amount of any lot that may be covered by a parking lot shall be 35% of the lot area.

The City of Ottawa, in partnership with business and property owners will need to make important strategic decisions, and corresponding budget allocations, to facilitate the revitalization of St. Joseph Boulevard. This Action Plan identifies a variety of implementation measures that have direct cost implications to the municipality – streetscape enhancements, service burial and a private sector financial incentives package. The key will be to determine which of those activities, or which combination, will provide the greatest revitalization impact in recognition of the long-term nature of the strategy and the limited funds available.

The five implementation measures are recommended.

1. The Public Sector Must Lead by Approving a New Planning Regime

Update the local Official Plan
The local Official Plan is out of date and needs to be reconsidered. The Official Plan Amendment would include a simplified policy framework that establishes the new rules for redevelopment along the corridor. Key issues to be dealt with in the Official Plan include a refocus on building form rather than land use, new Community Improvement policies, references to the Urban Design Guidelines and requirements for Site Plan Control.

Prepare a Community Improvement Plan
Through the Community Improvement policies of the Planning Act, a municipality may offer grants and/or loans to private property owners in conformity with an approved Community Improvement Plan. This approach is seen as a key redevelopment stimulator that can provide grants for environmental clean-up, for façade improvements and may also include tax relief and/or tax increment financing options. As such, the entire St. Joseph Corridor shall be considered a Community Improvement Area and the City may establish, by by-law, the Corridor (or specific components of the Corridor) as a Community Improvement Project Area. Further, the City may prepare a formal Community Improvement Plan (based on the findings of this Strategy). The formulation of the Plan should follow the following outline:

• Establish a statement of principles;
• Prepare the land use/urban design vision;
• Identify priorities for improvement;
• Create assistance programs and define eligibility requirements;
• Establish an approval process;
• Commit financial resources;
• Council adoption, forward to Minister for approval; and,
• Pass an implementing by-law.

Update the Zoning By-law
The implementing zoning by-law shall, in conjunction with the Urban Design Guidelines, establish the parameters for development within the St. Joseph Corridor. Key issues to be dealt with in the by-law shall include height, density, lot size and frontage, yards and setbacks and parking requirements.

Implement Site Plan Control
All development within the St. Joseph Corridor shall be subject to site plan control. All development will be reviewed in the context of achieving the goals of this study and the Urban Design Guidelines.

2. The Public Sector Should Lead by Improving the Public Realm

The City shall implement improvements to the public realm in the short-term. The priorities for improvement are:

• Select a section at one of the gateways where streetscape treatment would be implemented as a demonstration project. The choice of location should be made based on concurrent private sector redevelopment interest. Initiate site survey and detailed design;
• Establish landscape enhancement for the two creek valleys; and,
• Close the bus bays.

The City should set aside money in the capital works budget each year to implement streetscape improvements on a block-by-block basis. Based on the City-wide initiatives and programs for burial of services, continue to develop a strategy to address overhead wires and poles over the long term.

3. The Private Sector Should Lead in Improving the Management of the Business Area

It is important to establish a mechanism to manage change within the St. Joseph Corridor because some one or some group will need to oversee the processes of budget management, municipal liaison, special events planning, marketing and construction and maintenance projects. Further, the community needs to work with its neighbours, both within the Corridor and including the Mall, to establish a strategy to work together to achieve common objectives. Sharing existing markets by establishing complementary facilities is better than competing with your neighbours for that same market by providing the same facilities and experiences.

Support ongoing volunteerism
There is an existing core of dedicated individuals who have a keen interest in the future success of the St. Joseph Corridor. There is an active and effective Chamber of Commerce, but its mandate is broad, and not specifically related to the improvement of the Corridor. Further, the Chamber has no secure funding source to carry out an enhanced mandate of physical improvements, ongoing maintenance and marketing.

The City needs to recognize and support these individuals and organizations that are working to improve their community. The revitalization of the St. Joseph Corridor will continue to rely very heavily on the existing and, hopefully, expanded contingent of dedicated volunteers.

Establish a Business Improvement Area
A Business Improvement Area (BIA) is an association of business people and property owners within a defined area who join together in order to develop and undertake streetscape beautification, promotional programs and maintenance activities supporting their area. These activities are financed through a special levy, which is applied to all businesses within the improvement area. In general, a BIA is a mechanism for raising funds and the coordination of various activities including physical improvements, joint marketing, event planning, information resource, Council lobby and the investigation of funding sources.

The programs are the responsibility of a voluntary Board of Management, which is largely comprised of members of the area’s business community. The City is responsible for establishing and approving BIA budgets and has a designated representative on the Board of Management. The BIA, in partnership with the City, strive to revitalize business districts by beautifying the physical environment in the area and promoting the area as a business and shopping area.

The need for the BIA designation results from the effects or threat of a declining consumer base – as is the case within the St. Joseph Corridor. Influential factors may include a shift in spending habits, deteriorating vehicular and pedestrian corridors, and/or the absence of an identity and pride in a business community. A BIA can market a community’s uniqueness; increase the rate of investment in the area and establish programs to maintain the physical appearance of its streets.

For property owners, the potential for increased property values is the BIA’s major appeal. BIA initiated activities and improvements can provide great rewards such as creating a demand for retail and office space and increasing sales and profits for BIA members. A successful and active business environment that attracts visitors and retains local residents is the constant objective of a BIA.

The effective coordination of funds for capital projects is one way BIA’s are able to increase cost savings to its membership. It is important to note that a BIA is only as successful as the cooperation among its members. In this respect, BIA’s have also improved communications between its membership and different levels of government.

It is recommended that the establishment of a BIA be more fully explored within the St. Joseph Corridor. Establishing a BIA has clear advantages for both business members and the City. It has become a mechanism that facilitates cooperation in a changing economic environment where urban decay is a constant threat and reinvestment a constant challenge.

4. The Private Sector should lead in Preparing a Marketing Strategy

A marketing strategy will enhance recognition of the Corridor as a special destination. Shoppers, new retail businesses and new residents must be attracted to help sustain the business area. As popularity grows, supporting facilities such as parking and pedestrian amenities will require enhancement. A typical marketing strategy breaks down into three main topic areas:

• Product development;
• Marketing and promotion; and,
• Implementation.

Product Development
Product development ideas are suggestions regarding ways in which the mix of retail and service businesses, as well as the types of recreational and entertainment activities available, could be enhanced to offer a greater range and variety of reasons to come to the St. Joseph Corridor.

Suggestions include:

• Increase the critical mass of activities available in the St. Joseph Corridor by diversifying the retail and services mix and by developing a substantial resident population; and,
• Promote the availability of development properties to potential investors by working with the Economic Development Committee to recruit appropriate investment.

Marketing and Promotion
With fundamental improvements in the nature of the product available to residents and businesses alike, the next step (actually undertaken simultaneously with product development initiatives) is to market and promote the St. Joseph Corridor. The success of the St. Joseph Corridor as a shopping area relies on a coordinated approach to identifying the entire business area. A number of issues to be considered include the need to develop:

• A brand / theme / identity for the St. Joseph Corridor;
• An advertising/public relations strategy;
• A web site;
• Cross-promotion with the Mall;
• A signage strategy; and,
• A promotional “welcome” package for new businesses, developers and residents.

Implementation
Implementation encompasses a number of considerations, including funding, human resources requirements, organization and coordination. In effect, these components represent all of the considerations involved in turning the product development and marketing and promotion ideas into reality. The implementation of the marketing strategy will require the following actions:

• Establish a budget for the development and promotion of the St. Joseph Corridor;
• Work with local real estate agents to promote the St. Joseph Corridor to businesses and developers (they could distribute information packages); and,
• Identify one person to coordinate communications among business operators, organizations and residents.

5. The Public Sector Should Lead in Offering Financial Incentives

Private sector redevelopment along the St. Joseph Corridor is expected to occur incrementally, over a relatively long period of time. Further, an understanding of the market forces in the Corridor indicate that there is a need for some form of “incentive package” to stimulate change. The idea of an incentives package is to stimulate private sector redevelopment by reducing the cost of development, influencing the market for redevelopment and reducing the inherent risks of the approvals processes.

The City shall explore several options for the provision of financial incentives to the private sector. The review of all development applications within the St. Joseph Corridor shall have regard for the Urban Design Guidelines and, further, the eligibility requirements for any financial incentive program offered by the City shall require new development to conform to the Guidelines.

Financial Incentives

Building Infrastructure/Public Realm Improvement

Development Charges and Other Fees

Taxation and Charges

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