Report to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
March 17, 2004 / le 17 mars 2004
Submitted by/Soumis par : Ned Lathrop, General Manager/Directeur général,
Planning and Development/Urbanisme et
Aménagement
Contact Person/Personne ressource : Grant Lindsay,
Manager / Gestionnaire
Development Approvals / Approbation des demandes d'aménagement
(613) 580-2424 x13242, Grant.Lindsay@ottawa.ca
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SUBJECT: |
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OBJET : |
REPORT RECOMMENDATION
That the Planning and Environment Committee recommend Council approve an
amendment to the former City of Ottawa Zoning By-law (1998) to add an exception
to the R2A - Semi-Detached House Zone applying to 71 Woodroffe Avenue to allow
a 'triplex house' as an additional permitted use with a parking requirement of
two spaces as detailed in Document 3.
RECOMMANDATION DU RAPPORT
Que le Comité de l'urbanisme et de l'environnement recommande au Conseil
municipal d'approuver une modification au Règlement de zonage de 1998 de
l'ancienne Ville d'Ottawa afin d'ajouter une exception à la zone de maisons
jumelées, R2A, qui s'applique au 71, avenue Woodroffe en vue de permettre un
triplex comme utilisation permise additionnelle assortie d'une exigence de
stationnement pour deux espaces comme l'indique le document 3.
BACKGROUND
The site, 71 Woodroffe Avenue, is located on the east side of Woodroffe Avenue between Saunders Avenue and Richmond Road. A 2-½ storey duplex dwelling with a detached garage is located on the property. The subject property is located within a residential community.
The subject property is currently zoned R2A - Semi Detached House Zone. The purpose of the R2A zone is to permit a mix of lower density residential uses on land designated Residential Area in the Official Plan. A triplex house is not a permitted use.
The purpose of this application is to amend the Zoning By-law to allow a third dwelling unit within the existing building originally constructed as a duplex. This additional dwelling unit within the existing building will not result in any external modifications or additions.
DISCUSSION
Council Adopted Official Plan
Within the Council Adopted Official Plan the subject property is part of the General Urban Area designation which permits the development of a full range of housing types to meet the needs of all ages, incomes and life circumstances. Section 2.5.1 of the Council Adopted Official Plan supports infill development and other forms of intensification within the General Urban Area that enhances and complements the desirable characteristics and long-term vitality of existing communities. The Official Plan lists ground-oriented multiple housing forms, such as duplex, triplex and fourplex, as one means of intensification within established low-rise residential communities.
It is the opinion of the Department that the proposal represents a good example of residential intensification and is an efficient use of urban land and existing building stock. The Department is satisfied that the duplex house, internally converted into a triplex is of an appropriate scale and intensity that is compatible with the surrounding community. The conversion of the existing duplex to a triplex through interior renovations increases the density on the site at a very modest rate without altering the physical characteristics of the neighbourhood. As the proposed modification will be achieved solely through interior renovations, the exterior of the building, which conforms to the current performance standards of the Zoning By-law, will not be altered.
The proposed development provides an additional rental unit in the community. Affordable and appropriate housing for all residents is the fundamental building block of a healthy, livable community. The policies of the Official Plan contribute to improving the supply of affordable rental housing by promoting the development of rental housing through such means as infill construction and the adaptive re-use of buildings.
The proposed re-zoning supports development in an area that is already well serviced by existing infrastructure and services. The subject property is located in an area that is within walking distance from several bus routes and is in close proximity to a regional shopping centre. Also, as the site is already serviced by existing infrastructure, the proposal to allow one additional unit supports the Council Adopted Official Plan's infill and intensification policies of utilizing existing services within the urban boundary.
Former Regional Official Plan
The Regional Official Plan policies create a framework for urban areas that encourage communities to be mixed use, diverse and adaptable to changing needs. The site is designated General Urban Area in the former Region of Ottawa-Carleton Official Plan and Section 2.3.1 of the former Regional Plan states that an objective of the Regional Development Strategy is to encourage denser, more compact, balanced development. The Plan directs Council to support applications for higher-density residential uses where appropriate throughout the urban area.
The Department is of the opinion that the subject application conforms to the goals of the former Region of Ottawa-Carleton Official Plan. The proposed development of a third unit within the existing building will achieve a denser development without any modification to the exterior of the existing structure. As such, the physical character of the neighbourhood will not be affected by the proposal. Also, by providing an additional rental unit in the neighbourhood, the proposed development will help provide a wider range of housing types and tenures.
Former City of Ottawa Official Plan
The site is designated Residential Area in the former City of Ottawa Official Plan. The policies pertaining to this designation encourage a mix of tenure choices and the provision of an adequate supply of affordable housing. Section 3.3 encourages the development of rental units in order to ensure a sufficient quantity of rental housing through out the city. Through these polices, the Plan aims to accommodate the present and future demand for housing in Ottawa, primarily through the efficient use of remaining vacant residentially designated land, underutilized parcels and existing housing stock in all neighbourhoods, with the objective of reducing energy consumption, decreasing the financial burden of underutilized municipal services, and relieving pressure for development of designated natural areas and open spaces.
The proposed application conforms to the objectives of the former City of Ottawa Official Plan as it provides for a modest increase in rental housing in an existing community that is well serviced by City services. Moreover, since the additional unit will be provided through internal renovations, the proposed development will not have a negative impact on the existing physical character of the neighbourhood. The built form, massing and profile of the building will remain integrated and compatible and will maintain the established setback pattern on the street.
Parking
The Council Adopted Official Plan and the former City of Ottawa and Regional Official Plans promote increased use of sustainable transportation modes. All three plans encourage increased intensity in proximity to transit and the concentration of growth within the designated urban area to allow for a pattern and density of development that supports transit, cycling and walking as viable and attractive alternatives to the private automobile. Policy direction is also provided to give consideration to reduced parking standards in areas serviced by transit for affordable rental housing. Section 2.5.2 of the Council Adopted Official Plan provides direction to implement alternative development standards for affordable housing such as reduced parking standards in areas serviced by transit. The property is serviced by four bus routes (2, 18, 87, 156) and is close to the Lincoln Fields Transit Station. Accordingly, the Department has determined that a reduced parking requirement is appropriate for this development. By allowing a reduction in required parking, staff are supporting the goals of the Official Plan to assist and encourage the use of sustainable transportation. Staff are confident that the reduction of one space will not have an impact on the neighbourhood as the site can functionally accommodate three vehicles. Further, requiring three parking spaces with dimensions and aisle widths as required in the Zoning By-law would likely require moving the parking area to the rear of the lot that would unnecessarily result in a loss of landscaped open space and amenity area.
Summary
The Department is recommending that an exception be made to the zoning of 71 Woodroffe Avenue to add 'triplex house' as a permitted use and to reduce the required parking from three spaces to two spaces. Staff are satisfied that the objectives set out in the Council Adopted Official Plan, the former City of Ottawa and the former Regional Official Plans related to residential uses and intensification have been met. One additional unit in an existing building is a modest increase in density for the neighbourhood with little to no impact on adjacent residents. The proposal to add an additional rental unit in an existing rental building will not adversely impact the character of this predominately single and semi-detached dwelling type neighbourhood as there are very few similar rental buildings in the vicinity where such a proposal could be considered.
CONSULTATION
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy. Information signs were posted on-site indicating the nature of the application. The Ward Councillor is aware of this application and the staff recommendation.
Detailed responses to the notification/circulation are provided in Document 4.
FINANCIAL IMPLICATIONS
N/A
The application was not processed within the timeframe established for
the processing of Zoning By-Law amendments due to the timing of the submission
of the application, workload volumes and the request for a public meeting to
discuss the proposal with residents and the Woodroffe North Community
Association.
SUPPORTING DOCUMENTATION
Document 1 Location Map
Document 2 Explanatory Note
Document 3 Details of Recommended
Zoning
Document 4 Consultation Details
Department of Corporate Services, Secretariat Services to notify the owner (Nancy Marandola, 12 Oakwood Avenue, Ottawa ON, K2E 6A5), applicant (Danny Marandola, 12 Oakwood Avenue, Ottawa ON, K2E 6A5), All Signs, 8692 Russell Road, Navan, ON K4B 1J1, and the Program Manager, Assessment, Department of Corporate Services of City Council's decision.
Planning and Development Department to prepare the implementing by-law, forward to Legal Services Branch and undertake the statutory notification.
Department of Corporate Services, Legal Services Branch to forward the implementing by-law to City Council.
EXPLANATORY NOTE Document
2
By-law Number 2004-X amends Zoning By-law 1998
of the former City of Ottawa. The
amendment affects the property at 71 Woodroffe Avenue, located on the east side
of Woodroffe Avenue between Saunders Avenue and Richmond Road, as shown on the
attached Location Map. The site is
surrounded by low-density residential uses.
Purpose of Zoning Amendment
The purpose of the amendment is to allow for a
third dwelling unit within the existing building and to allow reduced parking
on the subject property for the proposed use.
Existing Zoning
The site is currently zoned R2A - Semi-Detached
House Zone. Permitted uses in this zone
include detached house, linked-detached house and duplex house. The 'A' suffix
represents a Sub-zone that stipulates a minimum lot width and lot area for the
permitted uses.
Proposed Zoning
The proposed R2A exception zone is identical to
the current zoning with an exception to allow triplex house as a permitted use
on this site and to allow a reduced parking requirement for a triplex.
Permitted uses in this zone would continue to include detached house,
semi-detached house, and duplex house.
Should you have any questions regarding the
amendment please contact Saide Sayah at 580-2424 ext. 27589.
DETAILS OF RECOMMENDED ZONING Document 3
The following zoning change will be made to the property shown on Document 1:
1) Create an exception to the R2A Zone to add a 'triplex house' as a permitted use.
2) Create an exception to the Parking and Loading Provision of the Zoning By-law (1998) to require two parking spaces for a triplex dwelling on the subject property.
CONSULTATION DETAILS Document
4
NOTIFICATION AND CONSULTATION PROCESS
Notification and public consultation was
undertaken in accordance with the Public Notification and Public Consultation
Policy approved by City Council for Zoning By-law Amendments.
Councillor Alex Cullen held a community meeting
on January 15, 2004 with the Woodroffe North Community Association, the
developer and City staff regarding this application. The community expressed
concerns about the possibility of an unwelcome
precedent being set in their neighbourhood with this application.
SUMMARY OF PUBLIC INPUT
" As far as we know, the zoning where our properties reside was changed in the late eighties, early nineties from R4 (with some R4X) to R3. The reason for this change was to limit the number of multi-family homes in the area. No new multi-unit homes were to be built which reflected in the extremely high taxes compared to other areas. As a result we built our dream home in 1995, with confidence that densification was no longer going to be an issue. The current neighbourhood has mostly, beautiful single detached family homes with some very acceptable semi-detached units.
We believe that re-allowing multi unit homes to be constructed would deteriorate such a small pocket neighbourhood, due to increased traffic, increased population and decreased balance in houses. Also, an already congested Woodroffe Avenue would not fair well with additional entrances along its edges"
"…The 2 unit apartment was not built for anything other than a 2 unit structure, to add another apartment to change the bylaw because they got caught is not right."
Staff Response:
Two phone calls indicating support for the proposal were received from residents in the local neighbourhood. Staff maintain that the existing structure would not be altered in any significant degree and that it provided a greater range of housing opportunities in this neighbourhood. To allow for the opportunity for a third unit would provide the economic opportunity to rehabilitate some of these dwelling units instead of letting them fall into disrepair.
January 15, 2004 -
PUBLIC MEETING COMMENTS
Concerns were raised about the proposal increasing the population and traffic to unreasonable levels.
An increase in density and rental units would result in a decline of property values.
Rezoning the site from R2 to R3 would create a precedent that would result in the whole neighbourhood being rezoned from R2 to R3.
Concern regarding the impact of additional units of infrastructure.
COUNCILLOR’S COMMENTS
The Ward Councillor
is aware of the application.
COMMUNITY ORGANIZATION COMMENTS
The Woodroffe North Community Association wishes to register objection to the zoning by-law amendment proposal at 71 Woodroffe Avenue.
It is our understanding that in order to permit the conversion of the existing duplex house into a triplex house the zoning of the subject property would have to be changed from R2 Zone established as the Semi-detached House Zone to R3 Zone established as the Converted House/Townhouse Zone.
The Woodroffe North Community is a well established, older, low density, residential community of single family and semi detached houses. A recent expansion of the community into the former CPR Right-of-Way consists of single family houses of high value, in the $500,000 range and upwards. Within this community many of the older houses have been upgraded and this process is continuing. The community has had to be vigilant in preserving and protecting the current zoning and the density threshold that it provides.
Changes like the one proposed, apply to properties built specifically for rental purposes. They lead to increases in the housing density, increases in the itinerate population and increases in parking problems within the community. Such changes will discourage investments in new high value houses and in improvement to upgrade older houses.
The storm and sewage disposal system infrastructure of the Woodroffe North Community is already under considerable pressure. To increase the population density of the community would increase the strain on an already heavily loaded system and should be avoided as much as possible.
We have to be very responsive in what occurs in our community so that the low-density character of the neighborhood is maintained. We consider that the proposed zoning would set a dangerous precedent that threatens the character and property value of our community.
Response:
In reviewing the comments from the community, the Department had not found the potential for many of the negative impacts indicated from correspondence or at the community meeting. The addition of one dwelling unit will not create any significant increase in traffic or demand on infrastructure that cannot already be accommodated. Further, the cumulative impact of previous and potent ional intensification in this area will have little to no effect on built form and density in the community. The potential to convert existing duplexes into triplex dwellings is limited to a few properties throughout the Woodroffe North Community. This very modest potential for intensification on properties and building forms is very unlikely to lead to a more intensive residential character in the neighbourhood nor to any decrease in property values.
The Department does not expect this neighbourhood to significantly change from its predominately single detached dwelling character as a result of this or potential subsequent applications. It should be noted that this application does not represent any change in tenure from freehold to rental in the neighbourhood. The duplex has been and will continue to be a rental property and similar buildings are unlikely to be converted to single detached homes. In fact, Official Plan policies for the City of Ottawa strongly discourage the loss of rental units. Also, given the monetary and personal value of single and semi-detached dwellings in the neighbourhood, the potential for conversion of any of these buildings into triplex dwellings is not significant.
For reasons stated above and in response to concerned residents and the Community Association, the Department is recommending that a triplex be permitted on the subject property by exception rather than change the zone from R2A, a semi-detached house zone to R3A, a converted house/townhouse zone. The Department does not find uses such as converted house and townhouse, and planned unit dwelling types, that are permitted in the R3 Zone, appropriate for this site. By keeping the subject property zoned R2A, the character and density of the neighbourhood is maintained while specifically recognizing the different characteristics of the subject building and property.