Planning Rationale Zoning By-Law Amendment and Street Closing Applications February 26, 2013
Our Mission Transformation through transportation. Our Vision To leverage the power of transportation and community to create a modern, integrated capital city that is environmentally, socially, economically and culturally sustainable and a desirable place for living, working and visiting. Light rail will shape how we grow our City.
Table of Contents 1 Introduction 4 2 Proposed Development 4 3 Purpose of Zoning By-law Amendment Application 7 4 Purpose of Street Closing Application 9 5 Provincial Policy Statement 9 6 Official Plan 9 7 Old Ottawa East Secondary Plan and Community Design Plan 11 8 Lees Station Transit-Oriented Development Study 13 9 Conclusion 14 Page 3 of 14
1 Introduction This Planning Rationale is intended to support a Zoning By-law Amendment application and a Street Closing application to permit a proposed parking lot with approximately 174 parking spaces at. 193 Lees Avenue is a triangular-shaped lot located at the southeast corner of Lees Avenue and Highway 417, as shown in Figure 1. The property is owned by the City of Ottawa and has a lot area of 0.32 ha. The site is used for a drive aisle for the University of Ottawa s Lees Campus. The site is also traversed with underground municipal services and utilities. 200 Lees Avenue is located south of Highway 417 and Lees Avenue and adjacent to 193 Lees Avenue. The site is used for the University of Ottawa s Lees Campus including institutional buildings and an open air stadium. The property is owned by the University of Ottawa and has a lot area of 6.07 ha. The site contains approximately 108 parking spaces. An existing driveway provides vehicular access to the site from a signalized intersection at Lees Avenue. The surrounding land uses are as follows: North: Highway 417 and Lees Avenue East: Rideau River with a pedestrian/cycling bridge located immediately east of 200 Lees Avenue South: Rideau River West: Transitway and Lees Avenue with the Lees Rapid Transit Station and high-rise residential uses located further to the west 2 Proposed Development The City is proposing to construct a parking lot with approximately 174 parking spaces at 193 Lees Avenue and part of 200 Lees Avenue. The proposed development includes the realignment of an existing east-west drive aisle, the provision of pedestrian and cycling facilities, and landscape planting. The new parking lot will replace 19 existing parking spaces, and will result in the net addition of 155 parking spaces. A concept plan showing the proposed parking lot location and general configuration is provided in Figure 2. One of the construction staging areas required for the construction of the Downtown tunnel for the Confederation Line Light Rail Transit project is located on part of Parking Lot K at Page 4 of 14
Figure 1. Location Map. Page 5 of 14
Figure 2. Concept Plan. Page 6 of 14
the University of Ottawa s Main Campus. This site is being provided to the Confederation Line s design-build-finance-maintain contractor, the Rideau Transit Group, for 62 months commencing in April 2013. The construction staging area requirements will result in the temporary loss of 120 parking spaces from Parking Lot K during this time period. The construction of the proposed parking lot at is intended to partially compensate the University of Ottawa for the temporary loss of the parking spaces at Parking Lot K during the construction period for the Confederation Line project. The City will be responsible for the construction of the proposed parking lot on or before September 1, 2013. The University will be responsible for the repair and replacement of the asphalt surface, and the day-to-day maintenance and cleaning of the parking spaces, including, but not limited to snow removal and cleaning. The City is proposing to convey 193 Lees Avenue to the University of Ottawa within 60 days of completion of construction of the parking lot. The City is proposing to provide the parking rights for 92 parking spaces at Sandy Hill Arena to the University of Ottawa from April 2013 until August 2013 to temporarily offset the displaced parking spaces at Parking Lot K until the proposed parking lot has been constructed at 193 and 200 Lees Avenue. City Council passed a temporary Zoning By-law Amendment in January 2013 to permit the proposed parking arrangement at Sandy Hill Arena. 3 Purpose of Zoning By-law Amendment Application 193 Lees Avenue is zoned I2A[350] (Major Institutional Zone, Subzone 2A, Exception 350] in the City of Ottawa Zoning By-law No. 2008-250, as shown in Figure 3. Exception 350 prohibits all uses except for a utility installation. The existing zoning reflects a gas substation that was previously located on the property. The substation has been removed. The City s Disposals and Environmental Remediation Unit conducted an internal and utility circulation of the property at 193 Lees Avenue in 2011. Based on the comments received from the circulation, there was no need identified to use the property for a utility installation. 200 Lees Avenue is zoned I2A (Major Institutional Zone, Subzone 2A). The zoning permits a broad range of uses including a post secondary educational institution. A Flood Plain zoning overlay applies to part of 200 Lees Avenue adjacent to the Rideau River. The purpose of the Zoning By-law Amendment application is to amend the existing zoning at 193 Lees Avenue from I2A[350] to I2A[347] to delete the exception that prohibits all uses except for a utility installation, and to add Exception 347. Exception 347 is a specific exception related to the University of Ottawa that allows for uses within certain zones to locate parking on Page 7 of 14
other related sites. The purpose of the Zoning By-law Amendment application is also to amend the zoning at 200 Lees Avenue from I2A to I2A[347] so that both 193 Lees Avenue and 200 Lees Avenue maintain consistent zoning. In order to permit a parking lot to be constructed straddling two lots, it is requested that the following text be added to Exception 347: -193 Lees Avenue and 200 Lees Avenue are considered one lot for zoning purposes. Figure 3. Existing Zoning. WIGGINS PRIV CHAPEL CHAPEL CHAPEL CHAPEL CHAPEL CRES CRES CRES CRES CRES WIGGINS PRIV O1L[310]-h O1L[316]-h HWY417 HWY417 HWY417 HWY417 HWY417 IC118 IC118 IC118 IC118 IC118 RAMP35 RAMP35 RAMP35 RAMP35 RAMP35 LEES AVE I1A HWY417 IC118 RAMP62 HIGHWAY 417 LEES LEES AVE AVE HIGHWAY 417 L1 ROBINSON AVE HWY417 IC118 RAMP35 HURDMAN RD HURDMAN RD I2A[350] HURDMAN RD R4T[483] ROBINSON AVE HURDMAN RD LEES AVE IG1 F(1.5) HIGHWAY 417 O1L[316]-h O1L[316]-h HIGHWAY 417 GM[63] F(2.1) O1L[316]-h O1L[316]-h HWY417 HWY417 HWY417 HWY417 HWY417 IC118 IC118 IC118 IC118 IC118 RAMP45 RAMP45 RAMP45 RAMP45 RAMP45 LEES AVE R5C[871] H(75) LEES AVE LEES AVE I2A LEES AVE O1 O1L[316]-h EVELYN AVE O1C R4M O1L[310]-h Page 8 of 14
4 Purpose of Street Closing Application 193 Lees Avenue was previously dedicated as public highway due to the former alignment of Lees Avenue prior to the construction of Highway 417. Lees Avenue was realigned to cross Highway 417 to the west of the site, and 193 Lees Avenue is now considered to be an untravelled street. Lees Avenue is identified in the Official Plan as an arterial road with a protected right-of-way width of 23 m between Main Street and Robinson Avenue. The existing right-of-way for Lees Avenue adjacent to 193 Lees Avenue has a width of approximately 40 m. As the existing rightof-way width exceeds the protected right-of-way width, there is no need to retain any part of 193 Lees Avenue as public highway. Accordingly, the purpose of the Street Closing application is to close 193 Lees Avenue as a public highway to allow for 193 Lees Avenue to be consolidated with 200 Lees Avenue and to permit the proposed parking lot. 5 Provincial Policy Statement The Provincial Policy Statement, issued under the authority of Section 3 of the Planning Act, provides policy direction on matters of provincial interest related to land use planning and development. The Planning Act states that a decision by Council on a planning matter shall be consistent with policy statements issued under the Act. The Provincial Policy Statement provides policy direction in three main areas: building strong communities; wise use and management of resources; and protecting public health and safety. The proposed Zoning Bylaw Amendment and Street Closing are consistent with the applicable policies in the Provincial Policy Statement. 6 Official Plan The Official Plan designates as part of a Mixed-Use Centre that is focused around the Lees Rapid Transit Station, as shown in Figure 4. The Official Plan encourages a broad variety of transit-supportive land uses in Mixed-Use Centres, including offices, secondary and post-secondary schools, hotels, hospitals, large institutional buildings, community recreation and leisure centres, daycare centres, retail uses, entertainment uses, services, high- and medium-density residential uses and mixed-use development containing a combination of the foregoing uses. The proposed parking lot supports the post-secondary educational uses associated with the University of Ottawa including the new open air stadium at 200 Lees Avenue. Page 9 of 14
Figure 4. Official Plan Schedule B, Land Use Policy (Excerpt). The Official Plan identifies a proposed Off-road Cycling Route (multi-use pathway) through the northern portion of between the Rideau River and Lees Avenue. The approved site plan drawings for the open air stadium at 200 Lees Avenue show a proposed 3 m wide multi-use pathway extending from the Rideau River to an area located near the northwest corner of the stadium. The extension of the cycling route to Lees Avenue will be addressed through the site plan approval process for the proposed parking lot. The policies related to compatibility and urban design will be implemented through the site plan approval process for the proposed parking lot. In general, the parking lot is compatible with the immediate surrounding land uses including Lees Avenue, Highway 417 and the University of Ottawa Lees Campus. There are no existing residential uses located immediately adjacent to the proposed parking lot. In support of the Official Plan s policies regarding design, walking and cycling, the proposed parking lot development will feature new walkways and cycling facilities, and improved landscaping compared to the existing conditions. It is noted that 193 Lees Avenue is traversed by underground services including a 1500 mm combined sewer, 1200 mm and 200 mm watermains, a 300 mm sanitary sewer, and Bell and gas services. The site has contaminated soil including coal tar contamination at a depth of approximately 7 to 10 m below grade. The site is also constrained by a minimum 14 m building setback from Highway 417. These site constraints together with the small parcel size, Page 10 of 14
irregular lot shape, and lack of direct vehicular access to Lees Avenue due to the proximity to the Lees Avenue bridge limit the development options at 193 Lees Avenue if it is not consolidated with 200 Lees Avenue. The proposal to merge will allow for a broader range of development opportunities including the ability to construct the proposed parking lot. The proposed zoning would also accommodate the potential redevelopment of 193 Lees Avenue and the northwest part of 200 Lees Avenue with a range of transit-supportive land uses in the event that funding becomes available to relocate the underground services and remediate the coal tar contamination. Given the existing site constraints, the proposed use of the site as a parking lot is appropriate as an interim use, and will not preclude the potential redevelopment of the site with transit-supportive land uses in the longer term. 7 Old Ottawa East Secondary Plan and Community Design Plan In 2011, City Council approved the Old Ottawa East Community Design Plan (CDP) and Secondary Plan together with related Official Plan and Zoning By-law Amendments. Schedule A (Land Use) to the Old Ottawa East Secondary Plan designates the site as a Mixed-Use Centre. Section 10.3.7 of the Old Ottawa East Secondary Plan contains the following policies for the Mixed-Use Centre precinct at the east end of Lees Avenue: 1. Encourage convenience, personal service, and retail shops on the ground floor of buildings throughout this Mixed-Use Centre. 2. Care should be taken as the University of Ottawa campus intensifies to ensure a compatible relationship with the Rideau River, Highway 417 and the Transitway by means such as, spatial separation, vegetative buffers, earth berms, and buildings as barriers. 3. Link the campus area by pedestrian and bicycle pathways to the Lees Avenue Transit Station and the University of Ottawa Campus to the north. 4. Encourage mixed-use development at the Lees Avenue Transit Station. 5. Infill the high profile residential neighbourhood adjacent to the west of the campus with low-rise buildings that improve the relationship of the existing buildings to the street at a human scale. 6. Front all buildings on a public street or private lane with a clear demarcation of the front door. 7. Locate residential units or offices on the second floor or higher. Page 11 of 14
Figure 10. Old Ottawa East Secondary Plan - Schedule A, Land Use. Page 12 of 14
8. Measures will be taken with construction of the AVTC to ensure that unencumbered pedestrian access is provided along Lees Avenue and that the Major Recreational Pathway along the Rideau River is not obstructed at grade for pedestrians and bicycles. 9. Construction of the AVTC will include the mitigation measures outlined in the Environmental Assessment such as, noise attenuation and implementation of the landscape concept. 10. Provide access from Lees Avenue to the Major Recreational Trail along the Rideau River by means of the City-owned parcel on the east side of the AVTC. Sidewalks along Lees Avenue will be expanded to the extent possible to improve the pedestrian linkage of the Mixed-Use Centre and Main Street. The proposed Zoning By-law Amendment and Street Closing are consistent with the intent of the Secondary Plan policies. 8 Lees Station Transit-Oriented Development Study In anticipation of land development pressure in proximity to the future Light Rail Transit (LRT) stations for the Confederation Line, City Council has established priority areas for the creation of transit-oriented development (TOD) plans. The TOD plans set the stage for future transitsupportive, or "intensified", land development by adding in appropriate locations opportunities for additional land use types and densities. The first three TOD studies for land surrounding the Train, St. Laurent and Cyrville future LRT stations were approved by City Council on November 14, 2012. In January 2013, the Planning and Growth Management Department commenced a second series of TOD studies for areas within approximately 800 metres of the Lees, Hurdman and Blair future LRT stations. These existing bus rapid transit stations are to be converted to LRT stations by 2018 as part of the Confederation Line project. The subject properties are located within the study boundary area for the Lees TOD Study. Primary goals of the TOD studies include supporting public transit usage by improving pedestrian and cycling access to the stations and by providing opportunity for additional types of development at transit-supportive densities. For example, land uses such as apartments, office and/or mixed-use buildings may be added to zoning in appropriate study area locations if they are not currently permitted. Permitted building heights may be increased or decreased depending on proximity to the LRT station and to provide transition to surrounding areas. The TOD studies may result in proposed changes to the Zoning By-law and/or Official Plan to Page 13 of 14
implement the study recommendations. As such, the land use planning framework for 193 and 200 Lees Avenue may change depending on the outcome of the Lees TOD Study. The preliminary schedule is for the study to be completed and presented to Planning Committee and Council for consideration in December 2013. 9 Conclusion The proposed Zoning By-law Amendment and Street Closing applications would permit the development of a new parking lot with approximately 174 parking spaces at 193 and 200 Lees Avenue. The proposed Zoning By-law Amendment will allow 193 Lees Avenue to be consolidated with 200 Lees Avenue, and for the two lots to be developed together. The proposed parking lot supports the existing institutional uses at the University of Ottawa including the new open air stadium at 200 Lees Avenue. The proposed development is compatible with the surrounding land uses, and complies with the relevant policies in the Official Plan and the Old Ottawa East Secondary Plan. The proposed use of 193 Lees Avenue for a parking lot reflects the existing site constraints including a minimum 14 m building setback required from Highway 417, and the presence of contaminated soil, underground services and utilities. The proposed zoning allows for a range of transit-supportive land uses to be developed at, and the proposed parking lot will not create any significant constraints to the potential redevelopment of the site in the future. Page 14 of 14