HomeMy WebLinkAboutPLN 01-20646/
DICKERING
Report to
Planning & Development Committe
Report Number: PLN 01-20
Date: January 13, 2020
From: Kyle Bentley
Director, City Development & CBO
Subject: Infill and Replacement Housing in Established Neighbourhoods Study
Planning Options Report (Phase 2 Report)
File: D-1100-096
Recommendation:
1. That the Infill and Replacement Housing in Established Neighbourhoods, Planning Options
Report (Phase 2 Report) prepared by SGL Planning & Design Inc., dated December 2019,
be received; and,
2. That Council authorize City Development staff to proceed with Phase 3 of the Infill and
Replacement Housing in Established Neighbourhoods Study.
Executive Summary: This report provides an update on the status of the Infill and
Replacement Housing in Established Neighbourhoods Study, presents the Planning Options
Report (Phase 2 Report) of the Study prepared by SGL Planning & Design Inc. dated
December 2019 (which is posted on the City of Pickering website at pickering.ca/InfillStudy and
circulated under separate cover), and seeks Council authorization to proceed with Phase 3 of the
Study.
The purpose of the Study is to provide direction for the preparation of appropriate official plan
policies, zoning regulations and other implementation tools, and to develop draft design guidelines
that will facilitate a sensitive transition between existing houses and new construction in the City's
established neighbourhoods in the South Pickering Urban Area.
The Planning Options Report completes Phase 2 of the Study and, among other things, identifies
gaps and opportunities in existing City policy, guidelines and strategies to address the matter of
infill and replacement housing, provides a rationale for a preferred strategy for managing new infill
and replacement housing while respecting and/or enhancing a neighbourhood's character, and
provides a summary of the feedback received at the Public Open House 2 and through the on-line
Infill Survey.
Phase 3 of the Study will include further public engagement and result in a Recommendation
Report and Draft Design Guidelines to be presented to Planning & Development Committee and
Council.
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 2
Financial Implications: On June 28, 2018, Council approved the project funding of
$147,995.00 and the financing as 55 percent from property tax and 45 percent from Development
Charges. Funds to complete the Study will be carried over in the 2020 Current Budget for the City
Development Department, Consulting and Professional (Account 2611.2392.0000).
1. Background
1.1 Study Purpose and Process
The purpose of the Infill and Replacement Housing in Established Neighbourhoods Study is
to provide direction for the preparation of appropriate official plan policies, zoning
regulations and other implementation tools, and to develop design guidelines that will
facilitate a sensitive transition between existing houses and new construction in the City's
established neighbourhoods in South Pickering.
On April 23, 2019, Council received the Infill and Replacement Housing in Established
Neighbourhoods, Existing Conditions and Preliminary Observations Report — Phase 1
Report, and authorized City Development staff to proceed with Phase 2 of the Study.
The Phase 1 Report:
• identified areas within the City's established neighbourhoods that may be susceptible to
pressure for the development of infill and replacement housing;
• identified the key issues regarding infill and replacement housing that are of concern to
stakeholders; and
• provided a summary of the feedback received at the Public Open House 1.
Following Council authorization, SGL Planning & Design Inc. (the consultants) prepared the
Draft Planning Options Report (Draft Phase 2 Report) that identified potential tools and
strategies to address the compatibility issues identified in Phase 1.
Community input on the Draft Phase 2 Report was received through the October 29, 2019
Public Open House 2 and an online survey (the Infill Survey).
The Infill Survey was available on the City's website between October 17 and
November 4, 2019 and in hard copy at the October 29, 2019 Public Open House 2.
Following the synthesis and analysis of the feedback, the consultants modified the Draft
Planning Options Report and added a section on what is their Preferred Strategy for
addressing the compatibility issues. The result is the completed Planning Options Report
which is the subject of this report.
1.2 Definition of Infill and Replacement Housing
For the purpose of this study, the following definitions of infill and replacement housing are
used:
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 3
Infill means the development of 2 or more ground -oriented housing forms such as single
detached, semi-detached and townhouse dwellings through a consolidation of lots or the
severance of a larger lot. Within the context of this study, infill does not include the
development of stacked townhomes, stacked back-to-back townhomes, apartment
buildings, or other forms of multi -unit housing resulting in a higher level of density. Infill can
occur through draft plan of subdivision/condominium, site plan and/or land division.
Replacement housing involves a smaller dwelling being substantially altered or
demolished and replaced with a new larger dwelling through the building permit application
process and possibly the minor variance process.
1.3 Summary of Phase 1 Findings
Phase 1 of the Study established that 9 of the 15 South Pickering Urban Area
neighbourhoods warrant in-depth study since these neighbourhoods contain the majority of
the older housing stock that has experienced most infill and replacement housing over the
last few years. Referred to as the "Focus Neighbourhoods", these neighbourhoods are: Bay
Ridges, Dunbarton, Highbush, Liverpool, Rosebank, Rougemount, Village East, West
Shore, and Woodlands (see Map of Focus Neighbourhoods, Attachment #1).
In addition, Phase 1 of the Study found that the majority of observed changes occurring
within the Focus Neighbourhoods relate to:
• height and overall scale of dwelling;
• roof pitch;
• height of the front entrance;
• separation distance between houses;
• front yard setback;
• amount and character of landscaped open area on private property;
• width and configuration of the driveway; and
• location of the garage and/or carport.
The Phase 1 Report noted that these observed changes can lead to compatibility issues
related to overlook conditions, privacy, shadowing and sense of place.
Phase 1 of the Study categorized the various key elements of neighbourhood character
that can have an impact on compatibility of new development into three themes: Built Form;
Streetscape; and Neighbourhood Composition.
The Phase 1 Report also provided a summary of best practices from other municipalities
that have experienced a similar increase in infill and replacement housing in established
neighbourhoods.
2. Planning Options Report
The Planning Options Report completes Phase 2 of the Study and addresses the following
as they relate to the matter of infill and replacement housing:
• identifies gaps and opportunities in existing City policy, guidelines and strategies;
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 4
• identifies potential tools and strategies to address the compatibility
issues/trends/observations identified in Phase 1;
• provides a rationale for a preferred strategy for managing new infill and replacement
housing, while respecting and/or enhancing a neighbourhood's character;
• presents the feedback received at the October 29, 2019 Public Open House 2; and
• presents the feedback received from the online Infill Survey.
2.1 Tools for Addressing Compatibility
The Planning Options Report identifies various tools that can be used to address issues
arising from the development of infill and replacement housing, each of which can be used
individually or collectively. The report explains the tools and how they are, and/or could be,
used in Pickering, and include:
• official plan policies;
• zoning by-law performance standards;
• urban design/development guidelines; and
• other tools and processes such as:
• building permit, minor variance, and Consent application review processes;
• site plan control;
• architectural control;
• municipal guidelines (for example, the City's "Expectations for Construction Site
Maintenance" document); and
• municipal by-laws (e.g., Noise Control By-law 6834/08, Boulevard Maintenance
By-law 6831 /08,Tree Protection By-law 6108/03).
2.2 Analysis and Opportunities
The Analysis and Opportunities section of the report identifies opportunities to address the
compatibility issues identified in Phase 1 of the Study. These opportunities are itemized in
accordance with the key elements within the themes established in Phase 1 (Built Form,
Streetscape and Neighbourhood Composition).
2.3 Preliminary Options
The analysis of the various opportunities resulted in Preliminary Options that are
summarized in section 3 of the Planning Options Report.
In addition to the Preliminary Options, the Draft Planning Options Report contained
proposed boundaries to "Neighbourhood Precincts". The Neighbourhood Precinct areas are
a reflection of where most of the observed changes have occurred, and/or are expected to
continue to occur in the future.
The Draft Planning Options Report was made available on the City's website and through
the Public Open House 2 for feedback from the community.
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 5
2.4 Community Engagement
2.4.1 Public Open House 2
On October 17 and 24, 2019, Notices of a Public Open House appeared in the Ajax -
Pickering News Advertiser for 2 consecutive weeks prior to the meeting. Interested parties
who requested to be kept informed about the Study were sent a Notice of the Public Open
House either by email or regular mail. In addition, people listed on the Interested Parties
List for the applications at 505 and 591 Liverpool Road (Pickering Harbour Company) and
1280, 1288-1294 Wharf Street and 607 Annland Street (Morgan Application) were also
notified of the Public Open House either by email or regular mail. A notice of the Public
Open House was also delivered to all properties within the Neighbourhood Precincts
identified in Appendix A of the Draft Planning Options Report.
On October 29, 2019, Public Open House 2 was held to receive community input into the
Draft Planning Options Report regarding:
• suggested planning options related to managing infill and replacement housing in their
neighbourhood; and
• proposed Neighbourhood Precinct boundaries where change should be managed.
Approximately 100 people attended Public Open House 2, which consisted of a
presentation from the consultant team, followed by a group workshop and the opportunity
for participants to provide written feedback on the preliminary options presented.
Detailed feedback from Public Open House 2 is contained in Appendix C of the Planning
Options Report.
2.4.2 Infill Survey
In addition to the public open house, community engagement in Phase 2 included the
"Infill Survey", an online questionnaire regarding the potential options for addressing the
compatibility issues identified in Phase 1. The Infill Survey was available between
October 17, 2019 and November 4, 2019, as well as in hard copy format at the
October 29, 2019 Public Open House 2. Approximately 154 surveys were completed and
submitted to the City.
Detailed feedback from the Infill Survey is contained in Appendix B of the Planning Options
Report.
2.4.3 Summary of Community Engagement
The following is a summary of the key responses and comments received through the
community engagement initiatives:
• The majority of respondents were interested in one of the following Focus
Neighbourhoods: West Shore, Bay Ridges, Liverpool, Rosebank and Dunbarton.
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 6
• The majority of responses indicated that the maximum Dwelling Height should be
regulated based on the height of nearby dwellings, and that 9.0 metres is an appropriate
maximum dwelling height. Approximately 35 percent of responses indicated that the
maximum height should be lower than 9.0 metres.
• With respect to the Height of the Front Entrance, over 50 percent of responses
indicated that this should be regulated. The results for a suggested maximum Height
of the Front Entrance was very close between 6 steps (1.2 metres) and 3 steps
(0.6 metres). It is notable that many participants also indicated an interest in having the
Height of the Front Entrance similar to that of other dwellings on the same street.
• With respect to maximum Lot Coverage, an even split of responses noted a preference
for either maintaining the maximum permitted Lot Coverage at 33 percent or lowering it
to 25%. There was similar interest between a desire for maximum Lot Coverage to be
based on the average within a Focus Neighbourhood and a desire for it to be based on
the average on a more localized scale (e.g., based on individual streets within Focus
Neighbourhoods).
• The majority of responses indicated that the City should regulate maximum Dwelling
Depth within Focus Neighbourhoods and that the depth of dwellings should be
compatible with that of other dwellings on the same street.
• The majority of responses indicated agreement with the options presented with respect
to Separation Distance Between Dwellings. Responses favoured regulating the
Separation Distance Between Dwellings based on the existing distance between
dwellings on the same side of the street.
• The majority of responses indicated agreement with the options presented with respect
to Front Yard Setback. Responses also indicated a preference for the minimum Front
Yard Setback to be based on the average Front Yard Setback of all dwellings along the
same side of the street within the same block.
• With respect to Garage and Carport Placement, responses indicated a strong
preference for implementing urban design guidelines, over all other options, to address
this matter. However, there was also support noted for the other options presented, with
less support for garage and carports to be set back behind the front main wall of a
dwelling, which received limited interest.
• The majority of responses indicated a desire for the City to regulate Driveway Width in
Focus Neighbourhoods. The majority of responses supported limiting Driveway Width
to be no wider than that required to fit 2 cars side-by-side (6.0 metres, 20 feet). A
significant number of responses also noted that the width of driveways within the public
right-of-way, in instances where the driveway width is greater than 6.0 metres on private
property, should be restricted to a maximum of 6.0 metres (20 feet).
• Over half of responses noted that the City should not consider regulating Front Yard
Landscaping within Focus Neighbourhoods. There was little interest noted in regulating
the minimum amount of area that should be soft landscaping features in the front yard.
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 7
• Although not identified as part of the Neighbourhood Precincts undergoing change
through infill and replacement housing, there are areas within the Liverpool Road
Waterfront Node that are the subject of major redevelopment proposals. Approximately
103 responses were received to the online survey opportunity for commenting on the
future of the Liverpool Road Waterfront Node. A summary of these comments is
found in Appendix B of the Planning Options Report.
2.5 Preferred Strategy
The Preferred Strategy outlined in section 5 of the Planning Options Report takes into
consideration the feedback received through the community engagement activities
described above.
The Preferred Strategy is summarized below and includes proposed changes to the City of
Pickering Official Plan, the City's Zoning By-laws and the preparation of Urban Design
Guidelines, and other tools, and is intended to apply to the Neighbourhood Precincts as
identified in Appendix A of the Planning Options Report.
Preferred Strategy:
• Add new policies in the Pickering Official Plan that require that new infill and
replacement housing complement the character of established neighbourhoods
specifically as it relates to: Dwelling Height and Roof Pitch, Side Yard Setback and
Separation Distance Between Dwellings, Lot Frontage, Front Yard Setback, Garage or
Carport Placement, Front Yard Landscaping and Street Trees;
• Add new Performance Standards in the Zoning By-law to:
• Restrict the maximum Dwelling Height in the Focus Neighbourhoods to 9.0 metres;
• Restrict the maximum Height of the Front Entrance to a maximum of 6 steps
(1.2 metres);
• Restrict the maximum Dwelling Depth based on the depth of the lot (for lots with
depths less than 30 metres: maximum dwelling depth of 15 metres; For lots with
depths between 30 and 40 metres: maximum dwelling depth of 17 metres; For lots
with depths greater than 40 metres: maximum dwelling depth of 20 metres);
• Restrict the maximum Front Yard Setback to no greater than that of either adjacent
lot, whichever is greater;
• Restrict the Width of a Garage or Carport to a maximum of 50 percent of the
overall width of a dwelling;
• Restrict the maximum Driveway Width to 6.0 metres;
• Amend Performance Standards in the Zoning By-law to:
• Restrict Lot Coverage to be within the range of 25 percent to 33 percent within
Neighbourhood Precincts. Currently the average existing Lot Coverage within the
Focus Neighbourhoods is 25 percent, whereas, generally, the maximum permitted
Lot Coverage across most Focus Neighbourhoods is 33 percent;
• Restrict the minimum Front Yard Setback to be based on the average existing
Front Yard Setbacks of all dwellings along the same side of the street within the
same block;
PLN 01-20 January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 8
• Confirm that the Performance Standard in the Zoning By-law for maximum Dwelling
Height of 9.0 metres applies to the areas within the Neighbourhood Precincts and to the
lands designated "R3" — Residential Third Density and "R4" — Residential Fourth Density
in accordance with By-law 7610/18;
• Adopt New Urban Design Guidelines that address the following key elements of
neighbourhood character:
• Dwelling Height and Roof Pitch;
• Height of Front Entrance;
• Dwelling Length, Width and Depth;
• Side Yard Setback and Separation Distance Between Dwellings;
• Garage or Carport Placement;
• Driveway Width and Front Yard Landscaping;
• Street Trees; and
• Consider adoption of a Private Tree By-law that would protect trees on private
property.
3.0 Next Steps
Phase 3 of the Study will:
• analyze the Preferred Strategy in terms of expected results, resources, processes and
efficiencies associated with implementation;
• recommend strategies, tools, guidelines, including Draft Design Guidelines, timing and
required resources to address infill and replacement housing within the City of Pickering
for Council consideration;
• recommend where these strategies, tools and guidelines should be implemented within
the City of Pickering;
• engage the public, agencies and stakeholders; and
• address feedback from the consultation process undertaken in Phase 3.
Phase 3 will result in the preparation of a Recommendation Report and Draft Design
Guidelines.
City staff will report to Planning & Development Committee and Council on the
Recommendation Report and Draft Design Guidelines.
Attachment:
1. Map of Focus Neighbourhoods
PLN 01-20
January 13, 2020
Subject: Infill and Replacement Housing in Established Neighbourhoods Study Page 9
Prepared By: Approved/Endorsed B
vigor
arga'fet Kish, MCIP, RPP Catherine Rose, MCIP, R
Principal Planner, Policy
D=an Jacobs, MCIP, RPP
Manager, Policy & Geomatics
MK:Id
Chief Planner
/4.
Kyle Bentley, P. Eng.
Director, City Development & CBO
Recommended for the consideration
of Pickering City Council
Tony Prevedel, P. Eng.
Chief Administrative Officer
Attachment #1 to Report #PLN 01-20
co
c.)
0
Duffin
Third Concession
Road
Heights
/
03
0
Ce
as
o
a
CU
0
0
Ce
0
Liverpool
Brock
Ridge
Finch Avenue
Rouge
Park
01
Amberlea
\
1/-0,
llik
IL
1.vE:te
Highbush 1ir
Sheppard,Avenue—
I,
Dunba
-rton
City
Centre
.....
�- -�
�'`''
O�
�etr'
Rougemount
Woodlands
7
Bay
R
dges
Brockt
_ii•
� f,
West
-Shore
-J
Industrial
1
li
c.,____,/t
Rosebank
-
/j,........./. --j
Lake Ontario
N
Q Focus NeighbourhoodsAiil
Map of Focus Neighbourhoods
C4 4
File: D1100-096
PICKERING
City Development
Department
Mar. 11, 2019 Date:
C The Corporation of the Cny of Pickennq Produced �n part) under license from: ®Queens Pnnter, Ontano Ministry of Natural Resources.
All rights reserved.;® Her Majesy the Queen in Right of Canada, Department of Natural Resources. All rights reserved.;
A Teranet Enterprises Inc. and its suppliers all rights reserved.; ® Municipal Property Assessment Corporation and its suppliers all rights reserved.;
SCALE. 1:50,000 OOO
THIS IS NOTA PLAN OF SURVEY