Report to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de l'environnement
and Council / et au Conseil
04 November 2010 / 04 novembre 2010
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager/Directrice municipale adjointe, Infrastructure Services and Community Sustainability/Services d’infrastructure et Viabilité des collectivités
Contact Person/Personne-ressource : Richard Kilstrom, Acting Manager/Gestionnaire intérimaire, Development Review-Urban Services, Inner Core/Examen des projets d'aménagement-Services urbains, Unité du Centre intérieur
Planning and Growth Management/Urbanisme et Gestion de la croissance
(613) 580-2424, 22379 Richard.Kilstrom@ottawa.ca
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SUBJECT: |
ZONING - 1200 St. Laurent Boulevard and 500, 525 and 535 Coventry Road (FILE NO. D02-02-09-0054) |
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OBJET : |
ZONAGE - 1200, boulevard st-laurent et 500, 525 et 535, chemin coventry |
REPORT RECOMMENDATIONS
That the Planning and Environment Committee recommend Council approve:
1. An amendment to the Zoning By-law 2008-250 to change the zoning of 1200 St. Laurent Boulevard from GM24 [89] F(1.0) H(25), General Mixed Use zone to a new GM24 [1787] F(1.0) S263, General Mixed Use zone, as detailed in Document 2 and shown in Documents 3 and 4;
2. An amendment to the Zoning By-law 2008-250 to change the zoning of 500 Coventry Road from IL [280] H(11) to a new GM24[1787] F(1.0) S263-h1, General Mixed Use zone, as detailed in Document 2 and shown in Documents 3 and 4; and
3. An amendment to the Zoning By-law 2008-250 to change the zoning of 525 Coventry Road from IL [281] H(11), and 535 Coventry Road from and IL H(11) both to a new GM24[1787] F(1.0) S263-h2, General Mixed Use zone, as detailed in Document 2 and shown in Documents 3 and 4.
RECOMMANDATIONS DU RAPPORT
Que le Comité de l’urbanisme et de l’environnement recommande au Conseil d’approuver :
1. Une modification au Règlement de zonage 2008-250 visant à remplacer la désignation de zonage actuelle de la propriété située au 1200, boulevard St-Laurent, soit GM24 [89] F(1.0) H(25), Zone d’utilisation polyvalente générale, par la désignation GM24 [1787] F(1.0) S263, Zone d’utilisation polyvalente générale, comme le précise le document 2 et l’illustrent les documents 3 et 4;
2. Une modification au Règlement de zonage 2008-250 visant à remplacer la désignation de zonage actuelle de la propriété située au 500, chemin Coventry, soit IL [280] H(11), par la désignation GM24[1787] F(1.0) S263-h1, Zone d’utilisation polyvalente générale, comme le précise le document 2 et l’illustrent les documents 3 et 4;
3. Une modification au Règlement de zonage 2008-250 visant à remplacer les désignations de zonage actuelles des propriétés situées au 525, chemin Coventry et au 535, chemin Coventry, soit respectivement IL [281] H(11) et IL H(11) par la désignation de zonage unique GM24[1787] F(1.0) S263-h2, Zone d’utilisation polyvalente générale, comme le précise le document 2 et l’illustrent les documents 3 et 4.
BACKGROUND
The subject properties involve a consolidation of properties now occupied by the St. Laurent Shopping Centre and properties north and west of the existing Coventry Road. The lands include 1200 St. Laurent (existing shopping centre), 500 Coventry Road (former Coca-Cola bottling and distribution facility), 525 Coventry Road (TD Waterhouse office building) and 535 Coventry Road (EMCO distribution facility). The St. Laurent Shopping Centre is located at the south-west corner of the intersection of St. Laurent Boulevard and Coventry Road, immediately north of Highway 417 (Queensway). 1200 St. Laurent Boulevard and 500 Coventry Road are adjacent to one another on the south side of Coventry Road, whereas 525 and 535 Coventry Road are adjacent to one another but situated on the north and west sides of Coventry Road. All the noted parcels are under one ownership.
The St. Laurent Shopping Centre (SLSC) is 16.5 hectares in area, with approximately 315 meters of frontage along St. Laurent Boulevard and 370 meters of frontage along Coventry Road, both of which are arterial roads. The SLSC is primarily one-storey, with portions that are two-storeys, and contains 195 retail stores and services. The centre has a Gross Floor Area (GFA) of almost 116,000 square metres. There are over 4100 parking spaces on site, including structured parking on the east, south and west sides of the shopping centre and surface parking at the north side. The south end of the centre is directly connected to the St. Laurent Transitway station. Also situated on the southwest corner of this parcel is a freestanding six-storey office tower.
The former Coca-Cola facility was demolished several years ago and the lands are currently used as over-flow parking for the shopping centre and adjacent employment uses. This parcel is 3.47 hectares in area. The TD Waterhouse office-building site has an area of 1.21 hectares. The EMCO distribution facility is a light industrial use on a parcel of 1.49 hectares.
Immediately north of the subject property, on the north side of Coventry Road, is a restaurant with associated surface parking. This site is under the same ownership and shares the 1200 St. Laurent Boulevard municipal address with the shopping centre, but is not subject to this rezoning application. Beyond the restaurant to the north and northwest of the St. Laurent Centre, is a low-to-medium density residential neighbourhood with a range of community facilities. Northeast of the subject property, along both sides of St. Laurent Boulevard, are numerous retail and commercial uses. The lands further northeast are characterized by medium-to-high profile residential uses and public parks.
Directly east of the SLSC, across St. Laurent Boulevard, is an area zoned for mixed-use development and includes existing hotel, restaurant, retail, office and other commercial uses with numerous vacant properties. The lands situated south of the shopping centre, on the south side of Highway 417, are primarily light and general industrial and some commercial uses, with two small residential areas. Also southwest of the St. Laurent Centre is the 37-hectare (92-acre) Ottawa Train Yards retail and office district. West of the subject property, towards Belfast Road, is an area of light industrial and office uses. Beyond this area, closer to the Vanier Parkway, are large format retail uses, a self-storage facility, a City-owned baseball stadium, and a hotel and conference centre.
Related Planning Applications:
In order to accommodate all of the proposed development on one consolidated site, Coventry Road must be realigned so that its north-south section is re-located approximately 120 metres to the west. To accomplish this, Street Closing (D07-14-09-0004) and Street Opening (D07-15-09-0001) applications have also been submitted. A Site Plan Control application will also be required for the development to proceed.
Purpose of Zoning Amendment
The applicant has requested the following revisions to the Zoning By-law:
1. Rezone all the owner’s contiguous lands, after consolidation, to one new General Mixed Use Zone
2. Increase the maximum building height on the site from 25 metres to 40 and 78 metres to allow for a potential office building and other buildings up to 17 or 20 storeys.
3. Increase the maximum gross leasable retail area of the shopping centre from 77,000 square metres to 139,000 square metres.
4. Create new minimum and maximum parking rates to reflect a combination of current and previous rates and obligations of the owner in long-term leases to primary retail tenants.
The owner, Morguard, is proposing to expand the St. Laurent Centre, which requires zoning amendments. The redevelopment proposal also entails relocation of part of Coventry Road to the west and north portions of their 525 and 535 Coventry Road properties, which are located across the street from the shopping centre. The roadway re-location will facilitate consolidation of the applicant’s lands and the expansion proposal. The proposed expansion involves a new larger two-storey Sears store, additional retail unit space, potentially new office space and a new parking structure. The overall redevelopment concept increases the overall Gross Leasable Area, (including all types of use) from approximately 82,500 square metres to approximately170,000 square metres. All of the expansion will be made on the west side of the shopping centre, on both lands that form part of the current shopping centre site and the lands consolidated from the west after the relocation of Coventry Road.
The 500, 525 and 535 Coventry Road properties are currently zoned IL [280] H(11), IL [281] H(11) and IL H(11) respectively. The IL is a “Light Industrial” zone and the exceptions [280] and [281] pertain to permitted retail uses and limits to maximum gross floor areas. IL zones are intended to permit a wide range of low impact industrial uses, as well as office and office-type uses in a campus-like industrial park setting. In addition the IL zone also allows a variety of complementary uses such as recreational, health and fitness and service commercial uses, limited in size to serve employees of the area, the general public in the immediate vicinity, and passing traffic. The main shopping centre lands, 1200 St. Laurent Boulevard, are currently zoned GM24 [89] F(1.0) H(25), General Mixed Use Zone with an exception pertaining to parking being permitted on a parcel to the north of Coventry Road and maximum gross leasable area (GLA) and parking considerations. The GM24 zone is a Major Shopping Centre Subzone which allows for a range of commercial uses that are often large and serve to draw from broader areas than the surrounding community, and allows additional uses such as an amusement centre, cinema and parking garage.
It is recommended that the consolidated subject lands be rezoned from Light Industrial Zones with Exceptions permitting retail, and from the General Mixed-Use Zone (GM24 [89] F(1.0) H(25)) Zone to a single new GM24 [new exception] F(1.0) zone, in order to harmonize the commercial zoning on the entire consolidated property. The recommended Zoning By-law amendment proposes to revise zone provisions, including changes to required parking rates and increases to height limits, including a 100-metre maximum building height on the south portion of the property close to the Queensway. The recommended rezoning also sets new limits for retail GLA space of 125,000 square metres and for overall GLA of 170,000 square metres to reflect the proposed redevelopment on the lands; and establishes a requirement for development along St. Laurent Boulevard before any expansion beyond those limits.
DISCUSSION
Strategic Directions
The Strategic Directions of the OP cite four key areas to meet the challenges of growth. The key areas include Managing Growth “by directing it to the urban area where services already exist or where they can be provided efficiently,” and in the urban area “directing growth to areas where it can be accommodated in compact and mixed-use development, and served with quality transit, walking and cycling facilities.” Providing Infrastructure is a key area and includes directing growth “to the urban area where services already exist or where they can be provided efficiently,” and creating a “transportation system that emphasizes transit, walking and cycling”. The key area of Maintaining Environmental Integrity also cites the benefits of a “transportation system that emphasizes transit, walking and cycling”. The key area of Creating Liveable Communities calls for creating “complete communities with a good balance of facilities and services to meet people’s everyday needs, including schools, community facilities, parks, a variety of housing, and places to work and shop”. The City is also to “provide for a wide range of rural and urban economic activities in suitable locations” and recognizes that “attention to design will help create attractive communities where buildings, open space and transportation work well together” to create liveable communities. The recommended rezoning will foster expansion of a Major Urban Facility at a location with adequate existing services and excellent transit access that will expand the services available to the local and wider community while establishing provisions to improve the design of the development over time.
The parcel containing the existing shopping centre is designated Arterial Main Street and General Urban Area in the Official Plan (OP), whereas the westernmost parcels are associated with an Employment Area based on the current configuration of Coventry Road. The OP indicates that the interpretation of land use designation boundaries on Schedule B can be flexible with some exceptions, and in this case it is clear that the delineation of the Employment Area relates to the location of Coventry Road. It is considered appropriate to maintain the location of Coventry Road as the delineation of the Employment Area, with the result that after relocation of Coventry Road, the Employment Area designation will no longer apply to the consolidated lands. The OP also allows for consideration of an entire parcel fronting on a Mainstreet to be considered under the applicable Mainstreet designation on Schedule B. Therefore, in anticipation of the proposed relocation of Coventry Road, the evaluation of this re-zoning application focuses on the General Urban Area and especially the Arterial Mainstreet designations.
General Urban Area
The OP indicates that within the General Urban Area a broad range of uses is anticipated, “from ground-oriented single-purpose to multi-storey mixed-use; from corner store to shopping centre.” The OP goes on to state that with some exceptions, “the City is supportive of the establishment of a broad mix of uses in Ottawa's neighbourhoods”, and will allow “those uses that provide for the local, everyday needs of the residents, including shopping, schools, recreation and services. Uses that also serve wider parts of the city will be located at the edges of neighbourhoods on roads where the needs of these land uses (such as transit, car and truck access, and parking) can be more easily met and impacts controlled.”
The OP policies for the General Urban Area indicate that:
· “The General Urban Area designation permits all types and densities of housing, as well as employment, retail uses, service, industrial, cultural, leisure, greenspace, entertainment and institutional uses.”
· “The evaluation of development applications, studies, other plans and public works undertaken by the City in the General Urban Area will be in accordance with Section 2.5.1 and Section 4.11”,
· “Major Urban Facilities are permitted in the General Urban Area in accordance with Section 3.6.7”, and
· That uses will be permitted in the General Urban Area “that may generate traffic, noise or other impacts that have the potential to create conflicts with the surrounding residential community,” and the City will “ensure that anticipated impacts can be adequately mitigated or otherwise addressed” and will direct such uses to:
- “Locations along the rapid-transit system, or an arterial or major collector road with sufficient capacity to accommodate the anticipated traffic generated and where frequent, all-day transit service can be provided”, and
- “Suitable locations on the perimeter of, or isolated from, established residential neighborhoods”
The recommended re-zoning allows for expansion of a Major Urban Facility at a rapid transit station and at the edge of the community, offering a variety of potential commercial, retail and service uses with minor anticipated impact on the nearby community. The proposal is considered in keeping with the intent of Sections 2.5.1 and 4.11. Evaluation of these sections is discussed below.
Major Urban Facilities
The existing St. Laurent Centre building has a total gross leasable area of approximately 116,000 square metres. The OP establishes that, “Major shopping centres (over 50,000 square metres gross leaseable area)” are Major Urban facilities, and that “occasionally, there may be merit in combining these uses with other complementary ancillary uses on the same site in recognition of the potential for achieving mutually supportive relationships with other parts of the community.” The OP policy indicates that Major Urban Facilities are permitted within the General Urban Area and the Arterial Mainstreet designations, which apply to the subject lands.
The policy for Major Urban Facilities indicates that “when considering an application to expand an existing facility, the City “will require the completion of a transportation impact study” and “may require the completion of an image analysis of the site, particularly where the proposal is to be of medium or high profile.” This redevelopment proposal will be subject to a design review process in association with its Site Plan Control Application.
Policy 8 of the Major Urban Facilities section indicates that “in considering an amendment to the zoning by-law” ......to “expand an existing Major Urban Facility, the City will determine:
a. Minimum/maximum site area requirements;
b. Maximum density, building height and setback requirements;
c. The provision of adequate on-site parking;
d. Traffic circulation patterns, including pedestrian, cyclist, transit and vehicles;
e. The adequacy of existing water, waste water and stormwater services;
f. The provision of landscaping and buffering;
g. How the provisions of Section 4.3 regarding development at transit stations have been met”, and
“will identify the implications of the long-term expansion needs of a Major Urban Facility with respect to the matters in policy 8 above and will ensure that the means to address and mitigate the impacts of the Major Urban Facility on the surrounding community and natural features are taken into account.” The recommended rezoning applies to a specific site, establishes specific density, building height, setback, parking, and landscape buffering requirements. Water and sewer services have been demonstrated to be adequate in the area. On-site circulation patterns will be reviewed in detail through a related Site Plan Control Application, and the conceptual redevelopment plan shows that integration with the St. Laurent Transit Station will be maintained and improved.
Policy 12 indicates that “major shopping centres will only be permitted on sites located at existing or future stations in the rapid-transit network, where the station is incorporated into the design of the site”, which is the current and proposed situation with the subject site.
Policy 13 states that “consistent with Section 2.5.1 and Section 4.11, where major shopping centres are created through redevelopment of existing retail sites, the new development will be encouraged to locate close to the street, provide multiple and direct retail frontages onto sidewalks, and reconfigure parking to occupy the interior of the property.“ The provisions of the recommended rezoning will require additional stages of future development to be located adjacent to St. Laurent Boulevard, and limit parking garage construction from being close to a public street.
Section 3.6.3 of the OP indicates that, “the Mainstreet designation in this Plan identifies streets that offer some of the most significant opportunities in the city for intensification through more compact forms of development, a lively mix of uses and a pedestrian-friendly environment.” The OP indicates that “on Arterial Mainstreets .... development will occur in a way that facilitates the gradual transition to more intensive forms of development, and that, “over time, higher density employment and residential uses could be introduced, where appropriate. Uses may be mixed within buildings and/or on the same lot, parking lots between the building and the street could be redeveloped and built upon, and the pedestrian environment will be improved.” The proposed rezoning will foster a mix of uses and improve the opportunities for a more compact form through increases in the maximum building heights on the property, with direct pedestrian connections to a transit station and provisions for eventual displacement of existing parking located adjacent to the street with commercial or other uses.
The OP states that a Mainstreet is to function “as a mixed-use corridor with the ability to provide a wide range of goods and services for neighbouring communities and beyond,” and that “intensification continues to focus on nodes and corridors (Mixed-Use Centres and Mainstreets) to support the public transit system, to create an essential community focus, to allow for minimum travel and to minimize disruption in existing stable neighbourhoods.” The Mainstreet policies state that Arterial Mainstreets “are planned to provide a mix of uses and have the potential to evolve, over time, into more compact, pedestrian-oriented and transit friendly places. To facilitate this evolution, the zoning by-law may define the portion of the street frontage of an Arterial Mainstreet to be occupied by buildings located at or set back minimally from the sidewalk.” The recommended rezoning provisions for future building setbacks and uses uphold the intent of the OP for development along Mainstreets, and will foster street-front development over time.
OP policy for Mainstreets states that “the boundary of the Traditional and Arterial Mainstreet designation is flexible depending on site circumstance and lot configuration, but generally applies to those properties fronting on the road so designated. It may also include properties on abutting side streets that exist within the same corridor. On lots where development has the potential to develop both adjacent to the street and to the rear of the property, the Mainstreet designation will apply to the entire lot and development situated on the rear portions will not be considered to be non-conforming by virtue of not being located adjacent to the street. Where the depth of lots fronting the road is sufficient to enable development to occur both adjacent to the street and to the rear of the property, and where development is initially unlikely to occupy the entire frontage immediately adjacent to the street, the site should be planned in a coordinated fashion” that will facilitate safe attractive access on the site to the public streets and transit, significant landscaping, and orientation to the Mainstreet over time. The proposed rezoning will foster a redevelopment of the entire site over time in keeping with OP intent for Mainstreets.
Mainstreets policy 3 states that “a broad range of uses is permitted on Traditional and Arterial Mainstreets, including retail and service commercial uses, offices, residential and institutional uses. Uses may be mixed in individual buildings or occur side by side in separate buildings.” The recommended rezoning continues to allow for an extensive mix of uses.
Policy 7 for Mainstreets indicates that “on Arterial Mainstreets, the location of surface parking will be evaluated in the context of Section 2.5.1 and Section 4.11.” dealing with compatibility and design. The recommended rezoning upholds existing parking location and buffer provisions and adds new provisions that will lead to a reduction of parking along streetscapes over time.
The Mainstreet policies state that “redevelopment and infill are encouraged on Traditional and Arterial Mainstreets in order to optimize the use of land through increased building height and density,” and that the OP “supports building heights ..... up to eight storeys on Arterial Mainstreets.” The policies also provide that “greater building heights will be considered” where..... “the development fosters the creation of a community focus where the proposal is on a corner lot, or at a gateway location or at a location where there are opportunities to support transit at a transit stop or station,” and “where the application of the provisions of Section 2.5.1 and Section 4.11 determine that additional height is appropriate.” Policy 12 states that “in order to demonstrate its commitment to development on Mainstreets, the City will consider them to be priority locations for considering”.... “the assembly of land to ensure an adequate supply that is strategically located for redevelopment” and for considering “the use of techniques such as increased height and density provisions”.
The recommended rezoning provides for increased height to a maximum of 100 metres adjacent to the Queensway and 45 metres adjacent to St. Laurent Boulevard. The location is considered a gateway into the communities to the north and east of the Queensway along St Laurent Boulevard, with a potential to provide a significant architectural focus at the important intersections of St. Laurent with Coventry Road and Ogilvie Road. A rapid transit station is currently, and will continue to be, well integrated into the site. The applicant provided a shadow study indicating that there are no issues associated with the requested height increase to 78 metres and the Department is of the opinion that an increase to 100 metres on the south side of this strategic site is appropriate and in keeping with the overall intent of the OP for compatible intensification along Mainstreets and near rapid transit stations. Sections 2.5.1 and 4.11 are discussed below.
Arterial Mainstreets are one of the target areas identified for intensification under Official Plan Amendment 76, which is considered City policy. The St. Laurent Arterial Mainstreet has a minimum target density of 120 people and jobs per net hectare for every development application. The recommended rezoning provides for a development that readily meets this target, providing approximately 150 people and jobs per net hectare.
The OP stresses the need for compatibility of development and high quality design, and states that: “In general terms, compatible development means development that, although it is not necessarily the same as or similar to existing buildings in the vicinity, nonetheless enhances an established community and co-exists with existing development without causing undue adverse impact on surrounding properties.”.... “Generally speaking, the more a new development can incorporate the common characteristics of its setting in its design, the more compatible it will be”, and it “can be designed to fit and work well in a certain existing context without being ‘the same as’ the existing development.” The OP also sets out design objectives and principles in Section 2.5.1 that are intended as “qualitative statements of how the City wants to influence the built environment as the city matures and evolves.”
Design Objective 1 pertains to enhancing “the sense of community by creating and maintaining places with their own distinct identity”, and the principles look to “create distinctive places and appreciate local identity in patterns of development, landscape and culture.”
Objective 2 is “to define quality public and private spaces through development,” and the related principles call for design that will, “enhance and enliven the quality, character and spatial delineation of public spaces”, “consider streets as public spaces”, encourage a continuity of street frontages. Where continuous building facades are not a dominant feature of the streetscape, the gradual infilling of empty spaces between buildings and between the building and the street edge is promoted to occur over time”, “address the relationship between buildings and between buildings and the street”, and “meet the needs of pedestrians as a priority.”
The third objective calls for creating “places that are safe, accessible and are easy to get to, and move through”, with supporting principles that design should “connect buildings and spaces through a network of roads, sidewalks, and pathways in ways that are understandable” and accessible, and should “integrate public transit with existing and new development, where feasible”.
The fourth objective is “to ensure that new development respects the character of existing areas” supported by design principles to “integrate new development to complement and enliven the surroundings” while allowing “the built form to evolve through architectural style and innovation”.
Objective 5 is “to consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice” the principles for Objective 5 indicate that design should: “achieve a more compact urban form over time”, “provide flexibility for buildings and spaces to adapt to a variety of possible uses in response to changing social, economic and technological conditions”, and “allow for varying stages of maturity in different areas of the city, and recognize that buildings and site development will exhibit different characteristics as they evolve over time.”
Objective 6 states the need to “understand and respect natural processes and features, and promote environmental sustainability in development”, supported by a principle to “reduce resource consumption” through design.
The recommended re-zoning provides for increased development on the site with more flexibility in building form and mass, while fostering stronger relationships and definition of adjacent public streets through a development with excellent access to rapid transit. The provisions of the recommended rezoning are keeping with the applicable Objectives and Principles for compatibility of Section 2.5.1 of the OP.
The recommended rezoning also establishes a development threshold beyond which further development must address the St. Laurent Boulevard Arterial Mainstreet frontage. This frontage is currently the most problematic on the site as it consists of a multi-storey parking structure. It is the explicit intent of the recommended re-zoning to ensure that any development above the proposed threshold must include redevelopment of the St. Laurent Boulevard frontage.
Section 4.11 also sets out compatibility policies for evaluating development applications. Policy 1 directs that the land use designations, in this case “General Urban Area” and especially an “Arterial Mainstreet”, which are discussed above, are considered in the evaluation of development compatibility.
Policy 2 sets out specific criteria for evaluating development compatibility, which as applicable, are discussed below:
“a. Traffic: Roads should adequately serve the development, with sufficient capacity to accommodate the anticipated traffic generated. Generally, development that has the potential to generate significant amounts of vehicular traffic should be located on arterial or major collector roadways so as to minimize the potential for traffic infiltration on minor collector roadways and local streets”. The subject site has direct access to two arterial roadways. The supporting traffic study related to the proposed development has been reviewed and the impact and proposed modifications determined to be acceptable as discussed below.
“b. Vehicular Access:” The site has adequate vehicular access and site access will be considered in more detail through a related Site Plan Control application.
“c. Parking Requirements: The development should have adequate on-site parking to minimize the potential for spillover parking on adjacent areas. A range of parking forms, including surface, decked, and underground, should be considered taking in account the area context and character. Opportunities to reduce parking requirements and promote increased usage of walking, cycling and transit should will be considered, where appropriate, particularly in the vicinity of transit stations or major transit stops in accordance with the provisions of Section 4.3;” The proposed rezoning includes new parking provisions considered adequate for the needs of the proposed development, while recognizing previous parking requirements and leasing obligations, and the opportunity to reduce parking and increase the use of other modes, especially given the integration of the site to a rapid transit station.
“d. Building Height and Massing: New buildings should have regard to the area context - the massing and height of adjacent buildings, and planned function for the area. Application of design principles that contribute to a sense of human scale will improve and enhance user comfort and the perception of new development within its existing context. Where variation in building height or massing is appropriate, a transition in building heights is desirable. The desire for a transition in building heights can be offset where natural buffers and setbacks exist and/or through the use of appropriate design measures to create a more pedestrian-friendly at-grade environment”. The recommended re-zoning provides for increased height along the Queensway and along the St. Laurent Boulevard in keeping with the special circumstances of the location and the planned function of the Arterial Mainstreet designation. The proposed new height provisions step down toward the communities to the northwest. The provisions of the proposed zoning facilitate development of an improved pedestrian environment along the adjacent streets over time.
“e. Pattern of the Surrounding Community: Where the height, building mass, proportion, street setback and distance between buildings for the proposed development vary from the pattern for the area, the proposed design may compensate for this variation through its treatment of other characteristics common to the surrounding community.” The recommended rezoning provides for continuation of existing pattern and relationships of built form while adding new provisions for future street oriented development in keeping with the design intent of the Arterial Mainstreet designation;
“g. Loading Areas, Service Areas, and Outdoor Storage: The operational characteristics and visual appearance of loading facilities, service areas (including garbage), parking and areas for the outdoor storage of goods or materials should be mitigated using a variety of methods (e.g., location, containment, screening, berms, and/or landscaping). These uses and activities should be located away from residences where possible;” Many of the loading and servicing areas of the related redevelopment proposal are inside the building out of public view, and all loading and servicing will be given further consideration as necessary through a related Site Plan Control application.
“h. Lighting:” This will be given consideration through the related Site Plan Control application.
“g. Noise and Air Quality: The development should be located and designed to minimize the potential for significant adverse effects on adjacent sensitive uses related to noise, odours, and other emissions”. There are no anticipated noise generation and air quality issues associated with the proposed rezoning. The mitigation of potential noise from the related proposal for relocation of Coventry Road will be considered through the related Road Opening and Site Plan Control applications.
“h. Sunlight: The development should minimize shadowing on adjacent properties, to the extent practicable, particularly on outdoor amenity areas, through the siting of buildings or other design measures;” The height provisions of the recommended rezoning are not anticipated to have any major impact on surrounding properties or outdoor amenity spaces. More detailed project specific shadow analysis will be required as appropriate through related Site Plan control applications.
“i. Microclimate: The development should be designed to minimize adverse effects related to wind, snow drifting, and temperature on adjacent properties.” The provisions of the recommended rezoning are not anticipated to have any major microclimatic impacts, and as appropriate, project specific microclimatic analysis will be required through related Site Plan control applications.
“j. Supporting Neighbourhood Services: The development should contribute to or be adequately served by existing or proposed services and amenities such as health facilities, schools, parks and leisure areas. Where the proposed development itself is to contribute such services and amenities, they should be of a scale appropriate to the needs and character of the area.” The proposed rezoning maintains and expands the capacity of the property to provide a full range of commercial and other services to the residents of nearby neighbourhoods and beyond.
Infrastructure
The Official Plan policies of Subsection 4.4 Water and Wastewater Servicing require adequate services for new development. The property is adequately served by water, and storm and sanitary sewer lines to facilitate the potential development afforded by the recommended rezoning.
Transportation
The rezoning is in keeping with Official Plan objectives for development within 600 metres of a rapid transit station. A Community Transportation Study that was undertaken in relation to the proposed development has been reviewed by staff and the traffic volumes generated by the proposed development can be acceptably accommodated on the existing area street network with few roadway and signal modifications. The required roadway improvements have been identified in the traffic study and will be implemented as requirements under related Site Plan and Road Opening applications. Determination of more detailed roadway improvements will also be undertaken in association with related Road Opening and Site Plan Control applications. The subject rezoning is considered in keeping with the transportation policies of the OP and with the objectives of the City’s Transportation Master Plan.
Summary
The recommended rezoning fosters an expansion and alternative built form for a St. Laurent Shopping Centre, a Major Urban Facility along an Arterial Mainstreet with excellent transit and roadway access and adequate servicing. The recommended rezoning will help realize intensification at this strategic location inside the Greenbelt in keeping with the General Urban Area and Arterial Mainstreet designations, and sets the stage for the reconfiguration of the St. Laurent Boulevard frontage as the first priority in any further redevelopment proposal. The recommended rezoning is in keeping with the policies of the Official Plan, and merits approval.
The details and draft schedule of the recommended zoning amendment, as set out in Documents 1, 2, 3 and 4, implement the changes required to allow for the related redevelopment concept to proceed in conjunction with required Site Plan Control and Building Permit applications. The re-zoning details also ensure a proper sequence related to the construction and land transactions necessary for the proposed relocation of Coventry Road.
Formal applications have been submitted for Roadway Opening and for Roadway Closing (Files D07-15-09-0001 and D07-14-09-0004) to facilitate the related proposal to relocate Coventry Road.
RURAL IMPLICATIONS
N/A
CONSULTATION
Notice of this application was carried out in accordance with the City's Public Notification and Consultation Policy. As summary of the results of the consultation is contained in Document 5.
COMMENTS BY THE WARD COUNCILLOR(S)
Councillor Legendre indicated that he is aware of the application and approves of the requested rezoning.
LEGAL/RISK MANAGEMENT IMPLICATIONS
There are no legal/risk management implications associated with this report.
CITY STRATEGIC PLAN
The recommended rezoning is in keeping with the City Strategic Plan, Service Priorities. The proposed added development potential and zoning provision revisions support Service Priorities for Transportation, Transit, for a Sustainable, Healthy and Active City, and for Planning and Growth Management. The added development potential facilitates efficient use of existing transportation and transit services, and infrastructure through land use planning. The zoning changes are in keeping with the policy of being proactive in requiring walking, transit and cycling oriented communities and employment centres. The recommended zoning provisions will foster a development that respects the existing urban fabric and planned neighbourhood form, and will manage growth to help create a sustainable community.
TECHNICAL IMPLICATIONS
FINANCIAL IMPLICATIONS
There are no direct financial implications associated with this report.
APPLICATION PROCESS TIMELINE STATUS
The application was not processed by the "On Time Decision Date" established for the processing of Zoning By-law amendments due to revisions to the application and the complexity of the issues associated with parking, roadway and service infrastructure.
SUPPORTING DOCUMENTATION
Document 1 Location Map
Document 2 Details of Recommended Zoning
Document 3 Proposed Zoning
Document 4 Proposed Building Height Limits
Document 5 Consultation Details
DISPOSITION
City Clerk and Solicitor Department, Legislative Services to notify the owner; applicant, OttawaScene.com, 174 Colonnade Road, Unit #33, Ottawa, ON K2E 7J5; Ghislain Lamarche, Program Manager, Assessment, Financial Services Branch (Mail Code: 26-76) of City Council’s decision.
Planning and Growth Management to prepare the implementing by-law, forward to Legal Services and undertake the statutory notification.
Legal Services to forward the implementing by-law to City Council.
LOCATION MAP DOCUMENT 1
DETAILS OF RECOMMENDED ZONING DOCUMENT 2
Proposed Changes to the Comprehensive Zoning By-law 2008-250
The subject lands are re-zoned as follows:
Proposed Changes
1200 St. Laurent, and 500, 525, and 535 Coventry Road
1. That the area shown as area “A” in Doc 3 be rezoned from GM24 [89] F(1.0) H(25), General Mixed Use to a new GM24[1787] S263 F(1.0), General Mixed Use zone
2. Amend Part 17, Schedules by adding Document 4 as a new schedule.
3. Add a new exception to Section 239 - Urban Exceptions including provisions similar in effect to the following:
a. Required parking may be located in the adjacent GM[52] zone
b. Minimum required building setback from St. Laurent Boulevard is 3.5
metres.
c. Maximum permitted setback from St. Laurent Boulevard is 4.5 m
d. Minimum required number of parking spaces is per 2.5 parking spaces per 100 m2 of gross leasable floor area (GLFA)
e. Maximum permitted number of parking spaces is 4.85 per 100 m2 of GLFA
f. Notwithstanding “e,” the maximum permitted number of parking spaces for an office use is 2.2 spaces per 100 m2 of GLFA
g. Notwithstanding “d,” the minimum permitted number of parking spaces for an office use is zero spaces per 100 m2 of GLFA
h. All the lands shall be treated as one-lot for zoning purposes, should there be any future divisions of the property.
i. Maximum permitted building heights are set out on Schedule 263
j. Notwithstanding 3.i., maximum building height within 20 m. of a residential zone is 11 m.
k. All buildings located within 10 metres of a public street must be occupied at grade level by permitted non-residential or residential uses to a minimum distance of 20 metres from the building facade facing the public street, and a minimum of 75% of the surface area of the facade at grade level must be occupied by transparent windows and operable doors that are open to the public during all regular business hours.
l. An above-grade level parking garage is not permitted within 10 metres of a public street,
m. All non-residential uses located on the ground floor of a building located as per “3.k” must provide direct pedestrian access toward the street,
n. Notwithstanding “3.d” and “3.e” above, the provisions of Part 4 below apply to all residential uses,
4.(i) 500 Coventry Road shown as Area B on Document 3 will be rezoned from IL[280] H(11) to GM24[1787] F(1.0) S263-h1, and the “-h1” holding symbol will not be lifted until all agreements required outlining the details of the relocation of Coventry Road to the north and west sides of 525 and 535 Coventry Road have been executed; and
4.(ii) “525 and 535 Coventry Road shown as Area C on Document 3 will be rezoned from IL[28] H(11) and IL H(11) to GM24[1787]F(1.0) S263-h2 and the “-h2” holding symbol will not be lifted until Coventry Road has been relocated and constructed to City standards to the north and west sides of 525 and 535 Coventry Road; and
4.(iii) the following additional zone provisions that will apply to all lands zoned GM24[1787] S263 F(1.0) after the lifting of the –h1 and –h2 holding symbol:
a. The maximum permitted GLFA for all retail uses is 139,000 m2;
b. Notwithstanding “4.(iii) a.”, the maximum GLFA for all retail uses may exceed 139,000 m2 when building(s) are provided along the easterly edge of the property, that contain at grade level permitted non-residential uses with direct pedestrian access to St. Laurent Boulevard, covering a minimum of 20 metres of the buildable area measured westerly from the lot line abutting St. Laurent Boulevard and for a minimum distance equal to 65% of the frontage along St. Laurent Blvd., and of that 65%, a minimum of 30 metres measured southerly along St. Laurent Blvd. from Coventry Road must be occupied by building(s);
c. The maximum total combination of GLFA for all non-residential uses plus Gross Floor Area for all residential uses is 170,000 m2
d. Notwithstanding “4.c.”, the maximum total combination of GLFA for all non-residential uses plus Gross Floor Area for all residential uses GLFA may exceed 170,000 m2 when building(s) are provided along the easterly edge of the property, that contain at grade level permitted non-residential uses with direct pedestrian access to St. Laurent Boulevard, covering a minimum of 20 metres of the buildable area measured westerly from the lot line abutting St. Laurent Boulevard and for a minimum distance equal to 65% of the frontage along St. Laurent Blvd., and of that 65%, a minimum of 30 metres measured southerly along St. Laurent Blvd. from Coventry Road must be occupied by building(s);
PROPOSED ZONING DOCUMENT 3
PROPOSED BUILDING HEIGHT LIMITS DOCUMENT
4
CONSULTATION DETAILS DOCUMENT
5
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. One public meeting, arranged by the ward Councillor, was also held in the community.
PUBLIC COMMENTS
Comments from the general public pertaining to the application are summarized and addressed below:
- Comment: The expansion of the shopping centre is not needed, it is large enough already and will just become another “hangout” for kids.
Response: The proposed expansion is in keeping with the Official Plan policies for intensification along Arterial Mainstreets and at locations with good access, especially to rapid transit.
- Comment: The proposed relocated roadway is too close to the back of the nearby houses and the quality of life in the neighbourhood will be sacrificed just to allow the St. Laurent Shopping centre to increase profits.
Response: The relocation of Coventry Road will be subject to an Environmental Assessment process and addressed through a future Site Plan Control application, both of which will address proper buffering between the proposed roadway and the nearby residential area to the north.
- Comment: The proposal will increase traffic in the area and cause problems especially at the intersection of St. Laurent Boulevard and Ogilvie Road, which may affect adjacent properties and may not uphold “good planning principles”.
Response: -A Community Transportation Study that was undertaken in relation to the proposed development has been reviewed by City staff transportation engineering groups and the traffic volumes generated by the proposed development can be acceptably accommodated on the existing area street network with few roadway and signal modifications.
SUMMARY OF PUBLIC INPUT
October 27, 2009 - PUBLIC MEETING COMMENTS
The comments provided at the public meetings from the general public which are summarized and addressed below:
- Comment: There are sewer capacity issues in the area, especially for the sanitary system; the proposed development should not make this problem worse.
Response: A detailed servicing study pertaining to the redevelopment proposal has been submitted by the applicant. The City’s engineering staff have reviewed the study and no problems with sewer capacity are anticipated.
- Comment: There is a concern about the level of spill-over lighting from the parking lot.
Response: Spill-over lighting impacts will be addressed through conditions in the related Site Plan Control Application.
- Comment: There should be safe and convenient pedestrian connections from the community to the neighbourhood to the north.
Response: The applicant is proposing to maintain and improve the pedestrian access to the community from the shopping centre by adding a signalized crossing of Coventry Road leading to the north, subject to the results of the required Environmental Assessment.
- Comment: Will the proposed development include the use of “green” technology?
Response: Although not subject to Zoning By-law provisions, the City’s Official Plan encourages the use of “green” technology and the applicant has indicated that they are looking at the use of “green” technology in redevelopment of the site.
- Comment: Coventry Road is too indirect to function properly as a good arterial roadway. Traffic is already too heavy on Lola Street; how will the redevelopment proposal affect Lola traffic?
Response: Coventry Road is currently designated as an Arterial Roadway in the Official Plan and will, if relocated, be reconstructed to meet the latest City standards for arterial roadway construction. Lola Street is designated as a Collector Roadway in the Official Plan and although traffic volumes are expected to increase by about two to three per cent, there are no capacity problems anticipated along Lola Street due to the proposed re-zoning.
- Comment: The handi-cap parking has to improve with the new development so that it relates better to the special facilities such as the dentist and their hours of operation.
Response: The number and location of handi-cap parking spaces will be addressed through the anticipated site plan application in accordance with existing by-law requirements; and the relationship between building entrances and facilities will be carefully considered through that process.
- Comment: Will the new development provide any space for community activities?
Response: The applicant has indicated they will consider providing space in the redeveloped shopping centre, such as the interior common “courtyards” for community activities.
COMMUNITY ORGANIZATION COMMENTS
Community Council of Overbrook Comments
The Community Council of Overbrook provided the following comments:
“As I indicated in my earlier message, the Community Council of Overbrook has a Heritage and Development Committee.
At our meeting of CCO on August 20, it was recommended that a public
meeting be held to present to proposed plans of the St. Laurent Development to
residents in Overbrook and surrounding communities. The timeline of
August 26 for planning feedback is not reasonable consultation with
the Overbrook community.
We appreciate the fact that development will take place. However, there
are many questions and concerns, particularly around the issue of increased
traffic as a result of more business in the area of Coventry Road/St. Laurent
and nearby streets. The quality of life for residents in this area is of
vital importance as we move forward together.
We look forward to the opportunity to meet and to bring constructive suggestions/concerns
to the partners involved.
We look forward to your support to Overbrook.”
Response to Comments
A public meeting to discuss the proposed development was held on October 27, 2009, and the results are discussed above. The Coventry Road relocation component of the redevelopment proposal will be subject to an Environmental Assessment process and addressed through a future Site Plan Control application, both of which will address proper buffering between the proposed roadway and the nearby residential area to the north. The applicant is also proposing to maintain and improve the pedestrian access to the community from the shopping centre, by adding a signalized crossing of Coventry Road leading to the north, subject to the results of the required Environmental Assessment.