HomeMy WebLinkAboutInformation Report 05-15 ca 00 = Information Report to
Planning & Development Committee
PICKERIN
Report Number: 05-15
Date: September 14, 2015
From: Catherine Rose, MCIP, RPP
Chief Planner
Subject: Official Plan Amendment Application OPA 15-001/P
Zoning By-law Amendment Application A 6/15
Duffin's Point Inc.
Concession 3, Part Lot 19, 40R-2548, Part 1 and 40R-26764, Part 1
(2460 and 2470 Brock Road)
1. Purpose of this Report
The purpose of this report is to provide preliminary information regarding
applications for Official Plan Amendment and Zoning By-law Amendment,
submitted by Duffin's Point Inc., to facilitate a retail/commercial development
within the Duffin Heights Neighbourhood. This report contains general
information on the applicable Official Plan, Zoning By-law and other related
policies, and identifies matters raised to date.
This report is intended to assist members of the public and other interested
stakeholders to understand the proposal. Planning & Development Committee
will hear public delegations on the applications, ask questions of clarification and
identify any planning issues. This report is for information and no decisions on
these applications are being made at this time. Staff will bring forward a
recommendation report for consideration by the Planning & Development
Committee upon completion of a comprehensive evaluation of the proposal.
2. Property Location and Description
The subject lands are located on the west side of Brock Road, north of the Hydro
Corridor in the Duffin Heights Neighbourhood (see Location Map, Attachment
#1). The subject lands comprise of two properties, which have a combined area
of approximately 3.2 hectares, with approximately 180 metres of frontage along
Brock Road. Clusters of existing trees and hedgerows are scattered throughout
the site, which are proposed to be removed to accommodate the development.
Surrounding land uses include:
north - vacant lands owned by the City of Pickering, which are designated
as "Mixed Use Areas — Mixed Corridors" within the City's Official
Plan
south - a Hydro Corridor and further south is the Third Concession Road
east - across Brock Road are lands owned by Pistritto's Farms and
Greenhouses, which are designated as "Mixed Use Areas — Mixed
Corridors" within the City's Official Plan
Information Report No. 05 15
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- vacant lands that were recently acquired by Stonepay from the
City, which are designated as "Urban Residential Areas - Medium
Density Areas" within the City's Official Plan; a portion of these
lands are to be developed as a stormwater management pond
3. Applicant's Proposal
The applicant has submitted applications for approval of an Official Plan
Amendment and Zoning By-law Amendment to facilitate a retail/commercial
development.
The overall proposal includes a retail/commercial development with a total gross
floor area of 13,700 square metres distributed over 7 single-tenant and multi-
tenant buildings (see Submitted Concept Plan, Attachment#2). The applicant is
proposing a broad range of retail/commercial uses, including but not limited to,
commercial fitness/recreational centre, personal service, day care centre, financial
institution, office, medical office, restaurant, retail store and supermarket, as well
as high density residential uses. The high density residential uses are anticipated
to be part of a future redevelopment plan for the subject lands.
The table below summarizes the proposed gross floor area, number of functional
storeys and building massing, and proposed uses for each building:
Proposed Gross Floor Number of Building
Building Area
Functional Massing Proposed Uses
Food Store Retail/
Building 'A' 7,021.8 m2 2 storeys 3 storey Commercial
massing Fitness Centre
Retail
Building `B' 1,095.6 m2 1 storey 2 storey Retail
massing
Building `C' 3,903.7 m2 3 storeys 4 storey Retail/Office
massing
m2 2 storey
Building `D' 580.6 m 1 storey Retail
massing
Building `E' 394.8 m2 1 storey 2 storey Financial
massing Institution
Building 'E1' 2 m2 1 storey 2 storey Retail
massing
2 2 storey Restaurant with
Building `F' 371.6 m 1 storey Drive-through
massing facility
Total GFA 13,786.1 m2
Information Report No. 05-15 Page 3
• Buildings 'B' and 'D' will be designed and constructed such that a functional
second floor can be added should the demand evolve for more second floor
commercial space
In conjunction with the proposed development, the applicant will be required to
construct the section of Valley Farm Road that will abut the north limits of the
subject lands. This parcel is currently owned by the City of Pickering. The
extension of Valley Farm Road has been identified as a Type C Arterial Road,
which is to be designed to carry lower volumes of traffic, at slower speeds than
Type A and Type B Arterial Roads; provide access to properties; and generally
have a right-of-way width ranging from 26 to 30 metres. The concept plan
illustrates a full-movement access to the site from the extension of Valley Farm
Road and a right-in/right-out access to the site from Brock Road, approximately
130 metres south of the future signalized Valley Farm Road and Brock Road
intersection.
In support of the proposal, a total of 686 parking spaces are to be provided
on-site and on the adjacent Hydro Corridor lands:
• 402 parking spaces provided on the subject lands
• 284 parking spaces to be provided within the Hydro Corridor, to be leased by
the applicant from Hydro One
The development will be subject to site plan approval.
3.1 Requested Amendments to the Official Plan and Zoning By-law
To facilitate the proposed retail/commercial development, the applicant is
requesting site specific amendments to certain policies of the City's Official Plan
and to rezone the subject lands to a mixed use zone category. The following
chart outlines the requested amendments:
Current Official Plan Policy Requested Official Plan Amendment
require all buildings within land
designated "Mixed Corridor" to be
multi-storey [Section 11.17(h)(i)]
to allow for single-storey commercial
require commercial development to buildings with a minimum 2 storey
provide a second-storey functional massing
floor with 3 storey massing
[Section 11.17(h)(ii)]
not permit the establishment of
drive-through facilities, either to permit a drive-through facility, in
stand-alone or in combination with combination with a permitted use
other uses [Section 11.17(h)(vii)]
Information Report No. 05-15 Page 4
The applicant is requesting the following site specific amendments to the Zoning
pp q g
By-law:
Current Zoning Requested Amendment
Mixed Use Zone — "MU" with site
specific zoning to permit a broad range
Rural Agricultural Zone — "A", permits of retail/commercial uses and high
a detached dwelling density residential use, as well as
implement appropriate performance
standards
minimum required off-street parking to permit required parking spaces to be
for any lot in any zone shall be provided on the adjacent Hydro One
provided on the same lot lands
(Section 5.19.1)
4. Policy Framework
4.1 Durham Regional Official Plan
The subject lands are designated as "Living Areas" with a "Regional Corridor"
overlay in the Durham Regional Official Plan. Lands within this designation are
predominately intended for housing purposes. In addition, limited office
development and limited retailing of goods and services, in appropriate locations,
as components of mixed use developments, are permitted. In the consideration
of development proposals, regard shall be had to achieving a compact urban
form, including intensive residential, office, retail and service, and mixed uses
along arterial roads, in conjunction with present and potential transit facilities.
Regional Corridors shall be planned and developed in accordance with the
underlying land use designation, as higher density mixed-use areas, supporting
higher order transit services and pedestrian oriented design. Regional Corridors
are intended to support an overall, long-term density target of at least 60 residential
units per gross hectare and a floor-space index (FSI) of 2.5, with a wide variety of
building forms, generally mid-rise in height, with some higher buildings, as
detailed in municipal official plans.
Brock.Road is designated as a Type A Arterial Road and a Transit Spine in the
Durham Regional Official Plan. Type A Arterial Roads are designed to carry
large volumes of traffic at moderate to high speeds, have some access
restrictions and generally have a right-of-way width ranging from 36 to 50 metres.
Transit Spines are recognized corridors where higher levels of transit service is to
be encouraged.
The applications will be assessed against the policies and provisions of the
Regional Official Plan during the further processing of the applications.
Information Report No. 05-15 Page 5
4.2 Pickering Official Plan
The subject lands are located within the Duffin Heights Neighbourhood and are
designated "Mixed Use Areas — Mixed Corridors". Mixed Use Areas are
recognized as lands that have or are intended to have the widest variety of uses
and highest levels of activity in the City. The Mixed Corridors designation is
intended primarily for residential, retail, community, cultural and recreational uses
at a scale serving the community and provides for a range of commercial uses
and residential development at a density range of over 30 units up to and
including 140 units per net hectare and a maximum floor space index (FSI) up to
and including 2.5 FSI. The proposed development has a floor space index of 0.43.
An Official Plan Amendment is required to permit single-storey commercial
buildings and a drive-through facility.
4.3 Duffin Heights Neighbourhood Policies
Policies for the Mixed Use Areas — Mixed Corridors designation in this
neighbourhood require the following:
• new development to provide a strong and identifiable urban image by
establishing buildings closer to the street, providing safe and convenient
pedestrian access and requiring all buildings to be multi-storey
• commercial development to provide a second-storey functional floor space
with three-storey massing
• the development of future roads adjacent to the Mixed Corridor designation
on both sides of Brock Road to provide alternative access, potential transit
routes, and boundaries for the land use designations; and on the west side of
Brock Road, one of the future roads is the extension of Valley Farm Road
The Mixed Use Areas — Mixed Corridors designation in the Duffin Heights
Neighbourhood does not does not permit the establishment of drive-through
facilities, either stand-alone or in combination with other uses.
The subject lands are located at the intersection of Brock Road and the extension
of Valley Farm Road, which has been identified as a Focal Point within the Duffin
Heights Neighbourhood. Development within Focal Points is to contribute to the
prominence of the intersection by requiring:
• initial development on each property to occur at the corner of the intersection
• the inclusion of appropriate provisions in the implementing zoning by-law to
address such matters as the location and extent of build-to-zones, mix of
permitted uses, and required building articulation
• the use of other site development features such as building design, building
material, architectural features or structures, landscaping, public art and
public realm enhancements such as squares or landscaped seating areas to
help achieve focal point prominence, and
• all buildings to be a minimum of three functional storeys with four storey
massing
Information Report No. 05-15 Page 6
The Duffin Heights Neighbourhood Policies also require landowners to:
• submit a Functional Servicing and Stormwater Management Report that
demonstrates how the proposal is consistent with the Duffin Heights
Environmental Servicing Plan to the satisfaction of the Region, City and the
Toronto and Region Conservation Authority
• become a party to the cost sharing agreement for Duffin Heights or receive an
acknowledgement from the Trustee of the Duffin Heights Landowners Group
Inc. that the benefitting landowner has made satisfactory arrangements to pay
its proportion of the shared development cost
The applications will be assessed against the policies and provisions of the
Pickering Official Plan during the further processing of the applications.
4.4 Duffin Heights Neighbourhood Development Guidelines
The intent of the Duffin Heights Neighbourhood Development Guidelines is to
further the objectives of the Official Plan and to achieve the following design
objectives for the neighbourhood:
• to create a streetscape which is attractive, safe and encourages social
interaction within the neighbourhood
• to establish a central focus to the neighbourhood which is safe, lively and
attractive
• to provide a diversity of uses to support neighbourhood and City functions
The subject lands are delineated as Brock Road Streetscape on the Tertiary
Plan, which encourages higher density, mid-rise and mixed use buildings with a
high level of architectural quality. The Tertiary Plan also identifies the
intersection of Brock Road and the extension of Valley Farm Road as a focal
point that will require special design considerations through the use of
appropriate building heights, massing, architectural features and landscaping in
order to establish a prominent image at these intersections.
The guidelines for lands within the Brock Road Streetscape include the following:
• the creation of outdoor public space is encouraged at focal points
• properties fronting Brock Road shall be required to provide a built form across
a minimum of 60 percent of the lot frontage, and all primary frontages of
buildings shall front Brock Road and provide pedestrian access directly to the
sidewalk and multi-use trail along Brock Road
• multiple pedestrian linkages shall be provided to commercial development,
including direct sidewalk connections at intersections and through mid-block
developments
• non-residential floors facades are encouraged to be at least 33 percent
transparent on all the floors, and must be at least 60 percent transparent on •
the ground floor, to encourage pedestrian interaction with retail and
commercial activities
Information Report No. 05-15 Page 7
• large walls visible from Brock Road shall be articulated through various
treatments such as offsets in massing; blank façades will not be permitted
facing Brock Road or any street
• lands within the Hydro Corridor are encouraged to be utilized for parking
areas to serve abutting development
The applications will be assessed against the Duffin Heights Neighbourhood
Development Guidelines during the further processing of the applications.
4.5 Zoning By-law 3037
The subject lands are currently zoned "A" — Rural Agricultural Zone under
Restricted Area Zoning By-law 3037, as amended, which currently permits a
detached dwelling, home occupation, and various agricultural and related uses.
An amendment to the zoning by-law is required to facilitate the development of
the subject lands for commercial uses.
5. Comments Received
5.1 Resident Comments
• No comments received
5.2 Agency Comments
Region of Durham
• the Planning Department advises that the proposed commercial development,
with predominantly one-storey buildings and an FSI of 0.43, is not consistent
with the policy intent of the Regional Official Plan
• Brock Road is a key corridor within the City of Pickering, linking Pickering's
City Centre with the Seaton Community and Highway 407
• the City's Official Plan policies for the Duffin Heights neighbourhood, which
came into effect in 2009, recognized the importance of Brock Road as a
Mixed Use Corridor, and the Region has concerns regarding the proposed
site-specific amendments
• strongly encourages the City to maintain building height requirements on the
subject site and explore options to provide further intensification on the site
given the proposal falls well below the 2.5 FSI required in the Regional
Official Plan
• Regional Official Plan policies state that land uses adjacent to Type A Arterial
Roads and Transit Spines, such as Brock Road, shall provide for
complementary higher density and mixed use development and facilities
which support non-auto modes of travel
• the applications are subject to the 2014 Provincial Policy Statement (PPS),
which encourages developments within settlement areas that support a mix of
land uses that efficiently use land and resources, are appropriate for, and
efficiently use, available infrastructure, and are transit-supportive
• the PPS also directs municipalities to develop appropriate development
standards which facilitate intensification, redevelopment and compact form,
while avoiding or mitigating risks to public health and safety
Information Report No. 05-15 Page 8
• the concept of mixed-use commercial development is consistent with the
PPS; however, the proposal would benefit from an intensification of uses and
a more compact form
• the proposed development generally conforms to the Growth Plan by
facilitating the redevelopment within the built boundary; however, the proposal
falls short in the area of intensification and compact form and would benefit
from an intensification of uses and a more compact form
• the submitted Phase 1 Environmental Site Assessment (ESA) identified that
potentially contaminating activities have occurred on the site and
recommended that a Phase 2 ESA be undertaken
• a Phase 2 ESA must be submitted to the Region for review; pending the
results of this study, a Record of Site Condition submitted to the Ministry of
Environment and Climate Change (MOECC) may be required
• due to the applicant's long-term intent for high density residential use, the
Phase 2 ESA and any subsequent remediation that may be required should
address the MOECC requirements for residential land uses
• a Reliance Letter and Certificate of Insurance is required for the ESA
• the submitted Stage 1 Archaeological Assessment identified the need for a
Stage 2 Archaeological Assessment, and no land disturbing activities should
take place prior to the Ministry reviewing these reports and indicating there
are no archaeological concerns
• the submitted Noise Assessment addresses the potential noise impact of the
stationary noise sources associated with the proposed commercial
development on adjacent residential uses; the mitigation measures
recommended in the submitted Noise Assessment must be met
• prior to any residential development being permitted on-site, a detailed Noise
Impact Assessment will be required
• the applicant must provide a phasing plan, illustrating the potential location for
high density residential uses, including the proposed commercial buildings to
be demolished
• the Region of Durham is the approval authority for the Official Plan
Amendment, in accordance with the Procedures for Area Municipal Official
Plans and Amendments
Toronto and Region Conservation Authority
• a portion of the subject lands was accounted for in the design of Stowmwater
Management Pond #4 (SWMP#4); however, additional lands in the Hydro
Corridor have been added; the applicant is required to demonstrate how
drainage from the additional lands will be addressed
• a conceptual level of information on the location, size and detail for the Low
Impact Development treatment is required
• an Erosion and Sediment Control Plan is required
• the Hydro Corridor south of the proposed development is an important
corridor linking the three main tributaries of the Duffins Creek, and
encroachment of this development into the Hydro Corridor in this area will
further restrict wildlife passage between Ganatskiagon Creek and Urfe Creek
Information Report No. 05-15 Page 9
5.3 City Departments Comments
Engineering & Public Works
• a Development Agreement will be required for all off-site works including, but
not limited to, the construction of Valley Farm Road from the intersection of
Brock Road to the west limit of the property
• the proposed southbound right turn queuing lane along Brock Road has
reduced the width of the boulevard; this must be further reviewed to ensure
that there is sufficient space for the installation of all required infrastructure
• tree compensation will be required for the loss of existing tree canopy
• the submitted Functional Servicing and Stormwater Management Report
recommended that SWMP#4 be redesigned to accommodate the proposed
development; however, SWMP#4 is currently under construction
• an updated Functional Servicing and Stormwater Management Report will be
required to ensure necessary controls can be achieved without revisions to
the approved design of the SWMP#4
• the erosion criteria outlined in the Duffin Heights Environmental Servicing
Plan must be applied to the site; calculations must be provided to the City
demonstrating how the required erosion control for the site area will be
achieved on the site
• an updated water balance strategy must be provided based on the infiltration
targets provided in the Duffin Heights Environmental Servicing Plan
• a functional design of the proposed infiltration systems must be provided for
review
6. Planning & Design Section Comments
The following matters have been identified by staff for further review and
consideration:
• ensuring conformity with the intensification policies of the Provincial Policy
Statement, the Growth Plan for the Greater Golden Horseshoe, and the
Regional Official Plan
• evaluating the merits of the requested official plan amendment to eliminate
second-storey functional floor space and permit a drive-through facility
associated with a permitted use
• ensuring conformity with the intent of the remaining City's Official Plan and
Duffin Heights Neighbourhood policies
• ensuring the site layout and design of the proposal addresses the goals and
objectives of the Duffin Heights Neighbourhood Development Guidelines with
respect to building siting, building heights and massing, architectural features
and materials, landscaping, outdoor open space, transparent glazing and
pedestrian connectivity within and external to the site
• ensuring an appropriate integration with the residential lands to the west of
the subject lands
• ensuring sufficient parking is provided to support the mix of uses being
proposed
Information Report No. 05-15 Page 10
• reviewing the appropriateness of providing an off-site parking area within the
Hydro Corridor and the impact on the natural features and wildlife passage
between Ganatskiagon Creek and Urfe Creek
• require the submission of a phasing plan to demonstrate the location of future
high density residential development on the subject lands
• ensuring satisfactory arrangements have been made regarding the
construction of Valley Farm Road, including financial contributions to the
signalized intersection at Brock Road and Valley Farm Road, ahead of
Regional warrants being met
• ensuring that an updated Functional Servicing and Stormwater Management
Report is received that is consistent with the Council endorsed Duffin Heights
Environmental Servicing Plan to the satisfaction of the Region, City and the
Toronto and Region Conservation Authority
• submission of an ESA Phase 2 and a Stage 2 Archaeological Assessment to
the satisfaction of the Region of Durham
• ensuring that the proposed development contains appropriate sustainable
development components
• ensuring that required technical submissions and reports meet City standards
The City Development Department will conclude its position on the applications
after it has received and assessed comments from the circulated department,
agencies and public.
7. Information Received
Full scale copies of the plans and studies listed below are available for viewing at
the offices of the City of Pickering, City Development Department:
• Archaeological Assessment
• Environmental Noise Assessment
• Functional Servicing and Stormwater Management Report
• Parking Justification
• Phase One Environmental Site Assessment
• Planning Rationale/Sustainable Development Guidelines Report
• Retail Market Demand and Impact Analysis
• Soil Report
• Traffic Impact Study
• Tree Inventory and Assessment Report
8. Procedural Information
8.1 General
• written comments regarding this proposal should be directed to the City
Development Department
• oral comments may be made at the Public Information Meeting
• all comments received will be noted and used as input to a Planning Report
prepared by the City Development Department for a subsequent meeting of
Council or a Committee of Council
Information Report No. 05-15 Page 11
• any member of the public who wishes to reserve the option to appeal
Council's decision must provide comments to the City before Council adopts
any by-law for this proposal
_ • any member of the public who wishes to be notified of Pickering Council's
decision regarding this proposal must request such in writing to the City Clerk;
any member of the public who wishes to be notified of the Region of Durham's
decision of this proposal must request such in writing to the Regional Clerk
9. Owner/Applicant Information
• the owners of the subject lands are Duffin's Point Inc. who are represented by
GHD Inc.
Attachments
1. Location Map
2. Submitted Concept Plan
Prepared By: Approved/Endorsed By:
. 14/6 4 ft ' /(;---...___
Melissa Markham, MCIP, RPP Catherine Rose, MCIP, RPP
Principal Planner— Development Review Chief Planner
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Nilesh Surti, MCIP, RPP
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Manager, Development Review &
Urban Design
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Attachments
Date of Report: August 27, 2015
Copy: Director, City Development .
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City Development 40R-26764, Part 1 (2460 and 2470 Brock Road) DATE:Aug 6,2015
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City Development 40R-26764, Part 1 (2460 and 2470 Brock Road)
Department FULL SCALE COPIES OF THIS PLAN ARE AVAILABLE FOR VIEWING AT THE CITY OF PICKERING
CITY DEVELOPMENT DEPARTMENT. DATE:Aug. 6,2015