HomeMy WebLinkAboutPLN 11-16 Ca/ 00 =_; Report to
Planning & Development Committee
PI KERI Report Number: PLN 11-16
Date: June 20, 2016
From: Thomas Melymuk
Director, City Development
Subject: Official Plan Amendment Application OPA 15-001/P
Zoning By-law Amendment Application A 6/15
Duffins Point Inc.
Part Lot 19, Concession 3, Part 1, 40R-2548 and Part 1, 40R-26764
(2460 and 2470 Brock Road)
Recommendations:
1. That Official Plan Amendment Application OPA 15-001/P, submitted by Duffins
Point Inc., on lands being Part Lot 19, Concession 3, Part 1, 40R-2548 and Part 1,
40R-26764, to permit a single-storey commercial building with a drive-through
facility, be refused; and
2. That Zoning By-law Amendment Application A 6/15, submitted by Duffins
Point Inc., on lands being Part Lot 19, Concession 3, Part 1, 40R-2548 and Part 1,
40R-26764, to facilitate a retail/commercial development, be endorsed subject to
the provisions contained in Appendix Ito Report PLN 11-16, and that staff be
authorized to finalize and forward an implementing Zoning By-law to Council for
enactment.
Executive Summary: The subject lands are located on the west side of Brock Road,
north of the Hydro Corridor in the Duffin Heights Neighbourhood. The owner, Duffins
Point Inc., has requested an Official Plan Amendment to permit a single-storey
commercial building with a drive-through facility and a Zoning By-law Amendment to
facilitate the development of a retail/commercial centre.
The Duffin Heights Neighbourhood Policies state that, despite Mixed Use Areas having
the widest variety of use and highest levels of activities in the City, drive-through
facilities, either stand-alone or in combination with other uses, are not permitted. Staff
are of the opinion that the requested Official Plan Amendment Application to permit a
single-storey commercial building with a drive-through facility is not in keeping with the
required intensification along a Regional Corridor or the vision for the Duffin Heights
Neighbourhood. Staff recommends that the application be refused.
The revised proposal, excluding the single-storey commercial building with a drive-
through facility, is consistent with the Duffin Heights Neighbourhood Policies and design
objectives of the Duffin Heights Neighbourhood Development Guidelines. The
proposed development provides appropriate pedestrian-related uses and massing along
Brock Road and will create a focal point at the Brock Road/Valley Farm Road
intersection. The proposed buildings appropriately frame the intersection and create a
gateway into the community from the south.
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15— Duffins Point Inc. Page 2
The introduction of a commercial development in the mixed use corridor will help
achieve the goal of a diversified, transit-oriented and pedestrian-friendly neighbourhood.
The zoning by-law amendment application, excluding the single-storey commercial
building with a drive-through facility, is recommended for approval.
Financial Implications: No direct costs to the City are anticipated as a result of the
proposed development.
1. Background
1.1 Property 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 two properties, which have a combined area of
approximately 3.2 hectares, with approximately 180 metres of frontage along
Brock Road. The applicant is proposing to lease approximately 0.8 of a hectare
of land within the hydro corridor immediately to the south to provide some of the
required parking spaces to support the proposal. The owner has received
approval from Infrastructure Ontario to permit parking within the hydro corridor
lands.
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 and
a "Type C Arterial Road" (Valley Farm Road extension)
south — a Hydro Corridor and further south is 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
west — vacant lands owned by Stonepay, 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
1.2 Applicant's Proposal
The applicant proposes to develop the subject lands for a retail/commercial
centre with a broad range of uses, including but not limited to, commercial
fitness/recreational centre, day care centre, financial institution, medical office,
office, personal service shop, restaurant, retail store and supermarket.
High density residential uses are anticipated to be part of phase 2 of the
redevelopment of the subject lands, which could include two 20-storey residential
apartment buildings.
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15— Duffins Point Inc. Page 3
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,
south of the future signalized Valley Farm Road and Brock Road intersection. To
accommodate the proposed access from Brock Road, a southbound right-turn
lane is proposed within the regional boulevard. The applicant also proposes the
construction of Valley Farm Road from the intersection of Brock Road and Valley
Farm Road to the west limits of the subject property.
In response to comments from the City and the Toronto and Region Conservation
Authority (TRCA), the applicant submitted a revised concept plan (see Original
Submitted Concept Plan and Revised Submitted Concept Plan, Attachments #2
and #3). Specifically, the key changes to the proposal include:
• a reduction in the number of single storey buildings from 5 buildings to 1
building
• an increase in the total gross floor area from 13,786 square metres to
14,025 square metres
• a reduction in the amount of paved parking area within the hydro corridor
from 1.2 hectares to 0.8 of a hectare
• a reduction in the total number of parking spaces being provided on the.
subject lands and within the hydro corridor from 686 parking spaces to
560 parking spaces
2. Comments Received
2.1 Public comments from the September 14, 2015 Statutory Public Information
Meeting and in written submission
At the September 14, 2015 Statutory Public Information Meeting, two residents
attended the meeting to learn more about the proposal and one resident
submitted written comments in advance of the meeting.
The concerns identified are as follows:
• ensure that the design of the commercial development will not be just another
big box development
• ensure that the widening and construction of Brock Road will be completed
•
prior to the construction of the proposed retail/commercial centre
2.2 City Departments &Agency Comments
2.2.1 Region of Durham
• subject lands are designated "Living Areas" within the "Regional Corridor"
overlay in the Regional Official Plan
• expressed concern with the low intensity development proposed for Phase 1,
along a Regional Corridor; however recognizing the long-term intensification
proposed in Phase 2, which includes two 20-storey residential buildings and
the potential for other higher density uses along Brock Road, the proposal is
in keeping with the Regional Official Plan and is exempt from Regional
approval
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15— Duffins Point Inc. Page 4
• the Phase 2 Environmental Site Assessment (ESA) conducted for the subject
lands indicated that the site meets the standards for both commercial and
residential property uses and no further environmental work is required
• the submitted Reliance Letter and Certificate of Insurance are satisfactory to
the Region
• a Stage 2 Archaeological Assessment, dated June 2015, indicated that no
archaeological resources were identified on the subject lands; the report has
been sent to the Ministry of Tourism, Culture and Sport
• Regional Works is generally satisfied that the traffic generated by the
proposed development can be accommodated with the improved road
system that has been planned for the area
• Regional Works has identified various technical matters that will need to be
further addressed including: the relocation of the proposed right-in/right-out
access further south on Brock Road; the design of the southbound right turn
lane; signal warrant calculations to determine the timing for the signalization
of the Brock RoadNalley Farm Road intersection; and location and
infrastructure required for transit stops along Brock Road
• the proposed development is within the Duffin Heights sanitary sewer
pumping station drainage area; the estimated design flow falls within the
allowable range for the property
• Regional municipal services will be installed by the applicant upon execution
of a servicing agreement between the applicant and the Region
2.2.2 Toronto and Region Conservation Authority
• advises that all parking to support the development should be located on the
subject lands to maintain a wildlife corridor within the hydro lands
• any proposed low impact development measures must address the infiltration
targets in addition to the 5mm target for on-site retention
2.2.3 City of Pickering Engineering & Public Works
• the applicant will be required to enter into a development agreement with the
City for all off-site works, including the construction of Valley Farm Road from
the intersection of Brock Road to the west limit of the property; the City will
cost share a portion of the works associated with the oversizing of the road
from a local road to an arterial road
• the southbound right-turn lane has significantly reduced the width of the
boulevard on the west side of Brock Road; this must be further reviewed to
ensure that there is sufficient space for the installation of all required
infrastructure and boulevard trees
• the proposed functional design for stormwater management on the site is not
acceptable to the City; new modelling will be required through the Site Plan
Approval process
• compensation for loss of tree canopy will required
• detail drawings regarding landscaping, stormwater management and grading
will be reviewed through the site plan approval process
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 5
3. Planning Analysis
3.1 Proposed Official Plan Amendment to allow a single-storey building with an
associated drive-through facility be refused
The applicant's original Official Plan Amendment request was to allow five
single-storey buildings and a drive-through facility. Through discussions with City
staff, the applicant has consolidated a number of buildings reducing the number
of single-storey buildings to one. The applicant has combined Buildings B, C and
D into a single 3-storey building. Buildings E and El have been combined into a
single 2-storey building. Building F remains as a single-storey building with an
associated drive-through facility. The revised concept plan still requires an
Official Plan Amendment to permit the single-storey building with an associated
drive-through facility.
The subject lands are designated as "Mixed Use Areas— Mixed Corridors" in the
Official Plan. Lands within this designation are to be designed and developed in
a manner that is consistent with the Official Plan, Duffin Heights Neighourhood
policies and the development guidelines for the Duffin Heights Neighbourhood.
The Neighbourhood Policies state that, despite Mixed Use Areas having the
widest variety of use and highest levels of activities in the City, drive-through
facilities, either stand-alone or in combination with other uses, are not permitted.
The Duffin Heights Neighbourhood policies also require all buildings to be
multi-storey.
The vision for the Duffin Heights Neighbourhood is to achieve a sustainable
neighbourhood that is pedestrian-focused, transit-oriented, compact and
emphasizes high quality design. The neighbourhood was to be designed with
the pedestrian in mind by providing appropriate facilities, scale, form and detail to
promote walking and social interaction. The intent of the neighbourhood policy
was to prohibit drive-through facilities, which by function caters to automobiles
rather than pedestrians.
It is staff's opinion that a single-storey building with an associated drive-through
facility is not in keeping with the vision for the Duffin Height's neighbourhood.
3.2 The proposed retail/commercial centre will provide a needed service for the
residents in Duffin Heights
The "Mixed Use Area — Mixed Corridors" designation is intended primarily for
residential, retail, community, cultural and recreational uses at a scale serving
the community. The designation provides for a maximum floor space index (FSI)
of 2.5. The applicant's revised proposal has a FSI of 0.4.
Staff are supportive of the proposed retail/commercial centre, except for the
drive-through facility, as this development will provide for broad range of
commercial uses, including but not limited to, commercial fitness/recreational
centre, day care centre, financial institution, medical office, office, personal
service shop, restaurant, retail store and supermarket, servicing the Duffin
Heights neighbourhood. This development will also further diversify the mix of
uses provided within the Mixed Use Corridor to support the community.
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 6
3.3 The proposal is consistent with the Duffin Heights Neighbourhood Policies
and urban design objectives of the Duffin Heights Neighbourhood
Development Guidelines
The Duffin Heights Neighbourhood policies for lands within the Mixed Corridors
designation require new developments 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. The Duffin
Heights Neighbourhood Development Guidelines envision higher density,
multi-storey and mixed use buildings with a high level of architectural quality
along this portion of the Brock Road Corridor.
The intersection of Brock Road and Valley Farm Road is identified as a Focal
Point on the Tertiary Plan within the Council-adopted Duffin Heights
Neighbourhood Development Guidelines. The Guidelines state that development
at focal points shall contribute to the prominence of the intersection through the
use of appropriate building heights, massing, architectural features and
landscaping.
The revised concept plan illustrates a 3-storey commercial building with 4-storey
massing, at the southwest corner of Brock Road and Valley Farm Road stepping
down to one storey with 2-storey massing, away from the intersection. This
building appropriately frames the intersection creating a gateway into the
community from the south and provides a prominent landmark addressing the
intersection of Brock Road and Valley Farm Road. The revised concept plan
also illustrates a 2-storey building with 3-storey massing, fronting Brock Road
immediately south of the proposed vehicular access from Brock Road, and a
2-storey building with 3-storey massing, located internal to the site. The proposed
built form, excluding the single-storey building, is consistent with the Duffin
Heights Neighbourhood Policies and design objectives of the Duffin Heights
Neighbourhood Development Guidelines.
The design guidelines also require that primary frontages of buildings fronting
Brock Road provide pedestrian access directly to the sidewalk and a multi-use
trail along Brock Road. Also, 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.
The applicant has advised that locating primary entrance doors along the Valley
Farm Road and Brock Road frontages may be problematic for certain tenants.
Through the Site Plan Approval process, staff will work with the applicant to
locate primary entrance doors to some of the commercial uses oriented to the
Brock Road and Valley Farm frontages. Staff will continue to work with the
applicant to articulate large walls along Brock Road and Valley Farm Road to
enhance the architectural details and features of the proposed buildings.
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 7
3.4 Proposed vehicular access from Brock Road to be relocated further south
resulting in potential changes to the site layout
The applicant is proposing a full-movement access to the site from the extension of
Valley Farm Road and a right-in/right-out access from Brock Road, approximately
130 metres south of the future signalized intersection of Brock Road and Valley
Farm Road. A southbound right-turn lane is also proposed within the Regional
boulevard to accommodate the access Brock Road.
The Region has indicated that the location of the proposed right-in/right-out
access from Brock Road does not comply with the minimum 200 metre spacing
requirement from the Valley Farm Road and Brock Road intersection, and
recommends that the entrance be relocated to the southerly limit of the site or
onto the adjacent Hydro corridor.
The applicant is aware of the Region's concerns and has indicated that they are
not supportive of the Region's request to relocate the Brock Road access further
south. Relocating the vehicular access further south would impact the design of
the overall site and the location of the proposed commercial buildings along
Brock Road. Through the site plan approval process the applicant will work with
Regional staff to demonstrate that the location of the proposed access off of
Brock Road, as illustrated on the applicant's revised concept plan, would not
have any operational impact on Brock Road.
3.5 The reduced parking area in the hydro corridor will protect for the wildlife
corridor to the south of the property
The Toronto and Region Conservation Authority (TRCA) requested that all
parking to support the development be located on the subject lands in order to
maintain an unobstructed wildlife corridor through the hydro corridor.
The Development Guidelines for the Duffin Heights Neighbourhood encourage
that lands within the Hydro corridor be utilized for parking areas to serve abutting
development. To address TRCA's concerns, the applicant has reduced the
amount of parking within the Hydro corridor from 1.2 hectares to 0.8 of a hectare.
Staff is supportive that the reduced area within the Hydro corridor will continue to
provide an appropriate amount of parking to support the development, while
maintaining an appropriate corridor width for wildlife to the south.
3.6 Sufficient parking is available to support the development
The general provisions from By-law 3037 require parking for the proposed
commercial development to be provided at a rate of 5.9 spaces per 100 square
metres of gross leasable floor area (GLFA) for commercial uses and 5.4 spaces
per 100 square metres of GLFA for office uses.
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 8
The applicant has submitted a Parking Justification Report, prepared by GHD Inc.,
dated May 15, 2015, in support of the proposed development. The consultant
has indicated that the lands at the northeast corner of Brock Road and William
Jackson Drive and the northwest corner of Brock Road and Dersan Street were
recently rezoned to facilitate commercial development. The site-specific by-laws
for these sites included a reduced parking standard of 4.0 parking spaces per
100 square metres of GLFA for commercial uses.
The consultants have also indicated that other municipalities, such as the Town
of Whitby, have implemented a reduced parking rate for commercial development
above the first storey, in order to encourage multi-storey development. The
Town of Whitby utilizes a parking requirement of 2.0 parking spaces per
100 square metres of gross floor area for office and retail uses above the first
storey. Based on the comparable zoning by-laws, the applicant is proposing the
following parking standards for the retail/commercial centre:
• 4.0 parking spaces per 100 square metres of ground floor commercial
• 2.5 parking spaces per 100 square metres of commercial above the
ground floor
Staff are supportive of the proposed reduced parking rate of 2.5 parking spaces
per 100 square metres for office and commercial uses above the first floor to
encourage multi-storey buildings. Staff are recommending a parking standard of
4.5 parking spaces per 100 square metres for commercial/retail/personal service
uses on the ground floor, which is in keeping with the recently approved zoning
by-law for the Seaton community and other commercial developments recently
approved in the City.
Based on the above-noted parking ratios, a total of 546 parking spaces are
required to be provided to support the proposed development, whereas the
applicant is proposing a total of 560 parking spaces on the subject lands and
within the abutting hydro corridor. Staff are satisfied that sufficient parking will be
provided to accommodate the parking demands of the retail/commercial centre.
3.7 All Technical Matters will be addressed through the Site Plan Approval
Process
A Site Plan application will be required for the development. Detailed design
issues and outstanding technical matters to be dealt with through the site plan
approval process, include:
• review of building massing and façade treatments
• site access, particularly the location of the proposed access from Brock Road
• lighting
• landscaping within the site and along Brock Road and Valley Farm Road
• pedestrian circulation and connections within the site and connections to
Brock Road and Valley Farm Road
• drainage and grading
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 9
• site servicing
• cash-in-lieu of parkland
• tree compensation
• revised Functional Servicing and Stormwater Management Plan
• construction Management Plan
• detail design of Valley Farm Road
. In addition to the above-noted matters, an updated traffic impact study will be
required through the Site Plan Approval process. This study will also review
existing and projected traffic volumes at the Valley Farm Road and Brock Road
intersection to determine whether this intersection warrants signalization.
No further reports are anticipated to be brought before Council if the rezoning
application is approved.
3.8 The Zoning By-law will be finalized and forwarded to Council for enactment
Staff supports the rezoning application, excluding the single-storey commercial
building with a drive-through facility, and recommends that a site specific
implementing by-law, containing the standards attached as Appendix I to this
Report be finalized and brought before Council for enactment.
Appendix
Appendix I Recommended Zoning By-law Provisions for Zoning By-law Amendment
Application A 6/15
Attachments
1. Location Map
2. Original Concept Plan
3. Revised Concept Plan
•
•
Report PLN 11-16 June 20, 2016
Subject: OPA 15-001/P, A 6/15 — Duffins Point Inc. Page 10
Prepared By: Approved/Endorsed By:
/kV ( 7.4okliratil ,e4,,„;,_ e,_
Melissa arkham, MCIP, RPP Catherine Rose, MCIP, RPP
Princip. Plann�1— Development Review Chief Planner
0 , f ____[-14,d
Nilesh Su i, MCIP, RPP Thomas Melym ik, MCIP, RP
Manager, Development Review Director, City Development
& Urban Design
MM:Id
Recommended for the consideration
of Pickering City Council
1 / 3 &Ye
Tony Prevedel, P.Eng.
Chief Administrative Officer
•
Appendix Ito
Report PLN 11-16
Recommended Zoning By-law Provisions
for Zoning By-law Amendment Application A 6/15
Recommended Zoning By-law Provisions for
Zoning By-law Amendment Application A 6/15
That the implementing zoning by-law permit a retail/commercial development in
accordance with the following provisions:
Permitted and Prohibited Uses
1. Permitted uses include a bake shop, café, commercial fitness/recreational centre,
commercial school, convenience store, day care centre, dry cleaning distribution
centre, financial institution, medical office, office, personal service establishment,
restaurant, retail store, supermarket, veterinary clinic and residential apartment
buildings.
2. Prohibited uses include drive-through facilities.
Building Restrictions
3. All buildings and structures shall be located entirely within a building envelope with
the following setbacks:
a. 3.0 metres from north, east and south lot lines
b. 8.0 metres from the west lot line
4. A 3.0 metre wide build-to-zone adjacent to Brock Road and Valley Farm Road.
5. No building or portion of a building or structure shall be erected within the building
envelope, unless a minimum of 40 percent of the entire length of the build-to-zone
is occupied by a continuous portion of the exterior wall of a building.
6. A minimum 60 percent of all non-residential ground floor façades, and a minimum
33 percent of all non-residential floor façades above the ground floor, of each
building face along Brock Road and Valley Farm Road shall be constructed of
unencumbered transparent materials.
7. , Minimum first floor height of 4.5 metres.
8. Minimum of 2 functional storeys required for all buildings; however, 3 functional
storeys are required for the building at the northeast corner of the site.
9. Minimum building height:
a. 9.0 metres
b. 11.5 metres at the northeast corner of the subject lands
10. Garbage to be contained within a fully enclosed structure attached or
integrated into the buildings.
•
Landscaped Area
11. A minimum landscaped buffer width of 4.5 metres along the west lot line.
Minimum and Maximum Floor Areas
12. Minimum gross leasable floor area of 14,000 square metres.
13. Minimum gross leasable floor area of 4,000 square metres above the
ground floor.
Parking Requirements
14. Minimum 4.5 parking spaces per 100 square metres of gross leasable floor
area for commercial uses.
15. Minimum 2.5 parking spaces per.100 square metres of gross leasable floor
area for office and commercial uses above the ground floor.
16. A maximum of 160 parking spaces are permitted to be provided on the
adjacent Hydro Corridor lands.
•
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City Development Part 1, 40R-26764 (2460 and 2470 Brock Road) DATE: May 20,2016
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Department FULL SCALE COPIES OF THIS PLAN ARE AVAILABLE FOR VIEWING AT THE CITY OF PICKERING
CITY DEVELOPMENT DEPARTMENT. DATE:Aug.6,2015
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City o0 A_ FILE No: OPA 15-01/P and A 06/15
; i l . APPLICANT: Duffin's Point Inc.
WCMRMINIOC PROPERTY DESCRIPTION: Part Lot 19, Con 3, Part 1, 40R-2548, and
City Development Part 1, 40R-26764 (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: May 20,2016