planning rationale 929 richmond road/108 woodroffe …

PLANNING RATIONALE 929 RICHMOND ROAD/108 WOODROFFE AVENUE OTTAWA, ONTARIO PROPOSED MINOR ZONING BY-LAW AMENDMENT

WESTBORO POINT DEVELOPMENTS INC. JANUARY 2012

Page i

1. INTRODUCTION ...................................................................................................................... 1

2. PROJ ECT BACKGROUND AND PRECONSULTATION ....................................................... 1

3. PROPERTY ANALYSIS ........................................................................................................... 2

3.1 Location ................................................................................................................................................. 2

3.2 Site Conditions and Use ....................................................................................................................... 3

3.3 Community Context .............................................................................................................................. 3

3.4 Transportation Context ......................................................................................................................... 5

4. PROPOSED DEVELOPMENT ................................................................................................. 7

5. SUPPORTING STUDIES.......................................................................................................... 9

5.1 Phase 1 and 2 Environmental Site Assessment (ESA) ...................................................................... 9

5.2 Servicing Options and Stormwater Management ............................................................................... 9

5.3 Transportation ..................................................................................................................................... 10

5.4 Shadow Impact Study ......................................................................................................................... 11

5.5 Geotechnical ........................................................................................................................................ 11

5.6 Noise..................................................................................................................................................... 11

5.7 Tree Conservation ............................................................................................................................... 11

6. PLANNING POLICY AND REGULATORY ANALYSIS ........................................................ 12

6.1 Provincial Policy Statement ............................................................................................................... 12

6.2 City of Ottawa Official Plan................................................................................................................. 13

6.3 Richmond Road/Westboro Community Design Plan ....................................................................... 18

6.4 Urban Design Guidelines along Traditional Mainstreets ................................................................. 21

6.5 Urban Design Guidelines for High-Rise Housing ............................................................................. 22

6.6 Transit Oriented Design (TOD) Guidelines ....................................................................................... 23

6.7 Urban Design and Review .................................................................................................................. 24

6.8 City of Ottawa Comprehensive Zoning By-law 2008-250 ................................................................. 25

7. MINOR ZONING BY-LAW AMENDMENT ............................................................................. 26

7.1 Minor Zoning By-Law Amendment Rationale ................................................................................... 27

8. CONCLUSION ........................................................................................................................ 30

929 Richmond Road/108 Woodroffe Avenue Page 1 IBI GROUP Planning Rationale

1. INTRODUCTION The owner (applicant) proposes a minor amendment to the City of Ottawa Zoning By-law 2008-250 in order to permit the development of a 14-storey, 85-unit mixed-use building at the northwest corner of Richmond Road and Woodroffe Avenue in the Woodroffe North neighbourhood of Ottawa. The 0.25 hectare project site is owned by Westboro Point Developments Inc. A revised site plan will also be submitted as part of the overall development application. The project site is currently comprised of two parcels, one of which contains a neighbourhood convenience store with second storey apartments, and the other an abandoned single-family residence. Proposed redevelopment on the project site would comprise 85 residential units, varying from one-bedroom to two-bedroom plus den units, associated amenity space, and 239 square metres of ground-floor commercial space. Underground parking for 78 vehicles would be provided. The proposed design of the building reflects varying heights ranging from eight storeys nearest the existing residential neighbourhood behind the project site to 14 storeys at the Richmond Road frontage. In the City of Ottawa Official Plan, the project site is designated General Urban Area and is located on a portion of Richmond Road designated Traditional Mainstreet. The project site is regulated by the City of Ottawa Zoning By-law 2008-250. The subject lands are currently zoned TM H (25) – Traditional Mainstreet, Height Maximum 25 metres. This Planning Rationale is submitted in support of the application for a Minor Zoning By-law Amendment to permit the proposed development. 2. PROJECT BACKGROUND AND PRECONSULTATION Development options for the project site were first considered in late 2007, and included a concept for a seven-storey mixed-use building consisting of ground-floor retail and 40 residential units above. Pre-consultation with City staff held in January 2008, determined that the proposed development concept complied with all standards and provisions of the existing zoning at the time and could proceed directly to Site Plan Control. City staff required a number of additional studies be prepared in support of the application for Site Plan Control, including:

• Phase 1 and 2 Environmental Site Assessment (including Record of Site Condition); • Site Servicing Brief; • Geotechnical Investigation Study; • Noise Impact Assessment Study; • Transportation Brief; • Shadow Impact Assessment; and • Tree Conservation Report.

These studies were completed and the application for Site Plan Control submitted to the City on March 31, 2008. In June of 2008, the City of Ottawa adopted a new Comprehensive Zoning By-law (2008-250). The By-law had the effect of rezoning the project site from CG4 – General Commercial Subzone 4 [435] F2.0 H (24.7), to TM (H25) – Traditional Mainstreet, Height Maximum 25 metres. This did not affect the proposed development since the new zoning was tailored to reflect the application for Site Plan Control already in process for the project site. The City issued the draft Delegated Authority Report for review in January 2009, and a final site plan was submitted at that time; however, soon after submittal of the final plans, the applicant began to contemplate changes to the original development proposal. In the time that followed, the proposed development was revised to better reflect current market conditions and increased costs associated with acquiring the corner parcel and redeveloping a site in close proximity to the City’s West Nepean Collector sanitary line and high-pressure watermain, both of which run along the rear of the property. The revised development concept reflects a 14-storey mixed-use building.


Figure 1 – Project Site Location (Source: Bing Maps).

The revised development concept was discussed with the Woodroffe North Community Association executive in September 2011, and presented at the Association’s Annual General Meeting in October, 2011. Pre-consultation with City staff in October, 2011, determined that a Minor Variance or Minor Zoning By-law Amendment would be required to proceed with the revised development concept. It also determined that all of the studies completed in support of the initial Site Plan Control application—with the exception of the geotechnical investigation and environmental site assessments—would have to be updated as part of any re-submission. In the interest of maintaining the strong working relationship between the Community Association and the development team, and of eliminating the perception by neighbours that approval by means of minor variance would limit opportunities for community input, it was determined that approval of the revised development concept would be sought by my means of application for Minor Zoning By-law Amendment. This Planning Rationale report is provided in support of said application.

3. PROPERTY ANALYSIS 3.1 Location The project site is located on two parcels of land at the northwest corner of Richmond Road and Woodroffe Avenue in the Woodroffe North neighbourhood of Ottawa (Figures 1 and 2). The total site area is approximately 2,357 square metres. The project site has frontage on both Richmond Road and Woodroffe Avenue, both of which are classified as Arterial roads in the 2008 City of Ottawa Transportation Master Plan (TMP). The project site located approximately seven kilometres west of downtown Ottawa, and is approximately 350 metres south of the Ottawa River. Overall, the project site is accessible to all areas of the City through the existing major road network, quality multi-route transit access, and multi-use pathways located nearby.


Figure 2 – Project Site Location with Aerial (Source: Bing Maps).

Photo 1: Facing north towards existing convenience store. Photo 2: Facing west from Woodroffe Avenue towards subject

site.

3.2 Site Conditions and Use The property at 929 Richmond Road includes a two-storey building containing apartments over a neighbourhood convenience store (Pronto Mart). The property at 108 Woodroffe Avenue contains an abandoned single-family residence.

3.3 Community Context A wide array of land uses and building types are located in the vicinity of the project site including:

• Mid-rise and high-rise buildings to the east and west along Richmond Road; • A range of shops, restaurants, automotive, and personal services in small single-storey

retail plazas or standalone parcels along Richmond Road; and • Single-detached dwellings reflecting a range of ages and architectural styles primarily to the

north (Woodroffe North neighbourhood) and south (Woodpark neighbourhood).


Figure 3 – Project Site Surrounding Uses (Source: Bing Maps).

The area also offers a number of parks, several churches of differing denominations, and the Ottawa River Parkway which provides multi-purpose pathways along the Ottawa River. A multi-use pathway also runs along the Byron Avenue linear park (Byron Tramway Park) directly across Richmond Road from the project site providing east-west connectivity through the surrounding neighbourhoods. Figure 3 illustrates the land uses and associated built forms in the immediate vicinity of the project site.

North To the north of the project site is the Woodroffe North neighbourhood. This neighbourhood is characterized by a mix of mainly two-storey single-family dwellings varying in age, condition, and architectural style. Woodroffe Walk, a roughly eight-metre wide City-owned right-of-way, separates the project site from the adjacent dwellings. Further north from the subject site is the National Capital Commission (NCC) greenspace associated with the Ottawa River Parkway which runs along the south shoreline of the Ottawa River from Lincoln Fields in the west to LeBreton Flats in the east. South To the south of the project site across Richmond Road is the Hulse, Playfair, and McGarry Funeral Home (west of Woodroffe), Our Lady of Fatima Catholic Church and Elementary School (east of Woodroffe), and the residential neighbourhood of Woodpark. Buildings to the south of the project site are generally one- and two-storey residential dwellings. East To the east of the project site across Woodroffe Avenue is a vacant former Kentucky Fried Chicken (KFC) restaurant and the Lulu Plaza, a single-storey commercial plaza that includes numerous restaurants and service uses. Further east along Richmond Road is a mix of low-rise commercial and office buildings and two high-rise residential buildings. These high-rise buildings include the Lord Richmond at 851 Richmond Road (11 storeys) and the recently-completed Continental at 747 Richmond Road (16 storeys). West Immediately adjacent the project site is a nine storey mid-rise apartment building at 945 Richmond Road with personal service uses at street level. Further west along the Richmond Road is a mix of auto-oriented commercial uses—including Ottawa Honda, Tops Car Wash, and Tim Horton’s—and


Photo 3: Nine-storey building at 945 Richmond Road Photo 4: Lulu Plaza – east of subject site Photo 5: Our Lady of Fatima Catholic Church Photo 6: Facing west towards subject site along

Richmond Road.

several high-rise residential buildings, the most prominent being Park Place at 1025 Richmond Road (28 storeys). From a land use perspective, the proposed development is compatible with existing uses in the area. With respect to built form, the proposed building fits the context of existing mid-rise and high-rise buildings along Richmond Road. In addition, the design and positioning of the building on the site will establish the project as a substantial gateway to the neighbourhood and represent a significant aesthetic improvement over existing uses. The proposed development is located on a Traditional Main Street (Richmond Road) in a developing/ redeveloping area of Ottawa. Over time, it is anticipated that redevelopment and increases in density will occur along Richmond Road resulting in changes to the built form and character of the corridor that will be compatible with the proposed development. Buffering of the residential neighbourhoods to the north will be provided via incremental building heights, angular plane setbacks, property setbacks, and aesthetic treatments.


Photo 7: Ottawa Honda and 945 Richmond Road Photo 8: Facing north along Woodroffe Avenue from subject

site

Photo 9: Woodroffe Walk Photo 10: The Continental Photo 11: Park Place

3.4 Transportation Context The project site fronts onto both Richmond Road (south) and Woodroffe Avenue (east). Both streets are classified as Arterial roads in the City of Ottawa Official Plan. Arterial roads are designed to function as major public and infrastructure corridors. Additionally, the Official Plan designates Richmond Road as a Traditional Mainstreet. Traditional Mainstreets are defined as having developed prior to 1945, and offer significant opportunities for intensification through more compact forms of development, mix of uses, and pedestrian-friendly environs. Two OC Transpo bus routes—Route 2 and Route 87—provide frequent service to/from the project site. Route 2 (Bayshore/Downtown) provides service at 10-12 (peak) to 30 minute (off-peak) intervals throughout the day, while Route 87 (South Keys/Baseline) provides frequent service at 12-15 (peak) and 30 minute (off-peak) intervals throughout the day. To the north of the project site, the Ottawa River Parkway provides multi-purpose pathways along the Ottawa River, and into the downtown core. A multi-use pathway also runs along the Byron Avenue linear park (Byron Tramway Park) directly south across Richmond Road from the subject site, providing east-west connectivity through the surrounding neighbourhoods.


Exhibit 1 – Project Rendering - Front Elevation

4. PROPOSED DEVELOPMENT Westboro Point Developments Inc. proposes to construct a new 14-storey mixed-use building on the project site. The proposed development would include 85 dwelling units, 239 square metres of street-level commercial spaces for retail or service uses, and two levels of underground parking for 78 vehicles. The building is designed and located on the project site so as to address the oblique angle of the intersection while providing a building face and unique public realm on both Richmond Road and Woodroffe Avenue. This approach also has the effect of angling the bulk of the building away from the Woodroffe North neighbourhood. In addition, incremental height increases from eight storeys at the rear property line to 14 storeys at Richmond Road moves building height away from the Woodroffe North neighbourhood with the resulting angular planes providing continued solar access. The entrance lobby is located in the centre of the building frontage facing the intersection and separates the street-level residential units from the commercial spaces. Two street-level townhouses are located on the Woodroffe Avenue side of the entrance lobby and include access from the street as a means of continuing the street-oriented residential character of Woodroffe Avenue to the north. Two street-level commercial spaces are located on the Richmond Road side of the entrance lobby as a means of addressing this Traditional Mainstreet corridor. The rear of the building includes three ground floor townhouses and a communal amenity area, all of which include a raised garden area. In addition to the raised gardens, the remaining area behind the building is landscaped with trees, shrubs, and grasses and distinguished from the surrounding properties by a 1.5-metre high opaque wall with a 0.5-metre high planted screen above. Vehicular access to two levels of underground parking for 78 vehicles would be provided via a ramp located at the northern edge of the project site. Service access would be provided via a loading zone located at the western edge of the project site. Both points of access have been located to maximize the distance from the intersection of Richmond Road and Woodroffe Avenue. Four public on-street parking stalls are proposed on Woodroffe Avenue in front of the development to increase access to the street-level commercial spaces and contribute to the Traditional Mainstreet character sought by the City and residents of the area.


Exhibit 2 – Rear Elevation

Exhibit 3 – South Elevation(Richmond Road)


Exhibit 4 – North Elevation (Woodroffe Avenue)

5. SUPPORTING STUDIES

5.1 Phase 1 and 2 Environmental Site Assessment (ESA) T. Harris Environmental Management conducted a Phase 1 ESA on the project site in early 2008 to determine the presence of any potential environmental hazards associated with the property. The following provides a summary of the report:

• Neither Ontario Ministry of Environment (MOE) records of outstanding orders nor other legal undertakings against the property including non-compliance issues for the site were found;

• No spills were recorded within 0.25 kilometres of the site; • Two former gasoline service stations with underground storage tanks were once located

one block east of the subject site on Richmond Road between Woodroffe Avenue and Lockhart Avenue. Due to the close proximity of the two former gasoline stations, it was recommended that a limited Phase 2 ESA be conducted, and;

• Asbestos, lead, silica, and mercury were all found in the existing structures on site. It was recommended that an asbestos survey be conducted on the existing structures.

Paterson Group conducted a Phase 2 ESA on the project site as recommended in the Phase 1 ESA. The report found limited existence of low-level hydrocarbon contamination in the soil on a small portion of the site. Since redevelopment will result in the complete removal of all soil on the site, it is expected that remediation of this occurrence will result. Soil removed during excavation of the site will be re-tested and any found to be contaminated will be disposed of at a registered landfill facility. 5.2 Servicing Options and Stormwater Management IBI Group prepared a servicing options analysis, including stormwater management, and plan for the proposed development. The following provides a summary of the report:

• The proposed site plan can be serviced by extending existing municipal services; • Services accessible to the site include storm sewer, sanitary sewer, water service, gas, Bell

and Rogers, and overhead hydro;


• A new 150mm diameter water service is proposed that connects to the existing 400mm water line on Woodroffe Avenue. It will enter the building on the north side;

• A new 150mm diameter wastewater service is proposed that connects to the 225mm sanitary sewer line on Woodroffe Avenue. It will enter the building near the basement parking ramp on the north side of the building;

• A new 250mm diameter service connection is proposed to be connected to the existing 300mm storm sewer located in Woodroffe Avenue;

• Overland flow routes will be provided in the grading and roadway design to permit emergency overflow drainage from the site;

• Any excess runoff up to the 100-year event is to be stored on-site in an underground cistern in order to not surcharge the storm sewer system;

• Adherence to the Sediment and Erosion Control plan during construction will minimize harmful impacts on surface water, and;

• All necessary public utilities such as hydro, gas, bell and cable are available for the site. 5.3 Transportation A Transportation Brief was prepared by IBI Group to analyze the transportation and traffic impact of the proposed use. The following provides a summary of the report:

• The proposed development conforms to the City of Ottawa’s Transportation Demand Management (TDM) principles by providing ease of access to non-motorized modes of travel, including multiple bus stops, bicycle facilities, and pedestrian amenities;

• It is estimated that the proposed development will generate a total of 62 veh/h, 54 veh/h and 67 veh/h during the weekday morning, weekday afternoon and Saturday peak hours, respectively. However, as the on-site underground parking will be primarily for residents, the traffic entering/exiting the site is only expected to be 48 vehicles per hour (veh/h), 40 veh/h and 49 veh/h during the weekday morning, weekday afternoon and Saturday peak hours, respectively;

• The Richmond Road/Woodroffe Avenue intersection is presently operating at an acceptable Level of Service (LOS “A”) during the weekday morning and Saturday peak hours, but is operating above threshold capacity (LOS “F”) during the weekday afternoon peak hour. Some improvement to the operation condition can be attained through signal timing improvements, but the intersection will continue to operate close to threshold levels;

• The location of the proposed site access within the property limits was chosen to provide the least impact to the adjacent road network. Analysis of the Site Access has demonstrated that the traffic generated by the proposed development will have a negligible effect on through-traffic and that the unsignalized Site Access intersection will function very well in terms of level of service;

• During peak periods of traffic, queues on the southbound approach to the Richmond Road/ Woodroffe Avenue intersection will extend beyond the location of the proposed access driveway. At these times, traffic in the queue on Woodroffe Avenue will have the right-of-way over traffic exiting the site at all times except in the case of emergency response vehicles. However, it is expected that during these times, stopped traffic in the queue will allow traffic attempting to exit the site to either cross or enter the queue by creating gaps where possible. This scenario is considered common practice on similar site arrangements at congested intersections. Additionally, since the peak hour traffic volumes generated by the development are relatively small due to the limitations of available on-site parking for residents and availability of on-street parking for commercial users, the interactions between site generated traffic and the Woodroffe Avenue traffic queue will be infrequent and should not pose a significant impact to traffic operations at the intersection or along this section of Woodroffe Avenue; and

• The site access driveway to the proposed development conforms to the City of Ottawa Private Approach By-Law.


5.4 Shadow Impact Study A shadow impact study was prepared by PLP Architecture, the architectural designer of the proposed development, to determine if it would result in significant shadow impacts on surrounding properties. A 3-D digital model of the proposed development was used to determine the projected shadow at various times of day at various times of year. The model assumes that a minimum of four hours of daylight are required throughout the growing season to allow for healthy plant life. Public spaces—parks, walking trails, and sidewalks—do not have the same minimum requirement. The model also assumed that on cool days, sunlight is generally appreciated, as is shade on very hot days. The shadow impact study demonstrates that the proposed development will not inhibit solar access to the backyards of neighbouring residential properties in the spring, summer, and fall. In the winter, there will be some restriction of solar access in the morning hours; however, in the afternoon hours, neighbouring residential properties will have solar access to utilize passive solar gain. Overall there will not be a significant shadow impact on nearby residential properties as a result of the proposed development. It is worth noting that the careful siting and design of the proposed development—which is taller than the original development approved for the project site—results in no more shadow impact on surrounding properties. 5.5 Geotechnical A geotechnical investigation was conducted by Paterson Group for the proposed development to determine subsoil and groundwater conditions on the site as well as to prepare geotechnical recommendations to the site design. The following provides a summary of the report:

• From a geotechnical perspective, the subject site is considered suitable for the proposed development;

• Bedrock removal will be required to complete underground parking levels. Bedrock excavation could conducted using hoe ramming for small quantities and line drilling or controlled blasting for large quantities;

• Stabilization of bedrock will be required in areas where the proposed foundation extends below the existing foundation levels.

5.6 Noise A noise impact assessment was conducted by Integral DX Engineering to determine the environmental noise impacting the proposed development, particularly from Richmond Road and Woodroffe Avenue, both of which are arterial roadways. The assessment predicted indoor and outdoor noise levels and compared these levels to City of Ottawa guidelines and requirements. The assessment found that special noise control measures are required, including central air conditioning of residential units, and notices-on-title regarding noise issued to purchasers. 5.7 Tree Conservation A tree inventory and conservation report was conducted by IFS Associates for the proposed development site to determine impacts to the trees on site from the development. The following provides a summary of the report:

• No endangered or other significant trees were found to be present on-site; • None of the existing trees on-site were found to be retainable, as the proposed building,

parking accesses, and underground construction leave little room to retain trees. However, it is anticipated that trees located on adjacent properties can be retained with appropriate preservation measures as outlined by the City of Ottawa.


6. PLANNING POLICY AND REGULATORY ANALYSIS This section of the report considers the proposed development in light of the Provincial Policy Statement (PPS), the City of Ottawa Official Plan, the Richmond Road/Westboro Community Design Plan (CDP), design guidelines for Traditional Mainstreets and High-Rise Buildings, and the City of Ottawa Zoning By-law 2008-250. The proposed development of the project site requires a Minor Zoning By-law Amendment. 6.1 Provincial Policy Statement Section 3 of the Planning Act requires that municipal planning decisions be consistent with the Provincial Policy Statement (PPS). The PPS provides direction on matters of provincial interest related to land use planning and development. The PPS encourages efficient, cost-effective development and patterns of land use which stimulate economic growth and protect the environment and public health. It also encourages land use patterns that accommodate an appropriate range and mix of residential uses in a manner that supports infill, intensification of development, and discourages the expansion of urban boundaries. The proposed development is consistent with the intent of the PPS in that it:

• Represents an efficient form of development and land use pattern while accommodating an appropriate range of residential uses for this site that contribute to meeting long-term needs of the City (Section 1.1.1a);

• Assists in accommodating an appropriate range and mix of residential uses to meet long-term needs (Section 1.1.1.b);

• Avoids development and land use patterns which may cause environmental or public health and safety concerns (Section 1.1.1c);

• Promotes cost-effective development standards to minimize land consumption and servicing costs [Section 1.1.1e);

• Efficiently uses infrastructure and public service facilities which are planned or available (Section 1.1.3.2a);

• Constitutes an opportunity for intensification and redevelopment as outlined in Section 1.1.1.3;

• Is located to take maximum advantage of existing and planned transportation improvements by locating at the intersection of two arterial roads (Section 1.6.5.2);

• Provides a land use pattern, density and mix of uses that minimize the length and number of vehicle trips and supports the development of viable choices and plans for public transit and other alternative transportation modes (Section 1.6.5.4);

• Accounts for protected future right-of-ways on Woodroffe Avenue and Richmond Road (Section 1.6.6.1);

• Promotes compact form to fit into a structure of nodes and corridors (Section 1.8.1a); • Does not conflict with identified resources such as agricultural lands, aggregate areas, or

areas with an inherent environmental sensitivity (Section 2.1) , and; • Does not adversely impact public health and safety (Section 3.1).

A major policy focus in the PPS is related to the concentration of growth in Settlement Areas, including the promotion of opportunities for intensification and redevelopment where they can be accommodated. The PPS defines intensification as development of a property, site, or area at a higher density than current exists through:

• Redevelopment, including the reuse of brownfield sites; • The development of vacant and/or underutilized lots within previously developed areas; • Infill development; and • The expansion or conversion of existing buildings (Section 6.0).


The proposed project provides significant potential for infill development of two underutilized lots in a highly-developed area of Ottawa and represents the kind of opportunity for intensification promoted by the PPS. Conclusion Overall, the proposed development is consistent with the policies of the PPS. The project provides an intensification opportunity of existing underutilized lots within a built-up and well-serviced area of the City.

6.2 City of Ottawa Official Plan Section 2.2 (Managing Growth) Section 2 of the City of Ottawa Official Plan outlines the strategic policy direction for future growth in the City. Section 2.2.2 (Managing Growth within the Urban Area) notes that opportunities for residential intensification exist and will be supported within the General Urban Area. Section 2.2.2.1 provides a definition of residential intensification as development that results in a net increase in residential units and includes:

• Redevelopment (the creation of new units, uses or lots on previously developed land in existing communities), including the redevelopment of Brownfield sites;

• The development of vacant or underutilized lots within previously developed areas, being defined as adjacent areas that were developed four or more years prior to new intensification;

• Infill development; • The conversion or expansion of existing industrial, commercial and institutional buildings for

residential use, and; • The conversion or expansion of existing residential buildings to create new residential units

or accommodation, including secondary dwelling units and rooming houses. The proposed project would redevelop two previously underutilized commercial and residential parcels within the urban area into 85 residential units and 239 square metres of commercial uses. As a result, the proposed development meets four of the five intensification definitions noted in Section 2.2.2.1. Section 2.2.2.4 of the Official Plan states that major intensification will be directed toward designated Mainstreets. The project site is located on a designated Traditional Mainstreet (Richmond Road). Sections 2.2.2.5 through 2.2.2.11 of the Official Plan go on to outline intensification targets and minimum densities for specific areas in the city. Section 2.2.2.5 notes that the target for overall residential intensification in the 2012-2016 timeframe is 38-percent of total development in the city. Section 2.2.2.8b notes that the City will establish minimum residential targets on Traditional Mainstreets; however, no residential targets for the Traditional Mainstreet section of Richmond Road have been established at this time.

Section 2.5 (Building Liveable Communities) Section 2.5.1 (Urban Design and Compatibility) sets out design and compatibility objective, principles, and policies applicable to intensification and infill development within the urban area. The guidance provided in Section 2.5.1 assists in mitigating differences in built form and function to achieve compatibility within a community; however, Section 2.5.1 does acknowledge that allowing for some flexibility and variation that complements the character of existing communities is central to successful intensification. Development applications are evaluated in the context of meeting guidelines in Section 2.5.1. The proposed development meets the design and compatibility objectives set forth in Section 2.5.1 in the following manner:


Figure 4 – City of Ottawa Official Plan: Designated ‘General Urban Area’

• Promotes quality consistent with a major metropolis, and a prime business and tourist destination;

• Encourages a continuity of street frontages; • Minimizes the exposure of inhabitants to noise levels that could adversely impact their

health and well-being; • Integrates public transit with existing and new development; • Creates places and spaces that are visible and safe and can be confidently used at all

hours of the day and at night where it is appropriate to do so; • Integrates new development to complement and enliven the surroundings. • Achieves a more compact urban form over time; • Protects the City’s natural heritage system and take an ecosystem approach to design that

supports natural functions, such as natural drainage, groundwater recharge and discharge, and wildlife habitat;

• Orients development to maximize opportunities for passive solar gain, natural ventilation, and use energy efficient development forms and building measures;

• Maximizes opportunities for sustainable transportation modes (walking, cycling, transit facilities and connections), and;

• Reduces hard surfaces and maximize landscaping and site permeability on site.

Section 3.6 (Urban Designations) The project site is designated General Urban Area in the Official Plan and is also located on a designated Traditional Mainstreet (Richmond Road) (see Figure 4).

The General Urban Area designation, outlined in Section 3.6.1 of the Official Plan, permits a wide variety of uses, including all types and densities of residential development, as well as employment, retail, institutional, leisure, cultural, greenspace, entertainment, and institutional uses (Section 3.6.1.1). Section 3.6.1.3 provides policy on proposals for residential intensification through infill or redevelopment in the General Urban Area, noting that the City will:


• Recognize the importance of new development relating to existing community character so

that it enhances and builds upon desirable established patterns and built form; • Apply the policies of Section 2.5.1 and Section 4.11 of the Official Plan; • Consider its contribution to the maintenance and achievement of a balance of housing

types and tenures to provide a full range of housing for a variety of demographic profiles throughout the General Urban Area, and;

• Assess ground-oriented multiple housing forms, such as duplex, triplex and fourplex, as one means of intensifying within established low-rise residential communities.

Section 3.6.1.6 notes that the City will encourage a variety of small, locally-oriented convenience and service uses that complement adjacent residential uses, and are of a size and scale consistent with the needs of the nearby residential areas. Such uses are to be:

• Compatible and complement surrounding land uses, and can be developed in accordance with Section 2.5.1 and Section 4.11;

• Conveniently located with respect to concentrations of residential development and provide direct access for pedestrians and cyclists from adjacent residential areas;

• Permitted to cluster with other community-oriented uses, such as parks, pedestrian linkages, community centres or leisure facilities, in order to facilitate interaction among residents and contribute to a sense of community;

• Situated to take advantage of pedestrian and cycling patterns, and; • Of a size and scale that will not result in the attraction of large volumes of vehicular traffic

from outside the immediate area. The proposed development contains 239 square metres of ground-floor commercial area fronting Richmond Road. Surrounding uses include other small-scale retail and service uses that serve the community. Direct access to the commercial areas is provided via sidewalk connections to adjacent neighbourhoods as well as other uses along the Richmond Road Traditional Mainstreet corridor. Cycling access to retail on site is provided via connections to the Byron Avenue Tramway multi-use path as well as multi-use pathways along the Ottawa River Parkway to the north. The Traditional Mainstreet designation, outlined in Section 3.6.3 of the Official Plan, identifies streets that offer significant intensification through compact development, mixed uses, and pedestrian-friendly environments. A broad range of uses are allowed on Mainstreets, including residential, retail and service commercial uses, office, and institutional uses. Richmond Road, in the area of the proposed development, is designated a Traditional Mainstreet. Section 3.6.3.8 notes that redevelopment and infill are encouraged on Traditional Mainstreets, with general support for four-to-six storey building heights, although consideration for height increases is provided. The proposed development achieves multiple criteria for building height increases listed in Section 3.6.3.8, including:

• Proposing a building height that conforms with prevailing building heights along Richmond Road, while providing a transition to low-rise neighbourhoods to the north through urban design measures such as massing, incremental changes in building height, and architectural treatments;

• Creating a community focus at a gateway for the Woodroffe North neighbourhood by locating on the corner of two arterial roads (Richmond Road and Woodroffe Avenue) currently served by multiple transit routes, and;

• Meeting provisions of Section 2.5.1 and Section 4.11 that determine if additional height is appropriate.

Refer to the related discussion below on Section 5.2 of the Official Plan regarding the provision of community benefit in exchange for additional height and density.


Section 4.11 (Urban Design and Compatibility) Section 4.11 provides objectives, criteria, and policies that can be used to evaluate compatibility for intensive development projects within the city. Specifically, where zoning by-laws are required to change the permitted use of the land, height, or density, compatibility of the proposed development must be assessed as it relates to the criteria and policies. Criteria used to evaluate compatibility include both built form and operational characteristics. Development applications are evaluated in the context of meeting policies and criteria in Section 4.11. The proposed development meets the compatibility objectives set forth in Section 4.11 in the following manner: Traffic (Section 4.11.2a) – The project site is located at the intersection of two arterial roadways— Richmond Road and Woodroffe Avenue—and is also served by multiple transit routes and bicycle/pedestrian connections. A Transportation Brief completed for the project documented that the traffic generated by the proposed development would not negatively affect the existing road network. Vehicular Access (Section 4.11.2b) – The proposed development has been designed with two access points – one for service deliveries from Richmond Road and the main access for residents and visitors from Woodroffe Avenue. The majority of traffic entering the project site will be routed into an underground parking facility, thus mitigating noise, glare, and loss of privacy on neighbouring uses. Parking Requirements (Section 4.11.2c) – The proposed development includes 78 parking spaces for residents and visitors of the building. Four on-street parking stalls are also proposed for Woodroffe Avenue in front of the building. Additionally, nearby on-street parking on Byron Avenue and excellent transit connectivity at the project site will provide further options for parking and access to the site. Sufficient bicycle parking and storage is also provided. Refer to Section 5.3 of this report for more information. Outdoor Amenity Areas (Section 4.11.2d) – The neighbouring uses do not contain amenity areas; however, the siting and design of the proposed development, as well as landscape planting and screening, will provide protection from any potential undesirable impacts. Loading Areas, Service Areas, and Outdoor Storage (Section 4.11.2e) – The proposed service and loading area is located at the western extent of the property adjacent the windowless east side of the mid-rise apartment building located next door at 945 Richmond Road. Landscape planting and screening will be used to limit any potential undesirable impacts. Lighting (Section 4.11.2f) – Lighting for the proposed development will be designed and installed to the City’s standards. As such, no impacts on neighbouring properties from lighting are anticipated. Noise and Air Quality (Section 4.11.2g) – The proposed development will not cause any adverse noise or air quality impacts on neighbouring properties. Refer to Section 5.6 of this report for more information. Sunlight (Section 4.11.2h) – A solar shadow study was completed for the proposed development. The results of the study determined that no adverse impacts are anticipated from the proposed development on neighbouring properties. Refer to Section 5.4 of this report for more information. Microclimate (Section 4.11.2i) – Study of microclimatic (wind, drifting, temperature) effects of the proposed development was not required nor completed; however, no adverse microclimatic effects on neighbouring properties are anticipated due to the relatively modest scale of the project. Supporting Neighbourhood Services (Section 4.11.2j) – The proposed development is situated in a location close to many neighbourhood facilities and amenities. The project site is within short distance to multi-use pathways along Byron Avenue and the Ottawa River Parkway, and is one block from the multi-facility Woodroffe Park. In addition, numerous retail, service, religious, and


educational amenities are located along Richmond Road, most of which within walking distance of the project site. Sections 4.11.7 through 4.11.10 provide guidance on building profile as it relates to urban design and compatibility. Section 4.11.8 notes that high-rise buildings—defined as buildings higher than ten storeys—will be considered on Traditional Mainstreets, provided that one of the following conditions listed in Section 4.11.9 is met:

• Within areas characterized by high-rise buildings that have direct access to an arterial road, or;

• Within 600 metres of a rapid transit station or; • Where a community design plan, secondary plan, or other similar Council-approved

planning document identifies locations suitable for the creation of a community focus on a strategic corner lot, or at a gateway location or on a terminating site to strategic view, or a site that frames important open spaces, or at a location where there are significant opportunities to support transit at a transit stop or station by providing a pedestrian and transit-oriented mix of uses and activities, or;

• Within areas identified for high-rise buildings where these building profiles are already permitted in the Zoning By-law approved by Council, or;

• Within areas where a built form transition as described in Section 4.11.12 is appropriate. The proposed development is located on a gateway corner lot with direct access on two arterial roadways (Richmond Road and Woodroffe Avenue) and the potential for creating a focal point in the community. The proposed development is also located on a section of Richmond Road that includes multiple high-rise buildings of between 11 and 28 storeys. Furthermore, the proposed development also meets a variety of the built form transitions outlined in Section 4.11.12. Although not highlighted specifically in the Richmond Road/Westboro Community Design Plan, the project site represents a gateway location at the intersection of two arterial roads and four neighbourhoods within the western urban built-up area of Ottawa. Two high-frequency transit routes also service the site (OC Transpo Routes 2 and 87). Section 4.11.11 outlines architectural and urban design considerations that the City will evaluate for new high-rise building proposals. Considerations include:

• How the scale, massing and height of the proposed development relates to adjoining buildings and the existing and planned context for the surrounding area in which it is located;

• How the proposal enhances existing or creates new views, vistas and landmarks; • The effect on the skyline of the design of the top of the building; • The quality of architecture and urban design, particularly as expressed in Council-approved

design guidelines, and; • How the proposal enhances the public realm, including contribution to and interaction with

its surroundings at street level. Section 4.11.12 outlines taller building transitions used as integration tools with surrounding land uses. Measures to accomplish transitions include:

• Incremental changes in building height; • Massing; • Character; • Architectural design; and • Building setbacks.

The proposed development was reviewed by the City’s Urban Design Review Panel on December 1, 2011, to determine compatibility with Sections 4.11 of the Official Plan. Transitions to adjacent existing development will be accomplished by massing the building to the front of the property along Richmond Road, orienting the building toward both arterial streets and away from the residential area at the back of the property, and designing incremental changes in building height from eight


storeys at the back of the property to 14 storeys at the front of the property on Richmond Road. Refer to Section 6.7 of this report for more information regarding the specific comments of the Urban Design Review Panel and how certain elements of the building design were revised to address these comments. Section 5.2 (Implementation Mechanisms, by Authority under the Planning Act) As noted in the discussion of Section 3.6.3.8 of the Official Plan above, the City will consider increases in height or density on Traditional Mainstreets. Such consideration is guided by Section 5.2.1.11 of the Official Plan which states that increases in height and density above levels permitted in the zoning by-law will conform with Section 37 of the Planning Act regarding the provision of community benefit. Conclusion The proposed development meets the general intent and objectives of the Official Plan in the following manner:

• It fits the definition of intensification under Section 2.2.2.1; • It conforms to the design objectives and principles set out in Section 2.5.1: Compatibility

and Community Design; • It conforms with applicable policies set out in Section 3.6.1: General Urban Area, and 3.6.3:

Traditional Mainstreets; • It meets multiple criteria for height increases on Traditional Mainstreets, as listed in Section

3.6.3.8; and, • It responds to the compatibility criteria established in Section 4.11: Compatibility.

6.3 Richmond Road/Westboro Community Design Plan The Richmond Road/Westboro Community Design Plan (2007) was prepared to guide the long-term design and development of the area. The Plan locates the project site in Sector 2 (Woodroffe North area) and is identified as an infill/intensification site with a building height of three to four storeys. However, the existing TM - Traditional Mainstreet zoning of the project site permits a building height of 25m (seven storeys). The Plan provides policy guidance for future land use, streetscape, and building design. The Guiding Principles of the Plan include:

• Retaining all public greenspace; increase greenspace where possible; • Increasing recreational facilities; • Ensuring the area develops in such a way as to ensure that it is pedestrian- and cyclist-

friendly; and; • Preserving the scale and character of existing neighbourhoods and ensure compatibility of

new development. Section 4.2 (Overlying Objectives and Principles) of the Plan outlines principles for intensification and infill within the Plan area. The proposed development meets the principles in Section 4.2 in the following manner:

• It provides appropriate setbacks and transitions in building height, including a design that includes incremental height changes varying from eight storeys closest to residential areas to 14 storeys closest to other taller structures on Richmond Road;

• It conforms to multiple applicable Richmond Road/Westboro design guidelines for the Woodroffe North neighbourhood found in Section 8.4 of the CDP (see discussion below);

• It conform to the standards for increased densification and building height as set out in Section 8.7 of the CDP (see discussion below);

• It respects a transition in building scale and density and compatibility of land use from Richmond to the Ottawa River Parkway in a north-south direction and along Richmond between different sectors in an east-west direction, and;


Figure 5 – Richmond Road/Westboro CDP: Woodroffe North Sector

• It creates a breaks in the street wall from neighbouring properties and is aligned to front both Richmond Road and Woodroffe Avenue, creating an inviting presence and pedestrian-friendly environment.

Section 6.11 (Development Potential) of the Plan provides a comparison between existing zoning and proposed build-out based on the CDP for each planning sector. The Woodroffe North area, in which the project site is located, had an existing zoning potential of 560 new residential units and a CDP proposed potential of 548 residential units. It should be noted that the zoning for the project site changed since the CDP was adopted. Since the adoption of the CDP, one major development in Woodroffe North—the Continental at Richmond Road and Cleary Avenue—has been completed. The Continental project contains approximately 100 units, leaving an additional 460 new residential units available for development in Woodroffe North according to the CDP build-out potential. The proposed development consists of 85 units, representing only about 15 percent of the total new buildout in Woodroffe North.

Section 8.4 of the Plan provides specific built form, open space, landscape, and parking guidelines for the section of Richmond Road from Golden Avenue west to the Ottawa Parkway. According to the Plan, the overall intent of the guidelines in this planning area “is to foster the evolution of the existing mixed traditional/arterial mainstreet type of development toward a more compact, mixed-use, pedestrian- oriented form, including buildings located close to the street.” As the project site is located on this section of Richmond Road, the proposed development must address these guidelines. Applicable guidelines include:

• Design new development to be compatible with adjacent neighbourhoods, in accordance with the infill guidelines applicable to each planning sector;

• Ensure adequate sunlight for sidewalks by building within a 45 degree angular plane measured from the opposite sidewalk curb and setting back the upper floors of buildings above the third storey from the lot frontage;

• Use periodic breaks in the street wall or minor variations in building setback and alignment to add interest to the streetscape, and to provide space for activities adjacent to the sidewalk in order to avoid creating a continuous wall effect on the street;

• Orient the front façade of the building to the public street and locate its front doors to be visible from the street;


• Set the building back from the property line where necessary to accommodate a wider sidewalk;

• Avoid blank side walls, especially if they are visible from the street, a parking lot or from a public plaza. If applicable, continue the same level of architectural treatment around the sides of the building;

• Maximize the number of residential units with windows on two sides; • Preserve the views to the Ottawa River Parkway open space corridor from north-south

streets south of Richmond Road; • Design buildings to accommodate signage; use signs to accentuate architectural features,

not to hide them; • Provide sufficient open space around residential buildings to ensure the provision of

sufficient sunlight to habitable areas; • Ensure existing dwellings to the north of Richmond retain adequate sunlight and privacy

and minimize overlook; • Where appropriate, new buildings should relate to the existing built form of adjacent

properties to help create a coherent streetscape in each planning sector; • Create a north-south and east-west transition in the scale and massing of buildings. • Connect pedestrian walkways to the street and to adjacent properties to facilitate circulation

between properties; • Provide a minimum three-metre landscape area, which may include a solid wall or fence in

addition to planting, at the edges of sites adjacent to residential or institutional properties; and

• Preserve open spaces in the streetscape to provide for the creation of green streets and pedestrian links toward the Ottawa River.

The design of the proposed development achieves the vast majority of these guidelines to achieve a compact, mixed-use and pedestrian-oriented streetscape. Due to the size and orientation of the project site, certain guidelines cannot be achieved, including: stepping back of upper floors from the street frontage; and, providing a three-metre landscape area at the edges of the site adjacent to residential properties. However, the existing built conditions surrounding the project site, coupled with careful siting and design of the proposed building, will ensure that any potential adverse impacts are minimized. Section 8.5 of the Plan provides direction to ensure that new development will be compatible with existing features, building scale, and adjacent neighbourhoods. Applicable guidelines for the Woodroffe North area include:

• Encourage the conversion/redevelopment of existing automobile-oriented uses fronting on Richmond Road to more pedestrian-friendly, mainstreet uses;

• Design buildings rich in architectural detail that respect the rhythm and pattern of existing or planned buildings on the street through the alignment of such elements as windows, front doors, cornice lines, fascias, etc.;

• Ensure the spacing and massing of new buildings with respect to other existing or planned adjacent buildings is particularly sensitive to the general guidelines to provide sufficient light and privacy for residential and institutional uses to the rear and to minimize overlook;

• Create a transition in building height where new development is to be higher than the existing adjacent residential area, with a minimum height of two storeys;

• Avoid major alterations to the lot grade and ensure that rear yards are properly landscaped, complementing the existing buffer strip at the rear of lots fronting Richmond Road; and

• For new infill development on Richmond between Aylen and Pooler Avenues, recognize that the existence of a low-rise residential area to the north at a lower elevation will affect the siting and footprint of buildings. Portions of a development closer to Richmond can use the full width of the lot to create a strong edge to the street. However, development at the rear of the lot will need to be particularly sensitive to the general guidelines to provide sufficient light and privacy for residential uses to the rear and to minimize overlook.


The design of the proposed development achieves the vast majority of these guidelines to achieve compatibility with existing features, building scale, and the adjacent neighbourhood. Due to the size and orientation of the project site, the guideline pertaining to the creation of a transition in building height from the adjacent residential area beginning above two storeys cannot be achieved. However, careful siting and design of the proposed building ensures that only a narrow portion of the lowest segment of the building abuts the rear yard, and then only at an angle. Combined with the proposed rear yard setback and the eight-metre wide Woodroffe Walk that abuts the rear yard in this location, a significant shadow impact on nearby residential properties as a result of the proposed development is not expected (refer to Section 5.4 of this report). Section 8.7 of the Plan notes that developments proposing levels of intensification above the Plan policies—in this case proposing a taller building—should be evaluated vis a vis the following applicable standards:

• The building should safeguard exposure to sunlight along the sidewalk; • The building should not have significant negative effects on surrounding properties and

residential neighbourhoods regarding shadowing and visual impact; and • The applicant must address the planning strategy and the urban design guidelines,

including infill guidelines in Section 8.5 of the CDP, and undertake a transportation impact study.

Careful siting and design of the proposed building provides exposure to sunlight along sidewalks, and based on the results of the shadow impact study (refer to Section 5.4 of this report), does not create negative visual or shadowing effects on neighbouring properties. As noted in the discussion above, the proposed development achieves the vast majority of the guidelines set out in Section 8.5 of the Plan with respect to compatibility. Finally, a transportation impact study was undertaken to analyze the effect of the project on the neighbouring road network. The study found that the traffic generated by the proposed development would not negatively affect the existing road network (refer to Section 5.5 of this report). Conclusion The proposed development meets the general intent and objectives of the Richmond Road/ Westboro Community Design Plan in the following manner:

• It meets intensification principles as outlined in Section 4.2 of the Plan; • It falls within the build-out goals in the Woodroffe North area, as outlined in Section 6.11 of

the Plan, providing approximately 15 percent of the proposed units for the Sector; • It meets the specific built form, open space, landscaping, and parking guidelines for the

Woodroffe North area in Section 8.4 of the Plan; • It meets the guidelines established for infill development as outlined in Section 8.5; and • It conforms to the applicable standards for increasing height and density on intensification

sites, as outlined in Section 8.7 of the Plan. 6.4 Urban Design Guidelines along Traditional Mainstreets The City of Ottawa’s Guidelines for Development along Traditional Mainstreets provide urban design guidance at the planning application stage to assess, promote, and achieve appropriate development for proposed developments on Traditional Mainstreets. The proposed development supports several of the Traditional Mainstreet guidelines. In particular it would:

• Align with the existing built form along Richmond Road (Guideline 1); • Provide a minimum 2-metre wide concrete sidewalk to match the approved streetscape

provisions in the Richmond Road/Westboro CDP (Guideline 3); • Provide a quality building design that is rich in architectural detail and respects the rhythm

and pattern of the existing or planned, buildings on the street, through the alignment of elements such as windows and front doors (Guideline 8);


• Ensure sufficient light and privacy for residential and institutional properties to the rear by ensuring that the development is compatible and sensitive with adjacent uses with regard to maximizing light and minimizing overlook (Guideline 9);

• Use clear windows and doors to make the pedestrian level façade of walls facing the street highly transparent and locate active pedestrian-oriented uses at-grade (Guideline 11);

• Locate a mixed-use development by concentrating height and mass at nodes and gateways (Guideline 14);

• Highlight a corner site where two public streets intersect with special treatment such as a corner entrance. It would also continue the same level of architectural detailing around both sides of the building (Guideline 16);

• Provide pedestrian weather protection (Guideline 17); • Locate the front doors to face the mainstreet and be directly accessible from the public

sidewalk (Guideline 19); • Construct the pedestrian walkways of materials such as concrete or unit pavers that are

easily maintained for safety (Guideline 20); • Provide enclosures or screening for all utility equipment within buildings (Guideline 38); • Design lighting so that there is no glare or light spilling onto surrounding uses (Guideline

40), and; • Provide lighting that is appropriate to the street character and mainstreet ground-floor use,

with a focus on pedestrian areas (Guideline 41). 6.5 Urban Design Guidelines for High-Rise Housing The City of Ottawa’s Urban Design Guidelines for High Rise Housing are intended to encourage and achieve appropriate high-rise development. High-rise buildings are defined by the City of Ottawa as any building that is ten storeys or more. The Urban Design Guidelines for High Rise Housing deal with seven elements of design, including: context; built form; pedestrian and public realm; open space; amenities; environmental considerations; site circulation and parking; and services and utilities. The proposed development supports several of the High-Rise Housing guidelines. In particular it would:

• Integrate into the context and address compatibility with the planned context through the transitions in building height, and through the design qualities and character (Guideline 1a);

• Provide direct links to public transit, sidewalks and streets (Guideline 1b); • Create a landmark building that is distinctive in form, is located at a prominent intersection,

and is designed and will be built with richness and quality in materials and detail (Guideline 2a);

• ‘Step-down’ at 45 degree angles to lessen the impact on adjacent areas (Guideline 4); • Feature innovative design and site treatments on a community gateway (Guideline 7); • Be oriented to minimize shadowing on adjacent sites (Guideline 11); • Create a building form that responds to function, site characteristics, context, and mix of

uses (Guideline 12); • Support human-scaled streetscapes through the design and uses of the lower portion of the

building (Guideline 13); • Use clear windows and doors to make the pedestrian level façade highly transparent and

accessible (Guideline 14); • Include retail uses and active uses along the street façade to enhance the building’s

relationship to the public realm (Guideline 16); • Include at an-grade pedestrian entrance which is directly accessible, clear, and prominent

with a direct link to the sidewalk (Guideline 17); • Feature an architecturally detailed façade, using various types of materials and treatments,

with no blank or featureless sides (Guideline 18); • Be designed with a compact floor plate to maximize views and light for the interior spaces,

creates narrow shadows, and allow opportunities for sky views (Guideline 21); • Feature a distinctive and well-designed roofline (Guideline 23);


• Provide barrier-free and universal access to the building by pedestrians (Guideline 30); • Provide views from the apartments to the streets and open space allowing visual

surveillance and neighbourliness (Guideline 31); • Protect pedestrians from inclement weather by using canopies on the ground level

(Guideline 32); • Coordinate and integrate existing transit stops into the site (Guideline 34); • Provide required outdoor amenity space through use of balconies and private outdoor

space (Guideline 41); • Provide amenities at the building entrance, including benches, bike racks, bus stops, and

lobby seating (Guideline 51); • Provide a 2-metre wide entrance from the main doors to the sidewalk (Guideline 52); • Include underground parking and locate the garage entry in such a way as to not to detract

from the streetscape (Guidelines 56 and 58); • Provide bicycle parking (Guideline 59); • Integrate the strategic location of building infrastructure away from public areas (Guideline

61 and 62); • Locate utility, garbage, and other service areas away from public view (Guidelines 63, 64,

and 65), and; • Locate and conceal exhaust and other service intakes/outputs to avoid impacts on

sidewalks, outdoor spaces, and adjacent development (Guideline 67). 6.6 Transit Oriented Design (TOD) Guidelines The Western Light Rail Transit Corridor Planning and Environmental Assessment currently underway identifies Richmond Road in the vicinity of the proposed development as a potential light rail transit corridor. Based on this possible future, the proposed development should be designed to consider the City’s TOD guidelines. The intent of the TOD guidelines is to provide an urban design standard for assessing, promoting, and achieving appropriate TOD within the City of Ottawa. TOD is defined as a mix of moderate-to- high density transit-supportive land uses located within an easy walk of a rapid transit stop or station that is oriented and designed to facilitate transit use. The TOD guidelines are to be applied for all development within a 600-metre walking distance of a rapid transit stop or station. Should rapid transit be provided along the Richmond Road corridor, the proposed development would support several of the TOD guidelines. In particular it would:

• Provide transit-supportive land uses (residential apartments) within 600m walking distance of a rapid transit station or stop (Guideline 1);

• Locate high density uses as close as possible to transit (Guideline 8); • Include architectural variety at grade to provide visual interest to pedestrians and highlight

the building entrance (Guideline 14); • Use clear windows and doors to make the pedestrian level façade of walls facing the street

highly transparent in order to provide ease of entrance, visual interest, and increased security through informal viewing (Guideline 15);

• Feature a ground floor designed to be appealing to pedestrians, particularly through its architectural treatment (Guideline 28), and;

• Provide underground parking (Guideline 39).


6.7 Urban Design and Review The proposed development was presented to the City’s Urban Design Review Panel on December 1, 2011. The Panel serves in an independent advisory role to enhance the City’s architectural and urban design goals and objectives. The Panel supported the proposed development and provided the following comments in regard to the design:

• The proposed building responds wonderfully to the site; • The scale of the building is appropriate for the site; • The proposed building will provide a positive addition to this stretch of Richmond Road and

will assist in creating a more Traditional Mainstreet atmosphere; • The design successfully addresses the odd-shaped corner site; • Explore architectural devices, such as glass projections or different materials to make the

retail element distinct; • Examine more closely how retail projects beyond the face of the adjacent apartment

building to the west; • Investigate options for how the mechanical penthouse is integrated into the design; • Street trees should be planted along both Woodroffe Avenue and Richmond Road; • Surface treatments need to be a priority along the Woodroffe Avenue side; • There is an especially awkward, angular relationship with the adjacent nine storey building

to the west that should be revisited and addressed; • Consider a green wall or some other treatment here that would soften or mediate the

relationship between the proposed development and the residential to the north; • There is a nice stepping-down to the neighbourhood on the eastern edge; • Explore and illustrate further how the rear of the building will be handled, and; • Explore the public street edges further. In some places they appear too tight to the curb and

in others awkwardly vacant. In response to the comments from the Urban Design Review Panel, the project architect has made several revisions to the development concept, including the following:

• The ground-floor on the western edge of the building has been realigned to better fit the angular relationship to the nine-storey building to the west. This change also allows the ground-floor retail on that edge of the building to project a better frontage onto Richmond Road;

• A mechanical penthouse has been added to rooftop to indicate a potential height profile and impact on the skyline; however, the size of the mechanical penthouse has yet to be finalized with the intent of making it as small as possible by locating some equipment in the basement of the building;

• Street trees have been added to the frontage along Richmond Road and four on-street parking stalls have been added in the large vacant area between the proposed building and Woodroffe Avenue;

• Surface parking has been removed from the rear of the building and located underground, and;

• A proposed 1.5-metre wall and 0.5-metre screen on top is proposed for the north and west property boundary. The fence will be finished in materials similar to the proposed building and will include planting as appropriate.

Refer to the revised renderings of the proposed development submitted in conjunction with this report.


Figure 6 – City of Ottawa Zoning By-law 2008-250: Site zoned ‘Traditional Mainstreet’ (TM).

6.8 City of Ottawa Comprehensive Zoning By-law 2008-250 The project site is zoned TM H(25) – Traditional Mainstreet, Height Maximum 25m (see Figure 6). The purpose of the Traditional Mainstreet Zone is to accommodate a broad range of uses, promote compact, mixed-use pedestrian-oriented development, and impose development standards that ensure street continuity, scale, character, and compatibility with surrounding uses.

Both the high rise residential and ground floor commercial uses are permitted in the TM Zone. However, the proposed development includes ground floor residential uses along the Woodroffe Avenue frontage, but not along the Traditional Mainstreet frontage of Richmond Road. The TM Zone prohibits ground floor residential uses within a depth of six metres of the front wall of a building abutting the street. Table 1 below compares the applicable zoning provisions with the standards required by the proposed development.

The proposed development complies with the overall intent of the zone and numerous applicable zoning provisions; however, a Minor Zoning By-law Amendment is required to revise some provisions in response to the proposed plans. The Minor Zoning By-law Amendment is outlined below in Section 7 of this report.


Table 1: Comparison of Applicable Zoning Provisions and Proposed Development Development Standard Required by Zone Proposed Development Compliance Lot Area (Min.) No minimum 2357 m² Yes

Lot Width (Min.) No minimum 30.35m irr. Yes Yard Requirements

Max. Front (Richmond) 3.0 m* 3.0 m Yes

Min. Interior Side 3.0 m 1.8 m at 7.5 m above grade to 46.85 m above No

Min. Corner Side (Woodroffe) 3.0 m 3.0 m Yes Min. Rear 7.5 m 0.82 m No

Building Height (Max.) 25.0 m 46.85 m No Building Envelope Setback (Front and Corner Side Yard)

2.0 m setback above fourth storey or 15.0 m,

whichever is greater None No

Building Envelope Setback (Rear Yard)

45-degree angular plane above the fourth storey

45-degree angular plane above the eighth storey No

Landscape Area Width (Min.) 3.0 m or 1.0 m with minimum 1.4 m high

opaque wall

0.82 m with 2.0 m high opaque wall No

Floor Space Index (Max.) No maximum 3.1 Yes Vehicle Parking

Residential (Min.) 43 (0.5 per dwelling unit) 68 (0.8 per dwelling unit) Yes Visitor (Min.) 15 (0.2 per dwelling unit

after first 12 units) 8 (0.11 per dwelling unit) No

Commercial (Min.) 6 (2.5 per 100 m² of GFA) 2 (0.8 per 100 m² of GFA) No

Bicycle Parking Residential (Min.) 43 (0.5 per dwelling unit) 43 (0.5 per dwelling unit) Yes Commercial (Min.) 1 (1.0 per 100 m² of GFA) 5 (5.0 per 100 m² of GFA) Yes

Location of Loading Space Prohibited in required yard abutting a residential

zone

Interior side yard abutting a residential zone No

*Note: Maximum front yard setback is 3.0 m when an outdoor commercial patio is located in the front yard of a corner lot (Section 197(4)(c)).

Source: IBI Group, 2011; City of Ottawa Comprehensive Zoning By-law 2008-250

7. MINOR ZONING BY-LAW AMENDMENT The proposed Minor Zoning By-Law Amendment would require the following changes to current TM H (25) zoning of the project site:

• Relief from the restriction on residential uses on the ground floor of a mixed use building in the TM Zone located within 6.0 metres of the front wall of a building abutting the street (Woodroffe Avenue frontage only);

• Reduction in the minimum interior side yard setback requirement from 3.0 metres to 1.80 metres at the third storey (7.5 metres above grade) and above to 14 storeys (46.85 metres above grade);

• Reduction in the minimum rear yard setback requirement from 7.5 metres to 0.82 metres;


• Increase in the maximum building height from 25.0 metres to 46.85 metres; • Relief from the required minimum 2.0-metre setback above 15.0 metres in building height

from the corner side lot line; • Relief from the required 45-degree angular plane above four storeys in building height, to a

45-degree angular plane above eight storeys in building height; • Relief from the rear yard minimum landscape width of 1m (with opaque wall) to 0.82m (with

opaque wall); • Reduction in the minimum visitor parking space requirement from 15 (0.2 per dwelling unit

after the first 12 units) to eight (0.11 per dwelling unit after the first 12 units); • Reduction in the minimum commercial parking space requirement from six (2.5 per 100 m²

of GFA) to two (0.8 per 100 m² of GFA); • Relief from the maximum 30 percent provision of compact parking spaces (minimum width

of a parking space at 2.4 metres) in a mid-high rise or a mixed use building containing more than 20 dwelling units; and

• Permission to locate the loading zone in a portion of the required interior side yard abutting a residential zone.

7.1 Minor Zoning By-Law Amendment Rationale In determining the minor amendments to the Zoning By-law, several factors regarding the site location, surrounding context, building siting, and building design were analyzed. The following provides a rationale for specific changes requested as part of the Minor Zoning By-Law Amendment. Ground Floor Residential The proposed development includes two ground floor residential townhouse units that front on and are oriented to Woodroffe Avenue. Originally, the intent was that these units be commercial; however, since this portion of Woodroffe Avenue is residential in nature and is not designated Traditional Mainstreet in the Official Plan, it was decided to convert them to residential. This conversion will serve to continue the street-level residential character of Woodroffe Avenue in the Woodroffe North neighbourhood. It also avoids the difficulties associated with leasing commercial spaces seen by retailers as being less desirable than the larger and more visible spaces oriented to Richmond Road. It is important to the success of the proposed development, and to the image and character of the Woodroffe North neighbourhood, that the new retail spaces provided are fully viable and fully utilized. The TM Zone restricts ground floor residential uses to the back of mixed use buildings on Traditional Mainstreets by requiring non-residential uses within 6 metres of the front wall of the building abutting the street. As such, the minor zoning amendment seeks relief from this requirement on the Woodroffe Avenue frontage only. In this manner, the proposed development continues to meet the intent of the Traditional Mainstreet designation of the Official Plan and the overall intent of the TM Zone by providing ground floor commercial space fronting on and oriented to the designated Traditional Mainstreet – Richmond Road. Yard Requirements The proposed development requires reductions in the required rear yard and interior side yard setbacks. With respect to the rear yard, a reduction in the required setback from 7.5 metres to 0.82 metres is required to accommodate a raised garden area for Residential Unit B on the ground floor. The edge of the raised garden for the neighbouring communal amenity area would be located 1.5 metres from the rear lot line. While the Zoning By-law permits the intrusion of decks and patios into a required yard, such intrusions are not to exceed 0.6 metres in height above grade. As the raised garden areas are approximately 0.8 metres above grade in order to accommodate the ramp to the garage and the parking structure below, the reduction in rear yard setback is necessary. There will be no impact on neighbouring properties resulting from the reduction in rear yard setback as the raised garden area will be landscaped and a two-metre high wall along the rear property line will provide the screening necessary for privacy from Woodroffe Walk.


The proposed building itself extends into the required rear yard by 2.9 metres at most; however, since the building has been sited and designed to orient to the intersection of Richmond Road and Woodroffe Avenue, it meets the rear yard at a point of angle only and not along any extent of it. In addition, since Woodroffe Walk further separates the project site from the adjacent dwellings behind by some eight metres, the building is located almost 13 metres from nearest residential property line and 19 metres from the nearest residence. With respect to the interior side yard, a reduction in the required setback from 3.0 metres to 1.80 metres is required. While the proposed building does not extend into the required side at grade, it does extend into the yard at the third storey (7.5 metres above grade) and above to 13 storeys (46.85 metres above grade). There will be no impact on the neighbouring nine-storey apartment building as it has no east-facing windows. In addition, the proposed building design has been revised to better relate to the neighbouring apartment building and the street in this location in respond to comments provided by the City’s Urban Design Review Panel (refer to Section 6.7 of this report). It should be noted that while the raised garden area for Residential Unit F on the ground floor extends into the interior side yard to within 0.82 metres of the property line, the garden does not exceed 0.6 metres in height above grade and is thus permitted to intrude into the required yard. As noted above, the raised garden area will be landscaped and a two-metre high wall along the western property line will provide the screening necessary for privacy from the neighbouring property at 945 Richmond Road. In addition, the abutting side yard at 945 Richmond Road is neither landscaped nor used by residents of the building.

Building Height The proposed development requires three amendments to the requirements for building height. First, the proposed development requires an increase in maximum building height from 25 metres (seven storeys) to 46.85 metres (14 storeys). This height is achieved over a series of levels increasing in height from eight storeys at the rear of the building to 14 storeys at the front of the building at Richmond Road. Only two, two-storey penthouse units actually reach this height and create a very distinctive roofline considering the modest scale of the building. Second, the proposed development requires relief from the 2.0-metre setback in the building wall above 15 metres along the corner side lot line (Woodroffe Avenue). As noted above, the building is oriented to the street in a series of angled bays such that the building is not located on the setback line along the street. Not only does this orientation provide pedestrian scale and interest at street level, but also it ensures that adequate sunlight reaches the sidewalk. These are the primary purposes of the required setback. Third, the proposed development requires relief from the required 45-degree angular plane above four storeys in building height. A 45-degree angular plane above eight storeys in building height is proposed. The primary purpose of the required 45-degree angular plane is to ensure solar access to and limit shadow impact on abutting properties. As noted above, the proposed building meets the rear yard at a point of angle only and not along any extent of it. In addition, since Woodroffe Walk further separates the project site from the adjacent dwellings behind by some eight metres, the building is located almost 13 metres from nearest residential property line and 19 metres from the nearest residence. There are several reasons why the amendments to the requirements for building height are proposed. First, the location of the low density Woodroffe North neighbourhood along the rear of the project site necessitates that the proposed building is lower in this location to ensure solar access and limit shadow impact. To accommodate less building mass at the rear of the site, additional mass must be transferred to the front of the site along Richmond Road where the precedent for higher buildings is already established. However, the small size and irregular shape of the project site leaves less room to accommodate additional building mass – the result is a taller building. Second, the proposed development represents an efficient reuse of the project site, which is currently underutilized and includes a neighbourhood convenience store and an abandoned single-family residence. Reuse of the project site for a larger commercial area and a higher density


residential use achieves the City’s goal of intensification within existing urban neighbourhoods, particularly along mixed use mainstreets, and makes the most of existing municipal services in the area. Third, the proposed development supports the intent of the Richmond Road/Westboro CDP by fostering the planned evolution of Richmond Road from an urban arterial to a more compact, mixed-use, and pedestrian-oriented street with buildings located close to the street. This evolution cannot occur without a more intense form of mixed-use development along Richmond Road, the kind envisioned by the proposed development. Fourth, the project site is located on a highly-visible and influential corner site that represents a gateway to the neighbourhood. The proposed development is intended as a gateway project designed to establish a sense of arrival or departure from the Woodroffe North and Woodpark neighbourhoods. Considering the planned evolution of Richmond Road to a Traditional Mainstreet, the proposed development is also intended to establish a benchmark for future development with respect to the quality of architectural design, neighbourhood compatibility, streetscape design, and unique contribution to sense of place. Fifth, the small size and irregular shape of the project site make it difficult to develop a project that is financially feasible, particularly at this location which is in close proximity to the City’s West Nepean Collector sanitary line and high-pressure watermain. These facilities are located beneath Woodroffe Walk which runs along the rear of the property and require costly excavation and construction techniques to ensure their long term protection. Finally, the proposed development has been carefully sited and designed to ensure that no significant shadow impact on nearby residential properties or the public realm as a result of the proposed development. The orientation of the building to the intersection of Richmond Road and Woodroffe Avenue; the series of angled bays that only ever meet the required yards at a point of angle and not along any extent of them; and the varying heights used to step the building up and away from the Woodroffe North neighbourhood each contribute to the ability accommodate a taller building on a small and irregularly shaped lot while ensuring compatibility and integration with the existing and future urban context. This is supported by the findings of the shadow impact study completed in conjunction with the architectural design of the proposed development (refer to Section 5.4 of this report).

Rear Yard Landscape Width The proposed development requires relief from the rear yard minimum landscape width of one metre with an opaque wall to 0.82 metres with opaque wall. This relief is necessary to accommodate the ramp providing vehicle access to the underground parking garage. The ramp is located in the rear yard to maximize the distance from the intersection of Richmond Road and Woodroffe Avenue. The ramp lies within the rear yard for a distance of about 15 metres, or about one third the length of the entire rear yard, the rest of which is landscaped at varying widths to 7.5 metres. In addition, a two-metre high wall—the minimum required is 1.4 metres—along the rear property line will provide the screening necessary for privacy from neighbouring properties. Visitor Parking The proposed development requires a reduction in the minimum visitor parking space requirement from 15 (0.2 per dwelling unit after the first 12 units) to eight (0.11 per dwelling unit after the first 12 units). Due to the high-frequency transit service to the project site and the availability of on-street parking on Byron Avenue on the east side of Woodroffe Avenue, it is expected that the eight visitor spaces provided will be adequate to serve the proposed development. In addition, four on-street parking spaces are proposed in front of the building on Woodroffe Avenue. Commercial Parking The proposed development requires a reduction in the minimum commercial parking space requirement from six (2.5 per 100 m² of GFA) to two (0.8 per 100 m² of GFA). It is intended that the two commercial spaces provided be allocated to the proprietor of each retail unit in the proposed development and not to customers of these businesses. However, due to the high-frequency transit service to the project site and the availability of on-street parking on Byron Avenue on the east side


of Woodroffe Avenue, additional off-street parking for commercial customers is unnecessary. Four on-street parking spaces proposed in front of the building on Woodroffe Avenue could also be used by commercial customers. Compact Parking Spaces The proposed development requires relief from the maximum 30 percent provision of compact parking spaces—minimum width of a parking space at 2.4 metres—in a mid-high rise or a mixed use building containing more than 20 dwelling units. The small size and irregular shape of the project site requires underground parking. In order to reduce the extent and depth of excavation into the bedrock present on the project site, additional flexibility is required in the provision of compact parking spaces. Loading Zone Location The proposed development requires permission to locate the loading zone in a portion of the required interior side yard abutting a residential zone. The loading zone is located in the interior side yard to maximize the distance from the intersection of Richmond Road and Woodroffe Avenue and to keep large delivery and service trucks off Woodroffe Avenue. There will be no impact on the neighbouring nine-storey apartment building at 945 Richmond Road as it has no east-facing windows and a two-metre high wall along the edge of the loading zone will provide visual screening. It should be noted that the abutting side yard at 945 Richmond Road is neither landscaped nor used by residents of the building. 8. CONCLUSION This Planning Rationale is submitted in support of an application for a Minor Zoning By-law Amendment to permit the development of a 14-storey, 85-unit mixed-use building at the northwest corner of Richmond Road and Woodroffe Avenue in the Woodroffe North neighbourhood of Ottawa. The proposed development would also include 239 square metres of street-level commercial space and underground parking for 78 vehicles. Based on the review herein the proposed development is found to be:

• Consistent with the Provincial Policy Statement; • Consistent with the policy intent of the City of Ottawa Official Plan; • Consistent with principles in the Richmond Road/Westboro CDP; • Consistent with City of Ottawa urban design guidelines regarding traditional mainstreet

development, high-rise buildings, and transit-oriented development; • Consistent and compatible with surrounding land uses and built form; and • Consistent with the comments and direction provided by the City of Ottawa Urban Design

Review Panel.

The proposed development represents, in our opinion, good land use planning and reflects appropriate development for the site that is consistent with the broad policy directions of the PPS, the City of Ottawa Official Plan, the Richmond Road/Westboro CDP, and City design guidelines related to high-rise buildings and developments along Traditional Mainstreets.

Request: That the proposed Minor Zoning By-law Amendment be approved.

IBI GROUP IBI GROUP Kevin A. Harper, MCIP, RPP Carl Furney, MCIP, RPP Associate

planning rationale 929 richmond road/108 woodroffe …

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