December 16, 2015 Page 1

Planning Rationale

Application to City of Ottawa for Zoning By-law Amendment

283 Sussex Drive (also known municipally as 32 Bolton Street)

Introduction

This report for 283 Sussex Drive (“subject property”) provides a description of the existing conditions, an

overview of the proposed single use office space use, a synopsis of the applicable land use planning

policies, including the National Capital Commission’s (NCC) Federal Planning Framework, Provincial

Policy Statement (PPS), the City of Ottawa Official Plan (OP) policies and Zoning By-law provisions. A

location plan is provided as Appendix 1.

Zoning By-law Amendment to add an office use constitutes an appropriate use for the site.

Site Overview

Image 1- Site location

December 16, 2015 Page 2

Image 2- Site location with underlying air photo

(Source - Geo Ottawa web page)

The Subject Property is denoted in red on the image above. It is located on the east side of Sussex Drive,

between Bolton and Cathcart Streets; within Ward 12, Rideau Vanier. The site is east of the Royal

Canadian Mint site and is on a portion of Sussex Drive also designated as part of Confederation

Boulevard; the Capital’s ceremonial route. This site is occasionally also referred to municipally as 32

Bolton Street.

This site and the surrounding units are federally owned and form part of the National Capital

Commission’s Real Estate Management leasing portfolio (NCC). The subject property is legally described

as part of Lot 1 on the east side of Sussex Drive Registered Plan No. 3, and forms part of a number of

existing units denoted with a property identification number as PIN 042160016.

December 16, 2015 Page 3

Site and Existing Building Photos

Photo 1 - View from Sussex

Photo 2- View from Cathcart Street

December 16, 2015 Page 4

Photo 3- View from Cathcart Street

Image 3- EXCERPT from Application for Permit under the Ontario Heritage Act (Version 09/29/15 application, submitted to City of Ottawa by Inside Edge Properties)

December 16, 2015 Page 5

The property has an area of 400 m2, with an existing three story building which has previously been used

by both residential and office tenants. Access to the building is currently from both Sussex Drive and

Cathcart Street. An open landscaped area (private green space amenity area) separates the rear yard

from that of the existing residential dwellings to the north and east side. These units are also within the

NCC leasing portfolio. There are two (2) existing parking spaces with access to Sussex Drive, as well as a

communal private parking area for multiple tenants which may be accessed from Bolton Street. In the

future, there may be modifications to any driveway access and the existing parking spaces. (As part of

this zoning amendment application, the NCC is requesting the formal parking required be reduced to

zero).

The property is surrounded by the following land uses:

North: Multiple unit residential dwellings

East: Multiple unit residential dwellings

South: Institutional use

West: Confederation Boulevard, Sussex Drive- Royal Canadian Mint site

Description of Proposal

Background

283 Sussex Drive is one of the buildings along Sussex Drive that were purchased by the National Capital

Commission (NCC) in the 1960’s as part of a massive urban renewal scheme for the residential district

north of the market, known as Lowertown West.

The previous owner of the building, Ms. Yvonne Grenier, continued to reside at the property as a tenant

until 1992, the year she passed away. From 1993 to 2013 the building was leased to a variety of

tenants. These included Serenity House (later Trillium House), a transitional housing for individuals

recovering from addiction. The building was subsequently leased to Centre de théâtre francophone

d’Ottawa Inc. (La Nouvelle Scène) for administrative offices in 2013 and 2014.

Current vocation

The building at 283 Sussex has been vacant since 2014. The NCC has had significant difficulty in leasing

this large property as a residential unit. The house has 3 levels and 9 bedrooms. The nature of the

building (a very large house) and its location at this busy node along Confederation Boulevard make it

less attractive to many prospective residential tenants. The property is categorized as residential;

however, the building has been used in the past for interim office space.

The building at 283 Sussex drive requires significant repairs and rehabilitation prior to any new tenant

occupancy. A major rehabilitation project will be undertaken for the long term preservation of the asset.

An application has also been submitted to the City of Ottawa for Permit under the Ontario Heritage Act.

December 16, 2015 Page 6

As part of an independent NCC revitalization project at 7 Clarence Street and Tin House Court in the

Byward Market area, (NCC’s 2017 Confederation Pavilions for the celebrations around the 150th

anniversary of Confederation), some of the existing NCC tenants are being temporarily relocated. A

lawyer’s office is in negotiation with the NCC to move from another NCC property in the Byward Market,

to this location. The NCC considers this proposal an excellent opportunity to improve the heritage

property and enhance its contribution to Sussex Drive and Confederation Boulevard.

The NCC is applying for a zoning by-law amendment in order to expand the list of uses permitted to

include an office use, with a reduction in required parking. The building will have some modifications, no

other site works are proposed.

Planning Context

NCC Federal Planning Framework

The planning policy framework includes the NCC’s Federal Policy framework, and this proposal is subject

to the National Capital Act and the Federal Land Use and Design Approval (FLUDA) process also applies.

FLUDA has been issued in December 2015 for repair and maintenance work to the existing building and

the NCC Core Area Sector Plan Amendment is awaiting formal approvals to clarify the policy directions

for a mix of residential, diplomatic and office uses along this section of Confederation Boulevard (with

input from the municipal Zoning amendment process from Ottawa City Council).

NCC plans and policies include;

-Plan for Canada’s Capital, 1999 -Confederation Boulevard Guidelines, 2011 -Core Area Sector Plan, 2005: Section 4.3 Sussex Drive North and South -NCC Signage Guidelines (2012) -National Capital Act, Sections 10 and 12, subject to formal FLUDA process, including Federal Heritage Buildings Review Office (FHBRO) considerations.

Core Area Sector Plan

The Core Area Sector Plan, 2005, notes “Sussex Drive is an important segment of Confederation

Boulevard and one of the Capital’s most prestigious addresses.” The plan divides Sussex Drive into two

distinct character areas, “Sussex Drive North” (the setting of the Official Residences, embassies and the

Department of Foreign Affairs), and “Sussex Drive South” (a mixed-use area that features cultural

institutions, open spaces and links with the Byward Market Area).

The policy objectives in the plan support uses, programming and visitor experience opportunities that

are national or international in scope and contribute to a vibrant Capital realm. While the specific

tenant proposed for the site does not directly support these policy objectives, expanding the building’s

use beyond residential would enable future tenancy that aligns with a national/international scope.

December 16, 2015 Page 7

Federal Heritage Buildings Review Office (FHBRO)

The unit at 283 Sussex was evaluated by the Federal Heritage Buildings Review Office in 1986 and was

not recommended for designation. It did, however, receive high scores for architectural design and

site/setting. The building is formally recognized by the City of Ottawa as a Category 2 building in the

Lowertown Heritage Conservation District. Although changes have been made to the building over time,

its integrity and character have been maintained. The City of Ottawa Heritage Services section has

undertaken a heritage review of some of the proposed interventions and has endorsed those aspects of

the project.

The Lowertown Community Association, the Byward Market BIA, Heritage Ottawa and neighbors (NCC

tenants) have been consulted on the project and further discussions are planned with these groups to

discuss any potential concerns.

Municipal Heritage Status:

Identified as a Category 2 property in the Lowertown West Heritage Conservation District.

Excerpt from the Heritage Character Statement of Lowertown:

o “The Lowertown West Heritage Conservation District encompasses all of the remaining

older buildings of Lowertown west of King Edward, with the exception of the area now

designated as the Byward Market Heritage Conservation District. The District includes a

number of significant early institutional buildings… and a rich collection of residential

buildings which demonstrate the early history of Lowertown and its gradual evolution

through time. This evolution through time is a crucial characteristic of the area, and it

requires a recognition of the heritage importance of both the earliest buildings and later

buildings. It also requires an awareness that many of the incremental alterations which

have occurred to the earlier buildings reflect later historical and social trends which

contribute to the historical record of the neighbourhood. The history of Lowertown West

is the history of generations of Ottawa’s working people, both French and English

speaking, and the physical record of that social history, represented by both the

institutions and the residential buildings, is a major cultural resource for the City of

Ottawa.” (Lowertown West Heritage Conservation District Plan, 1993)

December 16, 2015 Page 8

Image 4- Excerpt NCC Core Area Sector Plan- Map 10

Conformity with the Provincial Policy Statement

The Provincial Policy Statement (“PPS”) sets out a vision for land use planning in the Province of Ontario

that encourages planning and development that is environmentally-sound, economically-strong and that

enhances quality of life.

Land planning policies are intended to promote efficient development patterns with an appropriate mix

of housing, employment, open spaces and multi-modal transportation which are appropriate for and

make efficient use of existing and planned infrastructure and public service facilities. The relevant

policies to the subject application are as follows.

Section 1.1.1 provides policy guidance for efficient development and land use patterns. This section

states: “Healthy, liveable and safe communities are sustained by:

a) promoting efficient development and land use patterns which sustain the financial well-being of the

Province and municipalities over the long term;

b) accommodating an appropriate range and mix of residential and other industrial and commercial,

institutional, recreation, park and open space, and other uses to meet long-term needs;

c) avoiding development and land use patterns which may cause environmental or public health and

safety concerns;

December 16, 2015 Page 9

d) avoiding development and land use patterns that would prevent the efficient expansion of

settlement areas in those areas which are adjacent or close to settlement areas;

e) promoting cost-effective development patterns and standards to minimize land consumption and

servicing costs;

f) improving accessibility for persons with disabilities and older persons by identifying, preventing and

removing land use barriers which restrict their full participation in society;

g) ensuring that necessary infrastructure, electricity generation facilities and transmission and

distribution systems, and public service facilities are or will be available to meet current and projected

needs.

The proposed zoning by-law amendment to permit additional local office uses conforms with Section

1.1.1 as it will contribute to an appropriate range and mix of land uses within a neighbourhood that is

well served by existing municipal services.

Section 1.1.3 aims to direct growth to settlement areas, like Ottawa’s urban areas, with land use

patterns based on the following:

a) “densities and a mix of land uses which:

1. efficiently use land and resources;

2. are appropriate for, and efficiently use, the infrastructure and public service facilities which are

planned or available, and avoid the need for their unjustified and/or uneconomical expansion;

3. minimize negative impacts to air quality and climate change, and promote energy efficiency;

4. support active transportation;

5. are transit-supportive, where transit is planned, exists or may be developed; and 6. are freight-

supportive; and

b) a range of uses and opportunities for intensification and redevelopment in accordance with the

criteria in policy 1.1.3.3, where this can be accommodated.”

In accordance with Section 1.1.3, the proposed zoning by-law amendment will permit the site to be fully

occupied (presently vacant) and repurpose the existing heritage structure along this arterial and local

street, in an area already well served by infrastructure and municipal services. The zoning by-law

amendment will allow for adaptive reuse of the existing structure in a manner that is appropriate and

compatible with the surrounding community and federal policy framework. Through the permission of

this additional use, the existing heritage structure can be better maintained, thereby reducing the risk of

any negative impacts from any longer term vacancies.

The office use proposed will promote continued investment in the building and will allow for the

continuation of existing heritage character elements. The occupancy of this unit is an important

cornerstone to the viability of this node along Confederation Boulevard. By permitting local office uses

on the subject property, the proposed zoning by-law amendment will support economic development

and competitiveness by providing space for small scale employment that is compatible with the

surrounding community. The existing infrastructure is more than adequate to accommodate the

additional permitted office use within the existing structure.

December 16, 2015 Page 10

In addition to Section 1.3, Section 1.7.1 provides policy guidance for how long term economic prosperity

should be supported, as follows:

a) “promoting opportunities for economic development and community investment-readiness;

b) optimizing the long-term availability and use of land, resources, infrastructure, electricity generation

facilities and transmission and distribution systems, and public service facilities;

c) maintaining and, where possible, enhancing the vitality and viability of downtowns, (tourist

destinations and scenic entries).

d) encouraging a sense of place, by promoting well-designed built form and cultural planning, and by

conserving features that help define character, including built heritage resources and cultural heritage

landscapes;

Conformity with the City of Ottawa Official Plan

The City of Ottawa Official Plan (“OP”) was adopted in 2003 and provides a vision for future growth of

the city and a policy framework to guide future development. The OP recently underwent a 5-year

review and Official Plan Amendment (OPA) No. 150 was approved by Council in December 2013. It is the

policies of OPA 150 that will be analyzed with respect to the subject application.

Section 3.6.1 – General Urban Area Designation

City of Ottawa Official Plan -Schedule B –General Urban Area

Image 5 - Schedule ‘B’ of the Official Plan, Urban Policy Plan

The Subject Property is designated ‘General Urban Area’ on Schedule B of the Official Plan. It is subject

to the policies of Section 3.6.1 for the General Urban Area designation (see Image above).

December 16, 2015 Page 11

The General Urban Area designation permits the development of “conveniently located employment,

retail, service, cultural, leisure, entertainment and institutional uses” in order to “facilitate the

development of complete and sustainable communities”. The proposed zoning by-law amendment

seeks to broaden the permitted uses on the site to include local commercial uses. All of the uses

proposed are permitted within the General Urban Area and recognize the importance of providing local

shops and services, particularly at the edge of residential neighborhoods, for use by neighboring

residents as opposed to separating land uses. This type of development allows communities to

transition into complete communities with shops and services located within walking distance of

residences.

As previously mentioned no site works are proposed and the existing structure complies with the height

and built form policies of the General Urban Area Designation. The Subject Property is located near the

corner of a local street and an Arterial Road (Sussex Drive) and is in proximity to local, cultural, retail,

commercial and residential uses. The building is suited for neighborhood office uses that will contribute

to the surrounding residential community and will provide a transition from the residential

neighborhood to the more intensive downtown mixed uses along this portion of Confederation

Boulevard.

Section 2.5.1 – Designing Ottawa and Section 4.11 -Urban Design and

Compatible Development

Sections 2.5.1 and 4.11 seek to ensure that new development incorporates a high quality of community

and urban design and is compatible with surrounding land uses.

Section 2.5.1 outlines design objectives to be evaluated with respect to the new development. Although

no site works are proposed, the zoning by-law amendment meets the design objectives in that it will

enhance the sense of community by allowing the building to host a more diverse economic base with a

distinct neighborhood identity. The building is already safe and accessible and is respectful of the

existing low-density character of the area. The zoning by-law amendment will allow the existing building

to adapt over time by allowing an additional local office use to be located on the Subject Property. The

zoning by-law amendment will encourage the repurposing of the building, thereby minimizing the

potential energy and materials that would be required to construct additional buildings. As per Policy 2

and based on the General Urban Area designation, the proposed development will not require review by

the Urban Design Review Panel.

In addition to the design objectives of Section 2.5.1, a development proponent must also implement the

policies of Section 4.11 into their proposal which make reference to objective criteria that can be used

to evaluate compatibility of development applications including height, bulk or mass, scale relationship,

building/lot relationships, and the distance between buildings. The OP aims to achieve compatibility

through appropriate land use designations and the corresponding Zoning By-law. The proposed

additional use for the site is compatible with surrounding development. The proposed use is not

December 16, 2015 Page 12

anticipated to generate additional traffic. The existing design and form of the building is not being

modified and it possesses an exterior residential character that is compatible with the neighboring uses.

Section 4.3 – Walking, Cycling, Transit, Roads and Parking Lots

According to Section 4.3 of OPA 150, “the City, when reviewing development applications, will assess

the adequacy of the transportation network to meet the needs of the proposed development.”

Schedule ‘E’ of the Official Plan, Urban Road Network

Image 6- City of Ottawa Official Plan -Schedule F- Arterial Road (Sussex)

As per Schedule ‘E’ of the Official Plan, the site fronts on a both a local

Street, Bolton Street, with access to an Arterial Road (Sussex Drive).

December 16, 2015 Page 13

Image 7- Schedule ‘I’ of the Official Plan, Multi--Use Pathways and Scenic Entry Routes (Urban) Network

Confederation Boulevard

Schedule ‘D’ of the Official Plan

The site is located within walking distance of transit on Rideau Street, the Byward Market and Sussex

Drive.

December 16, 2015 Page 14

Image 8- Schedule ‘C’ of the Official Plan, Primary Urban Cycling Network

Image 9- Transportation Master Plan, Map 1, - Cycling Network- Primary Urban

December 16, 2015 Page 15

Ottawa Cycling Plan and Confederation Boulevard Policies

The City and NCC place importance on improving cycling infrastructure and connectivity between

Ottawa and Gatineau, and on providing visitors and residents with improved opportunities to explore

the Capital’s shorelines and attractions. The portion of Confederation Boulevard/ Sussex Drive abutting

the Subject Property is a designated on road cycling route. As identified on the OP Schedules, the

property is well served by a transportation network for vehicles, pedestrians and cyclists which is more

than adequate to support the needs of the proposed office use.

City of Ottawa Zoning By-law 2008-250

Existing zoning R4S {1340]- Residential Fourth Density Zone, Sub zone S, exception No. 1340. Heritage

Overlay

Image 10- Zoning Schedule

Source- GeoOttawa, zoning layer

December 16, 2015 Page 16

The purpose of the R4 – Residential Fourth Density Zone is to:

(1) “restrict the building form to detached dwellings in areas designated as General Urban Area in the

Official Plan;

(2) allow a number of other residential uses to provide additional housing choices within detached

dwelling residential areas;

(3) permit ancillary uses to the principal residential use to allow residents to work at home;

(4) regulate development in a manner that is compatible with existing land use patterns so that the

detached dwelling, residential character of a neighborhood is maintained; and

(5) permit different development standards, identified in the “S” subzone, which promote efficient land

use and compact form while permitting a variety of design approaches.”

Existing Zoning EXCERPT

R4S [1340], Heritage Overlay applies and the permitted uses include;

apartment dwelling, bed and breakfast, community garden converted dwelling, diplomatic mission, duplex dwelling, group home, home-based business, home-based daycare, linked-detached dwelling,

park planned unit development, retirement home, converted retirement home rooming house, secondary dwelling unit, semi-detached dwelling, stacked dwelling, three-unit dwelling townhouse dwelling,

December 16, 2015 Page 17

TABLE 162A – R4 SUBZONE PROVISONS (Subject to By-law 2015-228) I S

ub

-Zo

ne

II

Pro

hib

ited

Uses

III

Pri

nc

ipal D

wellin

g

Typ

es

IV

Min

imu

m L

ot

Wid

th

(m)

V

Min

imu

m L

ot

Are

a

(m2)

VI

Maxim

um

Bu

ild

ing

Heig

ht

(m)

VII

Min

imu

m F

ron

t Y

ard

Setb

ac

k (

m)

VIII

Min

imu

m C

orn

er

Sid

e Y

ard

Setb

ack

(m)

IX

Min

imu

m R

ear

Ya

rd

Setb

ac

k (

m)

X

Min

imu

m In

teri

or

Sid

e Y

ard

Setb

ack

(m)

XI

En

d-n

ote

s (

see

Tab

le

162B

)

S None Planned

unit

developme

nt

na 1,400 as per

dwellin

g type

3 3 varies

1

varies

1

1, 17

Apartment

dwelling,

low rise,

Stacked

15 450 14.5

(By-law

2014-

289)

3 3 varies

3

varies

3

3, 17

Three Unit 12 360 11 3 3 varies

4

1.2 4, 17

Detached,

Duplex,

Linked-

detached

9 270 11 3 3 varies

4

varies

8

4, 8,

17

Townhouse

,

Semi-

detached

5.6 165 11 3 3 varies

4

1.2 4, 17

Urban Exception 1340

I

Exception

Number

II

Applicable

Zones

Exception Provisions

III

Additional Land

Uses Permitted

IV

Land Uses

Prohibited

V

Provisions

1340

(By-law

2009-302)

(By-law

2008-

462)(By-

law 2008-

386)

Multiple - Clause 125 (1) (d) for Group

Home use does not apply

December 16, 2015 Page 18

The existing R4S [1340] zone does not permit office use on this site. The application is to permit the

addition of an office use (single use lawyer’s office) to the existing permitted uses and reduction of the

required parking to zero. This site benefits from a variety of transportation mode options, including,

walking, cycling, transit and close proximity to public parking in the By-Ward market district. There also

exists a private shared parking area for NCC tenants at the rear of this building.

Proposed Zoning

It is proposed to retain the existing exception number. Proposed revisions to exception 1340 are as

follows;

- Office use to be added to “additional land uses permitted” column,

- Required parking to be reduced to zero, no additional parking required.

Summary and Conclusions

The NCC Federal Planning Framework and Core Area Sector Plan amendment, Provincial Policy

Statement, the City of Ottawa Official Plan and site context support a rezoning of the subject property

that will also permit an office use and the required parking to be the existing 2 spaces.

-The application for zoning by-law amendment recommends a single additional permitted use (office),

which is permitted by the General Urban Area Official Plan designation. The additional use will broaden

the set of uses permitted, thereby making efficient use of the land and available infrastructure as well as

contributing to a strong and diversified economic base.

- The proposed interior fit up and use is compatible with the surrounding community context and

respectful of the surrounding residential neighborhood.

-The additional use will take advantage of the site location on an arterial road, as well as its proximity to

transit routes.

- The property is well served by pedestrian and cycling linkages that will encourage modes of active

transportation for access to the site.

- An expanded use will enable this site to more easily adapt and continue to be a viable heritage

resource.

The requested Zoning By-law Amendment represents good land use planning and is appropriate for the site based on the following reasons:

- The property is within the NCC federal leasing portfolio and the proposed lease duration is 5 years. After which the site has the option of returning to the residential portfolio.

- The proposal has been approved under the federal land use and design approval process, Section 10 and 12 of the National Capital Act. The proposal complies with the federal planning framework, Plan for Canada’s Capital, Core Area Sector Plan and the NCC’s Confederation Boulevard guidelines (Sussex Drive).

December 16, 2015 Page 19

- The proposed addition of an office use is consistent with the 2014 Provincial Policy Statement policies with respect to promoting the efficient use of land, existing infrastructure and existing public facilities, as well as promoting cost-effective development patterns and standards to minimize land consumption and servicing costs. It will encourage the inclusion of an appropriate range and mix of land uses and employment opportunities to meet long-term needs. The proposed development will also help provide opportunities for economic development through diversifying the economic base.

- The proposed development will add to the vitality of lands along Confederation Boulevard and in close proximity to the Byward Market

- The proposed development conforms to the City’s Official Plan goals, objectives and policies for General Urban Area, particularly in promoting and support economic development and the local community. The site will take advantage of its proximity to nearby transit, public parking and amenities. The proposed development will introduce a use that is in keeping with the General Urban Area designation, within the existing fabric and unit pattern and scale of surrounding development.

- The proposed development conforms to the City’s compatibility criteria established in the Official Plan.

- The proposed use meets the general purpose and intent of the Zoning By-law.

In conclusion, the proposal to add an office use as a permitted use to Urban Exception [1340] is supported by the Federal Planning Framework, is subject to the Federal Land Use and Design Approval process under the National Capital Act and the City Official Plan policies for the General Urban Area. The NCC supports the application for Zoning By-law Amendment as it is appropriate and represents sound land use planning. Prepared by: Christopher Hetherington Chief, Real Estate Management National Capital Commission

December 16, 2015 Page 20

Appendix 1- NCC Site location sketch