Report to/Rapport au :

 

Planning and Environment Committee

Comité de l'urbanisme et de l'environnement

 

29 January 2004 / le 29 janvier 2004

 

Submitted by/Soumis par : Ned Lathrop, General Manager/Directeur général,

Development Services/Services d'aménagement 

 

Contact Person/Personne ressource : Grant Lindsay, Manager / Gestionnaire

Development Approvals / Approbation des demandes d'aménagement

(613) 580-2424 x13242, Grant.Lindsay@ottawa.ca

 

Bay / Baie (7)

Ref N°: ACS2004-DEV-APR-0057

 

 

SUBJECT:

SITE PLAN CONTROL - 1142 RICHMOND ROAD (FILE NO. D07-12-03-0116)

 

 

OBJET :

RÉGLEMENTATION DU PLAN D'IMPLANTATION - 1142, CHEMIN RICHMOND (NO DE DOSSIER : D07-12-03-0116)

 

REPORT RECOMMENDATION

 

That Planning and Environment Committee approve the Site Plan Control application for 1142 Richmond Road as shown on the following plans:

 

1.         "Site Plan, CCOC 1142 Richmond Road, A-1" prepared by James A. Colizza Architect Inc., revision 4 dated January 21, 2004 and dated as received by the City of Ottawa on January 26, 2004.

 

2.         "Landscape Plan, CCOC 1142 Richmond Road, L-1" prepared by James A. Colizza Architect Inc., revision 4 dated January 21, 2004 and dated as received by the City of Ottawa on January 26, 2004.

 

3.         "Proposed Grading and Servicing Plan, 1142 Richmond Road, G-1" prepared by T.L. Mak Engineering Consultants Ltd., dated May 2003, revised January 22, 2004 and dated as received by the City of Ottawa on January 26, 2004.

 

Subject to the Owner entering into a Site Plan Control Agreement including all standard and special conditions contained in Document 5, financial or otherwise, as required by the City.  In the event that the Owner fails to sign the required agreement and complete the conditions to be satisfied prior to the signing of the agreement within one year of the Site Plan Control Approval, the approval will lapse.

 

RECOMMANDATION DU RAPPORT

 

Que le Comité de l'urbanisme et de l'environnement approuve la demande de réglementation du plan d'implantation pour la propriété située au 1142, chemin Richmond, comme l'illustre les plans suivants :

 

1.         Site Plan, CCOC 1142, Richmond Road, A-1 produit par James A. Colizza Architect Inc., revu pour la quatrième fois le 21 janvier 2004 et reçu par la Ville d'Ottawa le 26 janvier 2004.

 

2.         Landscape Plan, CCOC 1142 Richmond Road, L-1 produit par James A. Colizza Architect Inc., revu pour la quatrième fois le 21 janvier 2004 et reçu par la Ville d'Ottawa le 26 janvier 2004.

 

3.         Proposed Grading and Servicing Plan, 1142 Richmond Road, G-1 produit par T.L. Mak Engineering Consultants Ltd., daté de mai 2003, revu le 22 janvier 2004 et reçu par la Ville d'Ottawa le 26 janvier 2004.

 

À la condition que le propriétaire signe avec la Ville un accord de réglementation du plan d'implantation, comprenant toutes les conditions courantes et spéciales indiquées dans le document 5, de nature financière ou autre, tel qu'il est exigé par la Ville. Dans l'éventualité où le propriétaire ne signe pas l'accord requis et ne satisfait pas aux conditions avant de signer ledit accord dans l'année suivant l'approbation de la réglementation du plan d'implantation, l'approbation sera annulée.

 

 

BACKGROUND

 

Site Location and Description

 

The subject property is owned by the City of Ottawa and was leased to a used car business.  The City has made available the site for an affordable housing project under the Action Ottawa program and will be leasing the land to Centretown Citizens of Ottawa Corporation (CCOC) to  develop affordable housing.  The site is located west of Woodroffe Avenue and east of the Ottawa River Parkway on the south side of Richmond Road (Document 1). It is bounded by Richmond Road, an arterial road, and Hartleigh and Midway Avenues which are residential streets characterized by single and semi-detached homes. Richmond Road is a commercial corridor, and McEwen Park and a high-rise building are located directly across Richmond Road. The subject property is within easy access of a nursery school, elementary school, library, grocery store, and recreational areas, and is well serviced by OCTranspo.

 

The property is zoned R3A - Converted House/Townhouse zone which permits a range of low-density dwelling types on individual lots or in planned unit developments. The types of uses permitted include single family homes, semi-detached homes, linked homes, duplexes, and townhouses.

 

 The site requires environmental remediation stemming from the past use of the site. Detailed environmental studies have been conducted as part of the development program, and remediation measures will be completed at the expense of the City of Ottawa prior to commencement of construction.

 

Proposed Development

 

CCOC is seeking to construct a 23 unit, planned unit development consisting of 16 duplex units and seven townhouse units (Document 2).  Fourteen units will be reserved for affordable housing as defined by CMHC criteria with the remaining nine units being leased at market rates. A 13-car surface parking lot will be located within the interior of the development with one access onto Richmond Road.  Two additional parking space will be provided for two special needs units and they will have direct driveway access from Hartleigh and Midway Avenues.  The back of each unit will face the interior parking lot and all units at grade will have access to a small back yard/wooden deck.  The development will have shared on-site laundry facilities located near a small common area and garbage will be stored in individual units and placed along the curbs for pick up.  A noise attenuation wall will span the Richmond Road property line in order to minimize the negative impact of vehicular noise.

 

The applicant has submitted an extensive landscaping plan that includes the preservation of several prominent, mature trees on the property. The proposed landscaping plan includes the use of numerous perennials, herbs and shrubs throughout the site to define private areas, edges, entrance ways and decorative features. A row of Linden trees along Richmond Road will integrate the streetscape adjacent to the site with the surroundings (Document 3). An internal pedestrian pathway system connects the development to a proposed sidewalk running along Richmond road.

 

Concurrent Applications

 

A Cash-in-lieu of parking application (D07-03-03-0012) for relief from providing 6.25 parking spaces was submitted concurrently with this application and will also be considered by the Planning and Environment Committee.

 

DISCUSSION

 

The Department is recommending approval of the application for the following reasons:

 

The proposal represents a good example of residential intensification and is an efficient reuse of urban land.  The project conforms to the policies within the former City of Ottawa Official Plan and former Region of Ottawa Carleton Official Plan as they pertain to factors set out for assessing moderate residential development. Specifically, the development incorporates a recognizable pedestrian circulation system which is car-free and barrier-free and connects the development with the public transportation system along Richmond Road. The outdoor amenity area of the new units respects the privacy and outdoor amenity areas of existing residential units and minimizes any undesirable impacts through screening, and landscaping. The development will not have a shadowing impact on adjacent properties and there is adequate servicing capacity to accommodate the proposed development.

 

The site is at the periphery of an existing residential community.  The property lies across Midway and Hartleigh Avenues from detached and semi-detached homes.  Located across Richmond Road is a high rise condominium.  Given the site's location at the edge of a single detached community, it is anticipated that a development of townhouses will have a minimum land use impact on these uses and will be compatible and sensitive to the uses in the surrounding neighbourhood. The development has regard to the massing and height of adjacent buildings and the proximity of the development to existing services and amenities such as day care and schools.  The project's location along an arterial roadway provides access to community services and OCTranspo.

 

The policies dealing with affordable housing in the Council Adopted Official Plan clearly recognize the need for affordable housing within the city.  The proposal is also supportive of the affordable housing policies in the former City of Ottawa Official Plan and the former Region of Ottawa-Carleton Official Plan. As stated in section 2.5.2 of the Council Adopted Official Plan, the shortage of affordable rental housing is one of the most compelling problems in Ottawa.  The provision of affordable housing is the fundamental building block of a healthy, livable community. The Council Adopted Official Plan policies contribute to improving the supply of affordable rental housing in concert with other City initiatives to support the construction of affordable units. Of particular interest, Section 2.5.2 of the Council Adopted Official Plan, provides numerous policies to promote the development of affordable housing, including:

 

A target of 25 per cent of the total new units in all development projects for affordable housing

Land surplus to the City's needs and suitable for residential development being given priority for sale or lease for the development of affordable housing

The use of alternative development standards for affordable housing development such as reduced parking standards in areas serviced by transit

 

In accordance with the City's surplus real property disposal policy and Council Adopted Official Plan, the subject property has been deemed surplus to the City's needs.  It is suitable for residential development and is being leased for the construction of affordable housing. The subject project is a cooperative effort to promote and facilitate the provision of affordable housing between the City of Ottawa (Action Ottawa) and a non-profit housing provider (CCOC). The development exceeds the 25% affordable housing target stated in the Council Adopted Official Plan and the former City of Ottawa Official Plan.  Sixty percent of the units (14 units) will be rented at rates determined by CMHC affordability standards and the remaining nine units will be offered at market rates.  This project provides two units specifically designed to meet the needs of disabled persons who's specific needs are often over looked in traditional housing projects.

 

Additionally, as stated in the Council Adopted Official Plan and the former City of Ottawa Official Plan, the City can implement alternative development standards for affordable housing development such as reduced parking standards in areas serviced by transit.  According to the former City of Ottawa Zoning By-law, the development requires 21.25 parking spaces while the applicant is proposing 15 spaces.  The property is directly serviced by three bus routes (2, 156, and 50) and is close to the Lincoln Fields Transit Station.  Accordingly, the Department feels that a reduced parking standard is appropriate for this development and is recommending approval of the related Cash-in-Lieu of Parking application for this project.

Summary

 

The proposal adds to the number of quality affordable housing units in Ottawa, helps to ensure an adequate supply of rental housing and satisfies the criteria for accessing moderate residential development.  Based on this rationale, the Department is recommending that the Planning and Environment Committee approve the proposed Site Plan Control Application to allow the construction of the proposed 23 unit housing development.

 

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 and mail out notice was provided to registered area community groups. Numerous comments in support and opposition to this project were received.  Issues brought forward by the public included: garbage and snow removal, amount of amenity space and parking, increase in traffic and traffic safety, the need for affordable housing in Bay Ward and the  ratio of affordable and market rate housing in the development.

 

Detailed responses to the notification/circulation are provided in Document 6.

 

The Ward Councillor is aware of this application and the staff recommendation.

 

FINANCIAL IMPLICATIONS

 

N/A

 

APPLICATION PROCESS TIMELINE STATUS

 

This application was not processed within the timeframe established for the processing of Site Plan Control applications due to the complexity of the issues to be resolved.

 

SUPPORTING DOCUMENTATION

 

Document 1 -   Location Map

Document 2 -   Site Plan

Document 3 -   Landscape Plan

Document 4 -   Site Grading and Servicing

Document 5 -   Conditions of Site Plan Control Approval

Document 6 -   Consultation Details

 


DISPOSITION

 

Department of Corporate Services, Legal Services Branch to prepare the Site Plan Control Agreement.

 

Department of Development Services to notify the lessee (Centretown Citizens Ottawa Corporation, PO Box 2787 Stn. D, Ottawa ON, K1P 5W8), the applicant/architect (James A. Colizza Architect, 760 Chamberlain Avenue, Ottawa ON, K1S 1V9), All Signs, 8692 Russell Road, Navan, ON  K4B 1J1, and all interested parties of Planning and Environment Committee's decision.

 

 


LOCATION MAP                                                                                                         Document 1

 

 


SITE PLAN                                                                                                                    Document 2

 

 


LANDSCAPE PLAN                                                                                                     Document 3

 

 


SITE GRADING AND SERVICING                                                                          Document 4

 


CONDITIONS OF SITE PLAN CONTROL APPROVAL                                        Document 5

 

STANDARD CONDITIONS

 

1.         Permits

            The Owner shall obtain such permits as may be required from Municipal or Provincial authorities and shall file copies thereof with the Director, Planning and Infrastructure Services.

 

2.         Extend Walkways

            The Owner agrees to extend internal walkways to connect to existing or proposed public sidewalks, at the sole expense of the Owner, to the satisfaction of the Director, Planning and Infrastructure Services.

 

3.         Waste Audit Summary

            That prior to the issuance of a building permit, the Owner agrees to prepare and implement a Waste Audit Summary for the construction project as required by Ontario Regulation 102/94 of the Environmental Protection Act, and provide a copy to the Director, Planning and Infrastructure Approvals.

 

 

4.         Barrier Curbs

            The Owner agrees that the parking areas (and entrances) shall have barrier curbs and shall be constructed as approved by the Director, Planning and Infrastructure Approvals.

 

5.         Construction of Sidewalks

            The Owner shall be responsible to design and construct sidewalk(s) within public right-of-ways or on other city owned lands (to provide a pedestrian connection from or to the site) as may be determined by the Director of Planning and Infrastructure Approvals.

 

6.         Completion of Works

            No building will be occupied on the lands, nor will the Owner convey title to any building until all requirements with respect to completion of the Works as identified in this Agreement have been carried out and received Approval by the Director, Infrastructure Services, including the installation of municipal numbering provided in a permanent location visible during both day and night and the installation of any street name sign on relevant streets. Provided that notwithstanding the non-completion of the foregoing Works, conveyance and/or occupancy of a lot or structure may otherwise be permitted, if in the sole opinion of the Director, Planning and Infrastructure Approvals, the aforesaid Works are proceeding satisfactorily toward completion.  The Owner shall obtain the consent of the Director, Planning and Infrastructure Approvals for such conveyance and/or occupancy in writing.

 

7.         Maintenance and Liability Agreement

            The Owner shall be required to enter into a maintenance and liability agreement for all plant and landscaping material placed in the City right-of-way and the Owner shall assume all maintenance and replacement responsibilities in perpetuity.

 

8.         Water Permit

            The Owner shall reinstate at its expense, to the satisfaction of the Director, Infrastructure Services, any property of the City, including, but not limited to, sidewalks and curbs, boulevards, that are damaged as a result of the subject development.

 

SPECIAL CONDITIONS

 

1.         Release of Security - Landscape Elements

            When requested by the Owner(s), the Security shall be released by the City Treasurer when authorized by the Director, Planning and Infrastructure Approvals according to City Council policy, provided that the landscape elements have been installed and planted in accordance with the Site Plan Control Approval, and that all plant materials are in good and healthy condition.

 

2.         Sanitary Sewer Charge

            Any addition to the existing sanitary flow, from this site, will require the owner(s) to contribute the following amount:

           $4,772/l/s x [increase in avg. sanitary flow x 1.5 peaking factor + infiltration (0.28 l/s/ha)]

 

3.         Planting of Trees Within the Road Allowance

            The Owner(s) must ensure that any new road allowance tree(s) be planted as follows:

(a)        0.6 metres from the property line, pursuant to the Standard Locations for Utility Plant (referred to as the CR﷓90), as approved by the City;

(b)        Utility clearances are required prior to planting and/or staking;

(c)        Wire baskets and burlap used to hold the root ball and rope that is tied around the root collar are to be removed at the time of the planting of the tree(s);

(d)        Guying of the tree(s) is not acceptable;

(e)        The tree(s) must meet the requirements set out by the Canadian Nursery Standards; and

(f)         Tree stakes are to be removed prior to the release of the financial securities for the landscape elements.

 

4.         Fire Flow Information

            Fire flow records indicate a flow of 1684 IGPM at 20 PSI from the hydrant located on Midway Avenue.  This test was performed in August 2003.  This test reflects system conditions on the test date, however, there may be variations in flow and pressure depending on the time of day.  The owner may be required to undertake an engineering analysis of the water supply certified by a professional engineer to ensure that the water supply meets City of Ottawa standards.

 

5.         Water Permit

            The Owner(s) shall pay all related costs of connecting and disinfecting related to the proposed waterworks as shown on the site plan. The Owner(s) shall submit drawings for approval prior to tendering and make application to the Development Services Department for the water permit prior to commencement of construction.

 

6.         Release of Security - Landscape Elements

            When requested by the Owner(s), the Security shall be released by the City Treasurer when authorized by the Director, Planning and Infrastructure Approvals according to City Council policy, provided that the landscape elements have been installed and planted in accordance with the Site Plan Control Approval, and that all plant materials are in good and healthy condition.

 


CONSULTATION DETAILS                                                                                       Document 6

 

 

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 Site Plan Amendments.  A pre-consultation meeting and one public meeting for the Site Plan Control application were held in the community.

 

PUBLIC COMMENTS

 

Six written comments expressing concern over the proposed development were received from the public. In addition to the public notification and consultation, one meeting was held in the community hosted by the Ward Councillor's office to discuss the Site Plan Control application and Cash-in-Lieu of Parking application. Approximately 35 residents attended.

 

Summary of Public Comments

 

The following summarizes the issues raised by respondents expressing concerns and or opposition to the project:

 

ISSUE 1:  Road Widening along Richmond Road

 

The Transportation Master Plan calls for the widening of the south side of Richmond Road to 18.5 meters.  Concern was expressed as the Site Plan shown at the public meeting in July and provided during the public circulation showed the development encroaching 1.5 meters onto the widening.

 

ISSUE 2:  Cash-in-Lieu of Parking

 

Due the over development of the site, the proposal is not meeting the minimum amount of parking spaces as required by the City and cash in lieu of parking is not a solution to the problem. The number of units should be reduced to provide the proper amount of parking on the site as stipulated by the zoning bylaw.

 

ISSUE 3:  Number of Units in Development

 

The number of units proposed on the site is unacceptable given its size.  The proposal would be improved and accepted by the community if the number of units were reduced to a reasonable amount (18). Doing this will address other concerns such as the lack of parking and recreational area.

 

 ISSUE 4:  Increased Traffic within Community

 

Given the lack of parking on the site and the likelihood of future occupants to park on Wentworth and Midway avenues, they will access major arteries such as the Queensway and Carling Ave. via Wentworth.  Wentworth is a very narrow old street that is barely 6 meters wide. Increased traffic will only serve to increase the risk of accidents occurring on the street. In order to alleviate this potential health and safety risk, a "No Parking" restriction should be placed on the lower part of Midway and Wentworth avenues to discourage the use of our residential streets as "through traffic" venues and decreases the risk to children playing on the street.

 

ISSUE 5:  Recreational Area

 

The current proposal shows no area for the children to play. The front yards of the proposed units are not conducive to recreational activities for children. The space required for children's activities is greatly underestimated.

 

ISSUE 6:  Fit within the Community

 

Flat roofs do not blend in with the surrounding properties and an apartment on top of the entrance to this complex on the Richmond side is unattractive and cramped.

 

ISSUE 7:  Snow Removal

 

Snow plowing is a problem now and will only deteriorate with increased cars parking along Hartleigh and Midway. Where is snow going to be stored on the site?

 

 

Respondents supporting the project provided the following reasons in support:

 

CCOC has a strong track record of building and managing housing well so that this development will surely be an asset to the surrounding community.   Affordable, mixed income housing is desperately needed in every neighbourhood of the City. Everyone deserves decent housing and a fair shake.  The City needs to approve this development proposal to give more people an opportunity to lead a decent life.

 

While people at the public meeting expressed their concern about the design not having adequate parking spaces, I truly believe that CCOC has plenty of experience to know that there will be no problem. Fear about noise, smell of BBQ's and possible garbage in the street seems unfounded.

 

Although the surrounding neighbours have rights (and those rights should certainly be considered) also the future tenants at 1142 Richmond Road have their rights and should be respected. The 'unknown' makes people feel uncomfortable but most neighbours will adjust quite quickly to this development as long as CCOC and the City of Ottawa keep them involved.

 


SUMMARY OF PUBLIC MEETING

Area residents in attendance at the June 24, 2003 public meeting raised questions and concerns dealing with the following:

·                    amount of amenity space;

·                    road widening requirement along Richmond Road;

·                    appropriateness of the development and its 'fit' into the community;

·                    garbage storage and collection;

·                    snow removal;

·                    the need for an additional affordable housing project in the Bay Ward;

·                    the ratio of affordable units vs. market units and the potential for it to become all affordable housing;

·                    failure to meeting parking requirements; and

the potential danger for cars exiting onto Richmond Road

 

RESPONSE TO PUBLIC COMMENTS

 

During the technical circulation, the location of the development on the proposed Richmond Road widening was identified as an issue to be resolved.  As a result of this review, the applicant subsequently shifted the encroaching units off the road widening.

 

The Cash-in-lieu of parking application has been reviewed concurrently with the Site Plan Control application and was found to conform with the criteria set out for the review of such applications.  Legitimate site constraints, the irregular lot shape, proximity to amenities and OCTranspo service and tenant profiles, all support the appropriateness of the cash-in-lieu of parking proposal.

 

The site conforms to the Ottawa Zoning By-law, 1998.  The number of units proposed by the applicant is specifically linked to the zoning provisions for lot area, yard requirements and lot width and area for a planned unit development.

 

The application was reviewed staff and deemed appropriate. No traffic calming measures were deemed necessary for the surrounding community

 

The development satisfies the zoning requirements for amenity space. 

 

The Department is confident that the development will respect the character of the neighbourhood and that the proposal put forward by the architect will be a positive addition to the neighbourhood.

 

Snow removal was highlighted as an issue during the technical review and brought forward to the applicant.  The CCOC informed the Department that due to space constraints snow will be trucked away from the site.

 

Garbage will be stored within individual units and placed on the curb for pick up.

 

 There is an acute need for affordable housing within the city.  This project will add 14 units to the affordable rental housing stock in the City and will provide units for the physically disabled. There is currently an extensive waiting list for affordable housing and this project is a modest attempt to satisfy some of that demand. The Department views this project as a positive trend towards integrating moderately sized affordable housing projects throughout the City's communities in order to avoid the large scale housing projects of the past.

 

During the public meeting the CCOC assured residents that the 60/40 split between affordable and market price housing will not change.  The CCOC explained that through their experience, this ratio provided the optimum cross section of inhabitants and helped minimize the stigma of the site as being an affordable 'housing project'.

 

The ingress and egress of vehicular traffic on to Richmond Road was reviewed by the City's traffic engineers and was deemed acceptable.

 

COUNCILLOR’S COMMENTS

I am in favour of the revised site plan application by CCOC (Centretown Citizens of Ottawa Corporation) for the ActionOttawa housing proposal for 1142 Richmond Road. This, in my view, is a good use of land for social housing purposes, being modest in scope (23 units), mixed in tenure (2/3 rent-geared-to-income; 1/3 market rent), and located near schools, public transit, and shopping.

 

Community concerns regarding density and traffic in the original site plan application were identified as a result of 2 public consultation meetings held by my office, and have been reflected in the revised site plan. Concerns over density have been addressed by changing the mix of units (in terms of bed-room count) and reducing the number of units from the original proposal of 25 to 23. Traffic concerns have been addressed by directing most of this development's traffic onto Richmond Road (an arterial road), rather than through the Woodpark community. As well, community concerns about adequate playspace for children have been addressed through the provision of a tot lot.

 

This development will be a small step towards increasing affordable housing in Bay Ward (some 1,300 Bay Ward residents are on the Social Housing Registry's waiting list for social housing in Ottawa, out of a 12,500 total household waiting list), and with the provision of 2 handicapped-accessible units, meets important needs in our community. Its small-scale and conformity with local zoning renders this development compatible with the abutting neighbourhood.

 

I am also in support of reducing the parking requirements for this development at 1142 Richmond Road. Experience at other low-income communities has shown that not all residents make use of the available parking for their own needs, and there is sufficient capacity on the abutting streets to accommodate visitor parking if the need arises.


COMMUNITY ORGANIZATION COMMENTS

The Woodpark Community Association provided the following comments:

 

1.         Provided Parking is inadequate to needs.  Regardless of By-law provisions, the proposed project needs 1 space per unit plus visitor parking.

 

2.         Amenity space is inadequate.  There are only 11 rear yards and 23 units.  The play area is seriously undersized for the number of children that will be living at 1142 Richmond Road.

 

3.         There is no garbage enclosure for these units

 

4.         Where is the snow storage area?

RESPONSE TO COMMUNITY ASSOCATION COMMENTS:

 

The response provided to the public comments address the comments provided by the Woodpark Community Association.