HomeMy WebLinkAboutPLN 20-19 - Revised C4 .6�., Report to
PICKERINGPlanning & Development Committee
Report Number: PLN 20-19
Date: September 9, 2019
From: Kyle Bentley Revised
Director, City Development & CBO
Subject: Zoning By-law Amendment Application A 06/19
City Initiated: City Facilities and Pickering Town Centre Joint Venture
Select Lands East and West of Glenanna Road in the City Centre
Recommendation:
1. That City Initiated Zoning By-law Amendment Application A 06/19 to amend City Centre
Zoning By-law 7553/17, as amended, be approved, to:
(a) introduce new definitions for Net Floor Area and Floor Space Index;
(b) rezone the City of Pickering lands located on the south side of The Esplanade South,
between Glenanna Road and Valley Farm Road, from City Centre Civic (CCC) to City
Centre Two (CC2) to permit residential uses, and to permit an increase in height for
2 point tower buildings to 121 metres and 97 metres on the lands, and to reduce the
maximum building height to 21 metres on the remaining lands;
(c) rezone part of the Pickering Town Centre lands, located on the west side of
Glenanna Road south of Kingston Road and north of Pickering Parkway, to permit a
maximum building height of 125 metres, except for 1 building which may have a
maximum height of 153 metres; and
2. Further, that the draft zoning by-law amendment to implement Zoning By-law Amendment
Application A 06/19, as set out in Appendix I to Report PLN 20-19, be forwarded to Council
for enactment.
Executive Summary: This City initiated zoning by-law amendment proposes to increase the
maximum building heights on certain lands in the City Centre, add residential uses to the City's
lands south of The Esplanade South, revise the definition of floor space index, and introduce a
new definition of net floor space for the City Centre.
This rezoning has been brought forward as part of the Memorandum of Understanding ("MOU")
entered into between the City of Pickering and OPB Realty Inc. ("OPB Realty"), owners of
Pickering Town Centre mall ("PTC"), to enable a partnership redevelopment of certain lands in the
City Centre. Three new City facilities consisting of a new expanded Central Library, a Seniors &
Youth Centre and a Performing Arts Centre will be constructed on land and air space parcels to
be acquired from PTC opposite the current Civic Complex. A 50-storey rental apartment building
will be located on top of the Seniors & Youth Centre. The City owned lands south of The
Esplanade South road will be transferred to OPB Realty and developed for mixed-use residential
development with 2 point towers.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 2
The City Centre has official plan and zoning permissions to permit high density development in
keeping with the City's vision of the City Centre as a distinct urban place — a place that inspires, a
place to live, work and play, all in a compact and walkable environment. Although higher building
heights are being proposed, careful attention will be paid to the design of buildings at the ground
level and to the quality of the public realm spaces to ensure a human scale development.
With the addition of residential uses to the City's lands (approximately 0.9 of a hectare), there will
be a small increase in the total amount of residential units that could be built compared to the
current zoning permissions across the City Centre. Similarly, the proposed changes to the
definition of floor space index, and the addition of a definition for net floor area, will result in only a
minor increase in the floor area within the development compared with what could be constructed
under the current zoning. The key difference is that the built form will now be able to include taller
buildings for a greater variation of building heights.
Since the actual amount of development is not significantly greater than what would have been
permitted under the existing official plan and zoning, the anticipated impact on services is no
greater than what was anticipated. Staff have initiated the required engineering works to address
servicing. The street network in this area was designed to accommodate the traffic associated
with nearly a million square feet of retail as well as office and residential uses. Some of that retail
traffic will now be replaced with residential traffic. Concerns expressed by residents respecting
wind effects and bird safety will be addressed through the site plan approval process. Shadow
impacts on the Esplanade Park have been reviewed and are acceptable. Staff is also working with
OPB Realty to address the need for green parkland, and to coordinate development schemes
between OPB Realty and CAPREIT (the landowner abutting the City's lands), to ensure significant
placemaking features are secured.
A high density urban area that is well-designed, walkable and attractive is the future for the City
Centre. This type of mixed-use redevelopment is being planned or is occurring in other city
centres and shopping malls across the Greater Toronto Area including Toronto, Mississauga and
Vaughan. Taller buildings can be integrated with the overall vision for the City Centre providing the
buildings' impacts on shadowing, sky views, wind and bird safety are carefully addressed.
The proposed zoning by-law amendment is recommended for approval. It is consistent with the
Provincial Policy Statement, conforms with the Provincial Growth Plan, and the Durham Regional
and Pickering Official Plans. The amendment does not significantly change the amount of
development that can occur, but allows taller buildings in locations intended to have the highest
density and intensity of development in the City. It is recommended the draft by-law attached as
Appendix I to this report be forwarded to Council for enactment.
Financial Implications: No direct cost to the City are anticipated as a result of the
recommendations of this report. Financial implications associated with the construction of the new
City facilities are addressed in Reports CAO 07-19 and FIN 15-19, which were approved by
Council on July 22, 2019.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 3
Discussion:
1. Background on the Vision for the City Centre
In 2013, the City endorsed "Downtown Pickering: A Vision for Intensification and a
Framework for Investment". The vision for the City Centre (Downtown Pickering) expressed
that:
"Downtown Pickering will be a vibrant, sustainable, accessible and distinct city centre
for all people and all seasons. It will be a place to inspire, a place to gather, a place to
work, and a place to live, all in a compact and walkable environment."
More specifically, the following features were considered key elements of the built form
vision for the City Centre (Downtown Pickering):
• A Civic Precinct acting as the downtown's cultural and institutional hub with
destinations and distinct public realm treatment.
• An extraordinary public realm formed through new public spaces that populate the
downtown. A variety of small and large gathering places are within a five minute walk
anywhere in the downtown.
In July 2014, Council approved Official Plan Amendment 26 (OPA 26) and authorized staff
to finalize the City Centre Urban Design Guidelines. OPA 26 introduced new designations
and policies, and changed existing policies to create a framework for the redevelopment
and intensification of the City Centre. OPA 26 was approved with modifications by the
Ontario Municipal Board ("OMB") on March 4, 2015, and has been in full force and effect
since then.
On April 11 , 2017, Pickering Council approved a new comprehensive City Initiated City
Centre Zoning By-law 7553/17 and the City Centre Urban Design Guidelines. The By-law
was approved by the OMB on February 22, 2018. The By-law introduced new zone
categories, permitted a broad range of uses, incorporated new development standards to
regulate the size, location, massing and height of buildings, identified minimum and
maximum density provisions, and introduced new vehicle and bicycle parking standards.
The design guidelines provide design direction for intensification, to guide building design
and private development as well as investments in public infrastructure in the City Centre.
Subsequent to the approval of the City Centre Zoning By-law, on June 12, 2017 Council
approved Official Plan Amendment 29 to remove the density cap for the City Centre. The
removal of the cap provides further opportunities for intensification, allowing for a greater
number of units to be achieved within the same building envelope. The removal of the cap
will allow developers within the City Centre greater flexibility to provide a variety of
residential unit sizes, while having consideration for matters such as housing affordability,
tenure, and market demand.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 4
2. Memorandum of Understanding and Civic Centre Project Financial Analysis
On July 22, 2019, Council endorsed a Memorandum of Understanding ("MOU"), dated
July 16, 2019 between the City and OPB Realty Inc. ("OPB Realty"), owners of the
Pickering Town Centre lands, regarding the construction of 3 new City facilities (a new
larger Central Library, a Seniors & Youth Centre, and a Performing Arts Centre), and the
transfer of certain parcels of land between the City and OPB Realty. Although it is not a
binding contract, the MOU is the basis for negotiating binding contracts that will detail all
aspects of the design, construction and cost of the new public facilities, public realm
improvements, and required municipal infrastructure improvements.
In addition to Council endorsing the above-noted MOU, Council received Report FIN 15-19
entitled "Civic Centre Project & Multi-Year High Level Financial Analysis". This Report
should be referred to for further information on the funding for the City Centre
redevelopment.
3. Proposed Redevelopment in the City Centre
Capitalizing on the closure of the Sears retail store at the Pickering Town Centre and the
relocation of the movie theater to the west side of the mall, the City and OPB Realty
identified an opportunity to accelerate redevelopment of the City Centre and explore new
and innovative ways to repurpose underutilized lands at the mall site for both City facilities
and new residential/retail development.
OPB Realty in conjunction with the City has prepared a conceptual Master Plan illustrating
how a portion of the PTC lands and the City lands will be redeveloped over time (see
Submitted Master Plan, Attachment #1). The Plan is intended to be developed in phases
and a new private road network will be created to provide access to the various blocks of
development. Below is a summary of the key features of the Plan. Further statistics and
conceptual renderings are provided as Attachments #2 and #3 to this Report. The Master
Plan includes:
• a new expanded Central Library, approximately 3,988 square metres
(approx. 43,000 square feet) in gross floor area (which would replace the existing
Central Library, and allow municipal staff to expand into that existing building)
• a new multi-purpose Seniors & Youth Centre, approximately 5,853 square metres
(approx. 63,000 square feet) anticipated to feature a full sized gymnasium,
meeting/program rooms, and youth and seniors spaces to meet the recreational needs
of this growing and thriving demographic (this facility would replace the existing
East Shore Community Centre)
• a 50-storey signature landmark residential building containing approximately 605 rental
apartments units to be constructed on top of the Seniors & Youth Centre
• a Performing Arts Centre containing 600 seats, approximately 3,475 square metres
(approx. 37,400 square feet) which is envisioned to include a theatre, a lobby which
could showcase visual arts and rehearsal/program spaces, which will create a cultural
hub within the City Centre
• approximately 2,500 square metre, publicly accessible square between the Seniors &
Youth Centre and the Performing Arts Centre
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 5
• a total of 350 parking stalls below grade for the general public and patrons of the City
facilities
• 2 mixed-use, high density residential building with towers of 38 and 30 storeys on the
City lands (this is a revision from the earlier plan which proposed 3 towers)
• future development south of the Seniors & Youth Centre comprising several mixed-use
high density residential buildings ranging in height between 9 storeys and 40 storeys
• a total of 2,398 new residential dwelling units, resulting in an additional population of
approximately 4,316 people (assuming 1.8 persons per dwelling unit)
• a total of 6,046 square metres (65,079 square feet) of new retail/commercial space
• connecting all of the buildings and uses, including the Civic Centre, is an enhanced
public realm and open spaces system
A Site Plan Application was submitted for the development of the new Central Library, the
Performing Arts Centre, the Seniors & Youth Centre, the 50-storey apartment building, and
the new urban square. Prior to construction commencing, existing underground services,
(stormwater trunk, sanitary sewer, and watermains), which run under the PTC Master Plan
lands, need to be relocated to the Glenanna Road allowance. These relocation works may
commence as early as January 2020. Construction of all municipal facilities is expected to
be underway in mid-2020 with an anticipated completion date of July 1, 2023 for the
municipal facilities.
4. Proposed amendments to the City Centre Zoning By-law 7553/17 to implement
Master Plan
To implement the Master Plan, the City is proposing certain amendments to the City Centre
Zoning By-law. The City is proposing an increase to the maximum building height
requirements for buildings within the Master Plan. The amendment also includes the
introduction of new definitions for Net Floor Area and changes the existing definition for
Floor Space Index (FSI) to exclude various non-habitable spaces within a building, such as
loading spaces, garbage containment areas, elevators shafts etc. from the calculation of
FSI (see Appendix I, Draft By-law to Amend City Centre Zoning By-law 7553/17).
The proposed amendment includes rezoning the City of Pickering lands on the south side
of The Esplanade South between Glenanna Road and Valley Farm Road, and a portion of
the PTC lands located on the west side of Glenanna Road between Kingston Road and
Pickering Parkway. Specifically, the City is proposing the following amendments to the City
Centre Zoning By-law 7553/17:
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 6
City of Pickering Lands
• rezone City lands from City Centre Civic
(CCC) zone to City Centre Two (CC2)
zone in order to permit residential uses O
• increase the maximum permitted
building height in 2 locations on the c aR� haEsnape°e"
Cit lands from 77 metres (approx. City of Pickering 6 �k
Y ( pp Lands ore
25 storeys) to 121 metres (approx. dEs
jhP ES�[,2
38 storeys) to the east of Glenanna Road
and 97 metres (approx. 30 storeys at Pickering Town
Centre Lands
the east end of the block to permit point
towers); and reduce the maximum LandsSubjecf�
permitted building height on the to Zoning By-law Amendment
remaining lands to 21 storeys
P,Uk�,B
H�hWaY AO
Pickering Town Centre (PTC) Lands
• permit the following increases in the
maximum permitted building height on
a portion of the PTC lands:
• from 47 metres (approx. 15 storeys)
to 153 metres (approx. 50 storeys)
for 1 building as shown within the
red area
• from 47 metres (approx. 15 storeys)
to 125 metres (approx. 40 storeys)
as shown within the yellow area
• from 77 metres (approx. 25 storeys)
to 125 metres (approx. 40 storeys)
as shown within the orange area _Increase Building Height From 47 metres(15 Storeys)la 153 metres(50 Sloreys)
-Increase Budding Height From 47 metres(15 Storeys)to 125 metres(40 Sloreys)
Increase Building Height From 77 metres(25 Storeys)In 125 metres(40 Slamys) e
-Increase Budding Height From 77 metres(25 Storeys)to 121 metres(38 Storeys)
Increase Build{ng Height From 77 metres(25 Storeys)(0 37 metres(30 Storeys)
Decrease Building Height From 77 metres(25 Storeys)to 21 metres(6 Stereys)
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 7
All City Centre Lands
• add a new definition for Net Floor Area and revise the existing definition for Floor Space
Index as follows:
"Floor Area, Net" means the total area of all floors of a building measured from the
interior faces of the exterior walls or demising walls, but does not include the following
areas:
(a) Motor vehicle parking and bicycle parking below established grade;
(b) Motor vehicle parking and bicycle parking at or above established grade;
(c) Loading spaces and related corridors used for loading purposes;
(d) Rooms for storage, storage lockers, washrooms, electrical, utility, mechanical and
ventilation;
(e) Indoor amenity space required by this By-law;
(f) Elevator, garbage and ventilating shafts;
(g) Mechanical penthouse; and
(h) Stairwells in the building.
"Floor Space Index" means the total net floor area of all buildings on a lot divided by
the total area of the lot.
5. Planning Analysis
5.1 The proposal meets the directives of the Provincial Policy Statement
The Provincial Policy Statement, 2014 ("PPS"), provides policy direction on matters of
provincial interest related to land use planning and development and sets a vision for
Ontario's land use planning system.
The PPS states that healthy, livable and safe communities are to be sustained, including
among other matters, promoting efficient development and land use patterns;
accommodating an appropriate range and mix of residential, employment, institutional,
recreation, park and open space, and other uses to meet long-term needs; and promoting
cost-effective development patterns and standards to minimize land consumption and
servicing cost.
The PPS also requires that land use patterns within settlement areas are to be based on
densities and a mix of land uses which:
• efficiently use land and resources;
• are appropriate for, and efficiently use, the infrastructure and public service facilities
which are planned or available;
• support active transportation;
• are transit-supportive, where transit is planned, exists or may be developed; and avoid
the need for their unjustified and/or uneconomical expansion; and
• minimize negative impacts to air quality and climate change, and promote energy
efficiency.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 8
The PPS also states that healthy, active communities should be promoted by:
• planning public streets, spaces and facilities to be safe, meet the needs of pedestrians,
foster social interaction, and facilitate active transportation and community connectivity;
and
• planning and providing for a full range and equitable distribution of publicly-accessible
built and natural settings for recreation, including facilities, parklands, public spaces,
open space areas, trails and linkages.
The lands subject to the rezoning application lie within the City Centre area. The land use
policies for the City Centre call for greater density of development and a more urban mix of
built forms and uses. The proposed Master Plan as shown on Attachment #1 to this report
will transform Pickering's City Centre into a vibrant, pedestrian friendly, transit supportive
centre that will include a diverse mix of housing options, multiple public facilities for the
enjoyment of all residents, and a broad mix of commercial/retail uses.
The proposed zoning by-law amendment will allow for a greater variation in building
heights, identify additional lands for high density development, and since it still relies on a
floor space to control the actual amount of floor area that can be built, rather than
residential units per net hectare, there is a greater opportunity for a variety of unit sizes
responding to market needs. The proposed by-law amendment is consistent with the PPS.
5.2 The proposal conforms with the Provincial Growth Plan
The Growth Plan for the Greater Golden Horseshoe (2019) (the "Growth Plan") provides a
strategic framework for managing growth and environmental protection in the Greater
Golden Horseshoe region, of which the City forms an integral part, including:
• setting minimum density targets within settlement areas and related policies directing
municipalities to make more efficient use of land, resources and infrastructure to
reduce sprawl, cultivate a culture of conservation and promote compact built form and
better-designed communities with high quality built form and an attractive and vibrant
public realm established through site design and urban design standards;
• directing municipalities to engage in an integrated approach to infrastructure planning
and investment optimization as part of the land use planning process;
• building complete communities with a diverse range of housing options, public service
facilities, recreation and green space that better connect transit to where people live and
work; and
• minimizing the negative impacts of climate change by undertaking stormwater
management planning that assesses the impacts of extreme weather events and
incorporates green infrastructure.
The Growth Plan seeks to optimize provincial investments in higher order transit by
directing growth to strategic growth areas and locations with existing or planned transit,
with a priority on higher order transit where it exists or is planned. Schedule 4 of the Growth
Plan identifies Pickering City Centre as an Urban Growth Centre and on Schedule 5 as a
priority transit corridor, having the capacity to accommodate significant mixed-use,
residential and employment intensification.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 9
The Growth Plan policies for major transit station areas on priority transit corridors inform
the evaluation of this application. Policy 2.2.4.8 b) states "All major transit station areas will
be planned and designed to be transit supportive and to achieve multimodal access to
stations and connections to nearby major trip generators by providing, where appropriate,
infrastructure to support active transportation, including sidewalks, bicycle lanes, and
secure bicycle parking." Policy 2.2.4.9 a) states "Within all major transit station areas,
development will be supported, where appropriate, by planning for a diverse mix of uses,
including affordable housing to support existing and planned transit service levels."
The City initiated rezoning application conforms with the Growth Plan as it facilitates new
development in a compact and efficient form that is designed to support and promote active
transportation adjacent to a major transit hub. The proposal will also contribute to a
complete community with a variety of housing options, new public facilities and new
commercial/retail spaces while efficiently using underutilized lands, and existing and
planned infrastructure. The proposed zoning by-law amendment will allow for a greater
variation in building heights, and identifies additional land to be used for high density
development.
5.3 The proposal conforms with the Durham Regional Official Plan
The Durham Regional Official Plan (DROP) designates Pickering's City Centre as an Urban
Growth Centre and a Regional Centre. Lands that are designated as Centres shall be
developed as the main concentration of commercial, residential, cultural and government
functions in a well-designed and intensive land use form. Furthermore, Centres shall be
developed in accordance with the following principles:
• focal point of culture, art, entertainment and assembly through provision of public
squares, in addition to cultural facilities, parks and other public facilities;
• mixed-uses and a grid of roads and walkways;
• urban design that favours pedestrian traffic and public transit with direct pedestrian
access to buildings, provision of transit, and parking areas sited at the rear of within
buildings, wherever possible; and
• balance of employment and residential growth and a variety of compact, higher density
housing types to service all housing needs including affordable housing and assisted
housing.
Urban Growth Centres shall be planned as to accommodate minimum density target of
200 persons and jobs combined per gross hectare and a floor space index of 3.0. The built
form for Urban Growth Centres should be a mix of predominately high-rise development,
with some mid-rise, as determined by area municipalities.
The Region has advised that the proposed City initiated rezoning application will facilitate
the development of a mix of land uses at densities and heights within the Pickering Urban
Growth Centre where high density uses and large/taller buildings are encouraged in
appropriate locations. The proposed amendment conforms to the policies of the Regional
Official Plan.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 10
5.4 Proposed City Initiated Zoning By-law Amendment conforms with the policies of the
Pickering Official Plan
All of the lands within the City Centre are designated as "Mixed Use Areas — City Centre".
This designation permits a broad range of uses including high density residential; retailing
of goods and services; offices and restaurants; hotels; convention centres; community,
cultural and recreational uses; community gardens, and farmers' market. The maximum
permitted Floor Space Index (FSI) in the City Centre is 5.75, and the minimum residential
density is over 80 units per net hectare (with no maximum).
As noted in the description of the proposed amendments (Section 4 of this report), a minor
technical amendment is proposed to provide greater clarity with respect to how Floor Space
Index (FSI) is to be calculated within the zoning by-law. The Official Plan defines FSI as a
total floor space of all buildings on a lot divided by the total area of the lot. Based on the
current definitions for Gross Floor Area (GFA) and FSI within the City Centre Zoning By-law,
only some of the ancillary indoor areas servicing the occupants of the building (including
areas dedicated for parking, porches, verandas, cellars, mechanical rooms, and
penthouses) would be excluded from the calculation of FSI. The zoning amendment
excludes additional area.
The proposed City initiated rezoning application to rezone the City lands on the south side
of The Esplanade South and a portion of the PTC lands along the west side of
Glenanna Road complies with the goals and objective of the City's Official Plan which is to
promote the City Centre as the City's main focus for business, employment, entertainment,
shopping, major community and cultural uses, major indoor recreation facilities, and higher
density residential accommodations. The joint venture between the City and OPB Realty
will facilitate land uses and built form that are transit oriented, environmentally friendly, and
supportive of mixed-use development and walkability.
The proposed zoning by-law amendment will allow for a greater variation in building
heights, identify additional lands for high density development, and allow for a greater
opportunity for a variety of unit sizes responding to market needs.
5.5 Discussions between CAPREIT and OPB Realty are ongoing to ensure an integrated
development
Canadian Apartment Properties Real Estate Investment Trust ("CAPREIT") owns
approximately 4.4 hectares of land located on the east side of Glenanna Road north of
Pickering Parkway containing four 5-storey and one 6-storey apartment buildings which in total
include 326 rental housing units and a daycare facility (municipally known as 1480 Valley Farm
Road, 1800 and 1850 Valley Farm Road, and 1865 and 1875 Glenanna Road).
On behalf of CAPREIT, Urban Strategies Inc., (a land use planning and urban design firm)
provided 2 letters dated June 21, 2019 and July 3, 2019, and a representative from
CAPREIT made a deputation at the June 22, 2019 Statutory Public Meeting outlining their
concerns with respect to the City Initiated Zoning By-law Amendment. They expressed
various concerns, including but not limited to: the placement of the proposed towers; the
opportunity for the creation of a comprehensive block development plan between the City
lands and the CAPREIT lands; the lack of connectivity through the City lands; the
requirement for additional parkland on the PTC lands; and the potential for adverse shadow
impacts from the proposed buildings on public open spaces.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 11
Following the Statutory Public Meeting, City staff and representatives from OPB Realty
have had various discussions with representatives from CAPREIT and their consultants to
discuss opportunities to ensure that both the City lands and the CAPREIT lands are
developed on a comprehensive basis. CAPREIT is currently working on a Block Development
Plan for their lands.
City Development staff are of the opinion that the approval of the City initiated rezoning
application will not preclude the ability between OPB Realty and CAPREIT to continue
discussions with respect to the integration of building and tower placements, provision of
parkland, and road, walkway and servicing connections between the two properties. Staff
will continue to work with both OPB Realty and CAPREIT to ensure both properties are
developed in an integrated and coordinated manner that contributes to urban placemaking.
5.6 The proposed building heights on the PTC lands (Phase 1) and on the City lands will
have acceptable shadow impacts on Esplanade Park
On behalf of OPB Realty and the City, Architects Alliance has submitted a Shadow Study
for the first phase of development and the south Esplanade lands of the Master Plan. The
Shadow Study analyzed the shadow cast based on 3 scenarios: the existing development;
a development scenario that could be permitted by the current City Centre Zoning By-law
assuming maximum permitted building heights (see Massing Model — Current Zoning,
Attachment #4); and the proposed development with additional height permissions and
2 point towers on the City lands (see Massing Model — Proposed Zoning, Attachment #5).
The shadow studies include March, June, September and December hourly between
9:18 am to 6:18 pm. A copy of the Shadow Study Report and the shadow cast drawings
can be viewed on the City's website at https://www.pickering.ca/en/city-hall/city-initiated-a-
0619.aspx.
On the City lands, the existing zoning allows for a maximum building heights of 77 metres
(approx. 25 storeys) with a maximum FSI of 5.75. Based on the current zoning provisions
for height, and assuming residential uses are permitted, these lands could be developed
with 3 towers. This development scenario would create a wall of towers that would be
impactful to light and sky view, and create a series of shadows on Esplanade Park.
Comparatively, the proposed design of 2 towers of heights of 121 metres (approx.
38 storeys) and 97 metres (approx. 30 storeys) displaces tower massing to the east and
west edges of the block providing for larger openings between the towers. This approach
improves the light and sky views creating a variation in tower heights and decreases
shadow impact onto the park.
On Block 1 of the PTC lands (with the 3 city facilities and the 50-storey apartment building),
the current zoning allows for a maximum building height of 47 metres (approx. 15 storeys)
with a maximum FSI of 5.75. Assuming these lands are developed for towers at the
maximum height on a 6-storey podium, this scenario creates a dense impression of the
massing of the podium impacting light and sky view and imposes tight facing conditions
between the towers. In the proposed scenario for Block 1, a taller single tower is proposed
at the southeast corner which is less imposing to light and sky views and provides open
views from the tower units.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 12
Staff have reviewed the submitted Shadow Study. Staff concurs with the findings that a
development scenario based on the existing zoning requirements that assumes all towers
are built to the maximum permitted under current zoning would result in more shadow cast
on the park and have a considerable impact on the sky view for existing residents than the
development scenario proposed. Staff are satisfied that the proposed building heights will
result in minimal shadow impacts on the park, and a less imposing built form.
5.7 Wind Analysis
OPB Realty has submitted a Pedestrian Level Wind Study, prepared by Gradient Wind
Engineers & Scientists, dated July 4, 2019. This study assessed wind conditions in support of
the phase 1 development of the PTC lands and City lands. The Study involved simulation of
wind speeds for selected wind directions in a 3D computer model to assess pedestrian
comfort and safety within the land surrounding the development site.
Based on architectural drawings prepared by Architects Alliance, the existing and proposed
surrounding street layouts, and existing and future building massing, the consultant
concludes that wind conditions over most pedestrian sensitive grade-level locations within
and surrounding the study site will be acceptable for the intended uses on a seasonal basis
with some mitigation measures. A number of recommendations have been made to
mitigate the effects of wind, both at grade, and on elevated outdoor amenity areas. These
mitigation measures will be addressed through site plan approval.
City staff will work with Architects Alliance to identify modifications that can be made to the
actual building design to decrease wind effects as well as other recommended wind
mitigation measures that can be implemented to address pedestrian safety and comfort.
5.8 The City will ensure sufficient transportation and municipal infrastructure capacity is
available to support future growth in the City Centre
The MOU endorsed by Council on July 22, 2019 sets out project timelines for the completion
of the new public facilities. To achieve these times, the City has initiated the review of
various engineering works involved with the implementation of the Master Plan and the
potential for other lands to be redeveloped in the City Centre, including the CAPREIT lands.
The Municipal Infrastructure Group Limited ("TMIG") has been retained to complete an
update to the Pickering City Centre Stormwater Management Strategy. The City has also
retained the services of Sabourin, Kimble & Associates Ltd. to provide project management
services and design the engineering works associated with the City Centre Master Plan.
Working with Sabourin, Kimble & Associated Ltd. is the BA Group, a transportation
consultant. BA Group is identifying design options for the modifying Glenanna Road, as
well as well as traffic control options (such as signalization).
Based on staff's experience with other nearby developments (such as San Francisco by the
Bay), car ownership per household is lower as transit, and many amenities are nearby.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 13
6. Public Consultation and Comments
6.1 June 24, 2019 Statutory Public Meeting
Notice of the Statutory Public Meeting was provided to all landowners within 150 metres of
the entire PTC lands and the City property on the south side of The Esplanade South. In
addition, the notice was posted on the City's website and in the June 12, 2019 edition of the
News Advertiser. All of the technical studies and supporting materials for this application
were posted on the City website at https://www.pickering.ca/en/city-hall/city-initiated-a-
0619.aspx
Information Report 13-19 was presented to a Special Planning & Development Committee
meeting on June 24, 2019. At the Statutory Public Meeting approximately 100 people
attended the meeting, at which 17 residents spoke or made a presentation regarding the
proposed amendments to the City Centre Zoning By-law 7553/17. In addition 22 written
submissions were also received from area residents. The table below summarizes the key
concerns raised by area residents and staff's response.
Concerns/Comments Staff's Response
The proposed As noted in the Executive Summary and Section 5.8, the road
intensification will have network in the City Centre has been designed to accommodate
negative impacts on the a considerable volume of traffic, whether it is from retail, office
existing transportation or residential uses. Design modifications for Glenanna Road
network are under review, and will consider all users (pedestrians,
cyclists, transit and vehicles). Other traffic management
systems, such as traffic signals, are also being reviewed. Any
required modifications will be implemented with the
reconstruction of Glenanna Road. As further phases of
development occurs, the need for additional modifications will
be assessed at that time.
Questioned whether Sabourin, Kimble & Associates Ltd. has confirmed there is
sufficient municipal adequate water and sewer capacity to support the City Centre
capacity (sanitary, storm redevelopment. The design for the engineering works is
sewers and water) are underway.
available to
accommodate the
development
The proposed building Taller buildings can fit with the City Centre vision.
heights are too tall; will Appropriately sited tall buildings that incorporate a high
block/encumber views, standard of architecture and urban design will visually
access to sun light and reinforce the City Centre and help to define the City's image.
create shadowing Permitting taller buildings can result in a greater variety of
impacts, and will cause building heights.
wind tunnel impacts
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 14
Concerns/Comments Staff's Response
The Shadow Study completed for the proposed buildings on
phase 1 of the PTC lands and the City lands (refer to
Section 5.6 of this report) concludes that the proposed
building heights of 50, 38 and 30 storeys will have minimal
shadow impacts on Esplanade Park. Furthermore, the
separation distance between the towers will ensure sufficient
sky view is protected.
The Pedestrian Level Wind Study completed for the proposed
buildings on phase 1 of the PTC lands and the City lands
concludes that wind conditions over most of the pedestrian
sensitive, grade-level locations within and surrounding the
study site, will be acceptable for the intended uses on a
seasonal basis subject to implementing wind mitigation
measures at certain locations (refer to Section 5.7 of this
report).
The proposal should The proposed Master Plan, prepared by Architects Alliance for
provide for additional OPB Realty and the City, includes a variety of public and
greenspace given that private open spaces and gathering places. The proposed new
Esplanade Park is not public facilities are centered on an approximate 2,500 square
large enough to metre publicly accessible urban square. The proposed urban
accommodate the future square will be open to the public and accessible at all times
population growth within without physical barriers or gates. The square will be
the City Centre animated by active, at-grade uses including restaurants with
patios, the Seniors & Youth Centre, the Performing Arts
Centre and the new Central Library. The urban square will
have enhanced hard and soft landscape elements, including
opportunities for outdoor seating areas and public art.
In addition to the publicly accessible urban square, an
approximate 950 square metre outdoor roof top garden is
proposed on the new Library, which will be open and
accessible to all residents. Lastly, each residential building will
be required to provide appropriate indoor and outdoor amenity
spaces for their residents. The City will continue to work with
OPB Realty and other landowners within the City Centre to
maximize the opportunity to provide additional
parkland/greenspace.
The proposal should OPB Realty has advised that the proposed 50-storey
include a broad mix of residential building located on top of the Seniors & Youth
housing tenure and Centre will be a rental apartment building. The buildings on
options including rental the block of land south of The Esplanade South will include
and affordable units one and two bedroom condominium units.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 15
Concerns/Comments Staff's Response
The proposal will result The City's Noise By-law restricts the hours of construction
in a major disruption activity and work to 7:00 am to 7:00 pm Monday through
during construction with Saturday and no work is permitted on Sundays or Statutory
respect to noise, dust Holidays.
and traffic, and could As part of the Site Plan Approval process, OPB Realty will be
potentially lower required to prepare a construction management plan to
property value ensure that construction impacts such as dust, noise, mud
tracking, parking of construction vehicles, and other related
construction impacts are minimized.
The proposed towers Through the Site Plan Approval process, staff will continue to
should incorporate bird work with OPB Realty and Architects Alliance to ensure that
friendly glazing to the design of the new buildings incorporate the best practices
minimize avian fatalities and strategies to minimize impact on migratory birds.
due to bird collisions
Concerned that there will A 3 level below grade parking structure containing
be a parking cost approximately 930 parking stalls is proposed to support the
involved with parking at new Library, Performing Arts Centre, Seniors & Youth Centre,
the new facilities the 50-storey residential tower and the additional
commercial/retail spaces. A total of 350 (of the total 933)
parking stalls will be dedicated to the City to service the
patrons of the new facilities. At this time, it is not anticipated
that there will be a parking cost involved with parking at the
new facilities.
Questioned why the In order to facilitate a dynamic, vibrant downtown that is
existing empty Sears walkable, provide a variety of uses and places to gather, and
building was not utilized efficiently use the site, it is necessary to demolish the empty
instead of building new Sears building and other underutilized space within the mall.
structures
The proposal should OPB Realty and the City are committed to developing energy
incorporate Sustainable efficient buildings that incorporate numerous sustainable
Development elements that will contribute to minimizing their environmental
impacts. To this end, OPB Realty and the City are
participating in the Enbridge Savings By Design incentive
program, which encourages the design and construction of
high performance, energy efficient buildings that are at least
15% better than the Ontario Building Code. The program is
funded by Enbridge Gas and facilitated by Sustainable
Buildings Canada.
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 16
Concerns/Comments Staff's Response
Explore opportunities for OPB Realty has advised the City that they are currently
additional office uses in exploring opportunities to secure a future office building tenant
the City Centre for this project.
Requested additional Please refer to Report FIN 15-19, entitled "Civic Centre
information regarding Project & Multi-Year High Level Financial Analysis" that was
the financial impact to considered by Council on July 22, 2019.
the City, impact on
property taxes and how
the project will be funded
7. Staff Recommend an Implementing Zoning By-law Amendment be forward to Council
for Enactment
Staff recommend that Zoning By-law Amendment Application A 06-19 be approved, and
that the draft implementing by-law, provided as Appendix I to this report, be forwarded to
Council for enactment.
Appendix
Appendix I Recommended Draft Zoning By-law for Zoning By-law Amendment
Application A 06/19
Attachments:
1. Conceptual Master Plan
2. Statistics
3. Colour Renderings
4. Massing Model — Current Zoning
5. Massing Model — Proposed Zoning
PLN 20-19 September 9, 2019
Subject: City Initiated: Zoning By-law Amendment Application A 06/19 Page 17
Prepared By: Approved/Endorsed By:
Nile S rti, MCIP, RPP Catherine Rose, MCIP, RPP
Manager, Development Review Chief Planner
& Urban Design
Ky Bentley, P ng.
Director, City Development & CBO
NS:CR:Id
Recommended for the consideration
of Pickering City Council
�90
Tony Prevedel, P.Eng.
Chief Administrative Officer
Appendix I to
Report PLN 20-19
Recommended Draft Zoning By-law
for Zoning By-law Amendment Application A 06/19
Draft
The Corporation of the City of Pickering
By-law No. XXXX/19
Being a By-law to amend Restricted Area Zoning By-law 7553/17,
as amended, to implement the Pickering Official Plan, Region of
Durham, South Part of Lots 20 to 23, Concession 1 , City Centre
Neighbourhood, City of Pickering (A 06/19)
Whereas the Council of The Corporation of the City of Pickering deems it desirable to
permit the development of a new Central Library, a Seniors & Youth Centre, a
Performing Arts Centre, a 50-storey rental apartment building, and several other mixed
use residential buildings, on lands being the South Part of Lots 20 to 23, Concession 1,
in the City of Pickering;
And whereas an amendment to By-law 7553/17, as amended, is therefore deemed
necessary;
Now therefore the Council of The Corporation of the City of Pickering hereby enacts as
follows:
1. Section 5, Definitions, of Zoning By-law 7553/17, as amended, is further
amended by alphabetically inserting the definition "Floor Area, Net", as follows:
"Floor Area, Net" means the total area of all floors of a building measured from
the interior faces of the exterior walls or demising walls, but does not include the
following areas:
(a) Motor vehicle parking and bicycle parking below established grade;
(b) Motor vehicle parking and bicycle parking at or above established grade;
(c) Loading spaces and related corridors used for loading purposes;
(d) Rooms for storage, storage lockers, washrooms, electrical, utility,
mechanical and ventilation;
(e) Indoor amenity space required by this By-law;
(f) Elevator, garbage and ventilating shafts;
(g) Mechanical penthouse; and
(h) Stairwells in the building.
2. Section 5, Definitions, of Zoning By-law 7553/17, as amended, is further
amended by deleting the definition "Floor Space Index" and replacing it with the
definition provided below:
"Floor Space Index" means the total net floor area of all buildings on a lot
divided by the total area of the lot.
3. Schedule 2, Land Use Categories, of Zoning By-law 7553/17, as amended, is
further amended by rezoning the lands as depicted on Schedule I to this By-law
from City Centre Civic (CCC) to City Centre Two (CC2).
By-law No. XXXX/19 Draft Page 2
4. Section 6, Exception E3, of Zoning By-law 7553/17, as amended, is further
amended by adding the following new subsections:
6.3.3 Zone Provisions
The following regulations applies:
f) Notwithstanding Section 4.2 b) ii) and Schedule 5, related to Maximum Building
Height, a maximum of one residential (1) building or structure wholly located
within the crossed hatched area as shown on Figure 6.3.5 (a) shall not exceed a
building height of 153 metres.
g) Notwithstanding Section 4.2 b) ii) and Schedule 5, related to Maximum Building
Height, the height of a building or structure wholly located within the diagonal
hatched area as shown on Figure 6.3.5 (a) shall not exceed a building height of
125 metres.
6.3.5 Special Site Figures
Figure 6.3.5 (a)
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By-law No. XXXX/19 Draft Page 3
5. Section 6, Exceptions, and Schedule 7 of Zoning By-law 7553/17, as amended,
is further amended by adding a new Exception E13 as follows:
E13 (Block 16, Plan 40M-1231 Parent Zone: CC2
and Part 26 40R-7765)
Schedule 7 Amending By-law: XXXX/19
6.13.1 Zone Provisions
The following regulation applies:
a) Notwithstanding Section 4.2 b) ii) and Schedule 5, related to Maximum
Building Height, the maximum height of a building or structure wholly located
within the area identified by the dashed line as shown on Figure 6.13.2 (a)
is specified by the number following the HT symbol as shown on
Figure 6.13.2 (a).
6.13.2 Special Site Figures
Figure 6.13.2 (a)
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By-law No. XXXX/19 Draft Page 4
6. Section 8, Schedule 7, Exceptions, of Zoning By-law 7553/17, as amended, is
further amended by adding an E13 notation as depicted on Schedule II to this
By-law.
7. That By-law 7553/17, as amended, is hereby further amended only to the extent
necessary to give effect to the provisions of this By-law. Definitions and subject
matters not specifically dealt with in this By-law shall be governed by relevant
provisions of By-law 7553/17, as amended.
8. That this By-law shall come into force in accordance with the provisions of the
Planning Act.
By-law passed this XX day of XXXX, 2019.
Draft
David Ryan, Mayor
Draft
Susan Cassel, City Clerk
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Schedule I to By-Law ####/19
Passed This ##th
Day of ###, 2019
- Draft
Mayor
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Schedule II to By-Law####/19
Passed This ##th
Day of ###, 2019
- Draft
Mayor
- Draft
Clerk
Atta hmen #1 to Report #PLN 20-19
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MASTER PLAN FUTURE
1 :2000
2019-08-27
Attachment #2 to Report #PLN 20-19
Master Block Plan — Statistical Information (2019-08-23, Page 1 of 2)
Phase 1 — (OPB Realty Inc. Lands)
Block 1
Residential, Retail and Total Residential Floor Area 39,893 m2
Senior/Youth Centre Total Residential Units 605
Total Residential Stores 50
Total Retail Floor Area 471 m2
Total Senior/Youth Centre Floor Area 5,853 m2
Library Total Floor Area 3,988 m2
Block 2- Performing Arts Total Floor Area 3,475 m2
Centre
Phase 1 Floor Space Index (FSI) 3.31
Below Grade Parking
Park Level 1 350 stalls for City use
Park Level 2 193 stalls for residents, plus 91 stalls for visitors
Park Level 3 299 stalls for residents
Total Parking Provided 933 stalls
Phase 2 (Blocks 3 & 4)
Block 3
Residential and Total Residential Floor Area 39,433 m2
Retail/Commerical Total Residential Units 502
Total Residential Storeys 40
Total Retail/Commerical Floor Area 844 m2
Block 4
Residential, Total Residential Floor Area 28,378 m2
Retail/Commercial Total Residential Units 354
Total Residential Storeys 30
Total Retail/Commercial Floor Area 1,296 m2
Phase 2 FSI 5.28
Phase 3 (Blocks 5, 6, 7 & 8)
Block 5
Residential and Retail Total Residential Floor Area 21,342 m2
Total Residential Units 223
Total Residential Storeys 32
Total Retail Floor Area 662 m2
Block 6
Residential and Retail Total Residential Floor Area 6,800 m2
Total Residential Units 92
Total Residential Stores 9
Total Retail Floor Area 408 m2
Master Block Plan — Statistical Information (2019-08-23, Page 2 of 2)
Block 7
Residential and Retail Total Residential Floor Area 31,589 m2
Total Residential Units 382
Total Residential Stores 30
Total Retail Floor Area 1,793 m2
Block 8
Residential and Retail Total Residential Floor Area 18,394 m2
Total Residential Units 240
Total Residential Stores 25
Total Retail Floor Area 574 m2
Phase 3 FSI 5.35
Project Summary (OPB Realty Inc. Lands)
Total Residential Floor Area 185,829 m2
Total Residential Units 2,398
Total Retail/Commerical Floor Area 6,048 m2
Total SeniorNouth Centre Floor Area 5,853 m2
Total Performance Arts Centre Floor Area 3,475 m2
Total Number of Parking Spaces Provided 2,543
South Block (City Lands)
Block 1
Residential and Retail Total Residential Floor Area 47,452 m2
Total Residential Units 811
Total Residential Storeys 38 and
30 storeys
Total Retail Floor Area 133 m2
South Block FSI 5.75
Above Grade Parking
Level 1 67 stalls for residents
Level 2 83 stalls for residents
Level 3 70 stalls for residents
Below Grade Parking
Park Level 1 78 stalls for residents, plus 122 stalls for visitors
Park Level 2 200 stalls for residents
Park Level 3 200 stalls for residents
Total Parking Provided 820 stalls
Attachment #3 to Report #PLN 20-19
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BLOCK 1 RESIDENTIAL TOWER&PERFORMING ARTS CENTRE SOUTH BLOCK RESIDENTIAL TOWERS
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Attachment #4 to Report #PLN 20-19
PART 2 : DEVELOPMENT SCENARIO - PHASE 1
(AS PER CITY CENTRE ZONING BYLAW WITH MAX HEIGHT'47m or 77m)
H:77m
H:77m
H:77m
H,47m H '47m H :47m
'4 r.
AERIAL VIEW FROM ROOF OF DISCOVERY PLACE CONDOMINIUM
-H-47m
H:77m
H'77m "H:77m -H;47m
STREET VIEW FROM NORTH OF DICKERING CITY HALL ON OLE MANNA ROAD
Attachment #5 to Report #PLN 20-19
PART 3 : PROPOSED DEVELOPMENT - PHASE 1
(INCL.BLOCK 1,SYC.PAC.LIBRARY,SOUTH BLOCK)
F-H:97m H:121m r H: 153rn
J
r
\r\J
AERIAL VIEW FROM ROOF OF DISCOVERY PLACE GONDOMINIUM
H. 153m
r
H: 121m
H:97m
STREET VIEW FROM NORTH OF PICKERING CITY HALL ON GLENANNA ROAD