HomeMy WebLinkAboutCSD-13-009 - OPA-ZC-Multi-Modal Transit Hub
REPORT TO:
Planning and Strategic Initiatives Committee
DATE OF MEETING:
February 25, 2013
SUBMITTED BY:
Alain Pinard, Director of Planning
PREPARED BY:
Heather Holbrook, Senior Planner (Urban Design), 519-741-
2200 ext 7324
WARD(S) INVOLVED:
Ward 10
DATE OF REPORT:
January 28, 2013
REPORT NO.:
CSD-13-009
SUBJECT:
Official Plan Amendment Application OP12/02/K/HH and
Zone Change Application ZC12/15/K/HH
Region of Waterloo Multi-Modal Transit Hub
490-520, 510 King Street West, 16, 50 and 60 Victoria
Street North
RECOMMENDATIONS:
A. That Official Plan Amendment Application OP12/02/K/HH (Regional
Waterloo, 490-520 King Street West, 16-60 Victoria Street North)
Special Policy Area and associated policies be adopted, in the f
Official Plan Amendment attached to Report CSD-13-
accordingly forwarded to the Region of Waterloo for approval; AN
B. That Zone Change Application ZC12/15/K/HH (Regional Municipality of Waterloo,
490-520, 510 King Street West, 16, 50, 60 Victoria Street North) for the purpose of
changing the zoning from Warehouse District Zone (D-6) with and without site-
specific provisions to Warehouse District Zone (D-6) with Special Regulation
Provision 638R, Special Use Provisions 426U and 427U and Holding Provision 6
be approved -
attached to Report CSD-13- AND
C. That the Urban Design Brief for the Region of Waterloo Multi-Modal Transit Hub,
dated January 2013, and attached to Report CSD-13-be
adopted; AND
D. That the City support the assumption of the portion of Waterloo
Breithaupt Street to Victoria Street North by The Regional Munic
Waterloo; AND FURTHER
E. That the City of Kitchener participate in the procurement proce
undertaken by the Regional Municipality of Waterloo for the sele
sector development partner(s) for future development of the site
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EXECUTIVE SUMMARY:
The Regional Municipality of Waterloo is proposing to establish site-specific special policies in
the Official Plan and corresponding special provisions in the Zoning By-law to broaden the
range of permitted land uses, to increase the maximum Floor Space Ratio to 7.5 and to
establish policies to guide the appropriate future development of the subject lands as a mixed
use, high density multi-modal transit facility. Staff are recommending approval of the Official
PlanAmendment and Zone Change attached as Appendices A and B to this report.
Staff are also making recommendations to implement Special Policies contained in the Official
Plan Amendment. Staff are recommending that:
a) the Urban Design Brief submitted in support of the applications be adopted;
b) the City support the assumption of the portion of Waterloo Street from Breithaupt
Street to Victoria Street North by The Regional Municipality of Waterloo; and
c) the City participate in the procurement process to be undertaken by the Regional
Municipality of Waterloo for the selection of a private sector development partner(s)
for future development of the site.
BACKGROUND:
The subject lands are owned by the Regional Municipality of Waterloo (the Region) and
applications for an Official Plan Amendment and a Zone Change were submitted by GSP Group
on behalf of the Region on August 31, 2012. The subject lands are approximately 1.6 hectares
in size and are located at the northwest corner of the intersection of Victoria Street North and
King Street West. The subject lands are generally bounded by the Canadian National Railway to
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the north, Duke Street West to the east, Victoria Street North to the south and King Street West
to the west.
The subject lands are designated City Urban Area in the Regional Official Policies Plan, and are
designated Warehouse District in the City of Kitchener Official Plan. The lands are currently
zoned Warehouse District Zone (D-6) with special regulations applicable to portions of the
subject lands. The property municipally addressed as 490-520 King Street West is currently
occupied by a retail business. The property municipally addressed as 16 Victoria Street North is
occupied by a commercial building currently used as a sales centre. The property municipally
addressed as 60 Victoria Street North is occupied by the former Rumpel Felt Company building,
which is currently vacant. Otherwise the subject lands are currently being used as a temporary
surface parking lot.
The Region is planning a new multi-modal transit facility and mixed use development in this
location. The applicant is proposing to establish site-specific special policies in the Official Plan
and corresponding special provisions in the Zoning By-law to broaden the range of permitted
land uses, to increase the maximum FSR to 7.5 and to establish policies to guide the
appropriate future development of the subject lands as a mixed use, high density multi-modal
transit facility. There is not a Site Plan application for consideration at this time. The applicant is
uses for future development applications, which are likely to be submitted in phases toward full
build out of the subject lands in the long term.
REPORT:
Proposed Official Plan Amendment
The subject lands are currently designated Warehouse District in the Official Plan. The current
designation permits uses suited to the reuse of the existing buildings, such as warehouse
outlets, boutiques, studios, restaurants, office, commercial entertainment as well as some
industries. Policies in the Official Plan stipulate that the full range of retail uses are permitted
only on properties fronting directly on King Street. Residential uses are permitted only as
conversions of existing buildings. The current designation establishes a maximum floor space
ratio (FSR) of 2.0 (a maximum developable floor area amounting to twice the total site area).
The applicant is proposing to establish site-specific special policies in the Official Plan and
corresponding special provisions in the Zoning By-law to broaden the range of permitted land
uses, to increase the maximum FSR to 7.5 and to establish policies to guide the appropriate
future development of the subject lands as a mixed use, high density multi-modal transit facility.
To provide sufficient guidance for the future development applications, the City has incorporated
a number of policies in proposed Official Plan Special Policy No. 49.As discussed in the
Proposed Official Plan Amendment, attached as Appendix A to this report, staff are of the
opinion that the Official Plan Amendment provides theappropriate amount of flexibility for future
development applications while ensuring that such applications areboth appropriate and
compatible. The Official Plan Amendment represents sound land use planning because it is
consistent with the goals and objectives of the Provincial Policy Statement and the 2006 Growth
Plan for the Greater Golden Horseshoe, conforms with Regional policy and is in the public interest
as outlined in this Report. Staff recommend that the Official Plan Amendment attached as
Appendix A to this report be adopted by Council and forwarded to the Region for approval.
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Proposed Zone Change
The subject lands are currently zoned Warehouse District Zone (D-6) with special provisions
that apply to portions of the subject lands. The block bounded by King Street West, Victoria
Street North, Waterloo Street and the railway is also subject to Holding Provision 42H which
limits the range of permitted uses until such time as the Ministry of the Environment is satisfied
that environmental remediation has occurred. A portion of the block bounded by Victoria Street
North, Waterloo Street, Duke Street West and the railway is subject to Special Regulation 105R
and Special Use Provision 141U. The special regulation provision specifies regulations for
retail, office and residential uses and provides special provisions for parking. The special use
provision permits commercial entertainment and retail uses, but only within existing buildings.
The current zoning implements the Official Plan policies with respect to permitted land uses and
maximum FSR. The parking requirements for future development of the subject lands are
regulated by the general parking rates applicable in the downtown area.
The applicant is proposing to retain the D-6 zoning and eliminate the special provisions
applicable to portions of the subject lands, and replace them with new special provisions that
apply uniformly across the subject lands. The purpose of this Zone Change corresponds with
the purpose of the Official Plan Amendment; to broaden the range of permitted uses, to
increase the maximum FSR to 7.5 and to reduce the parking and loading requirements for
future development of the subject lands.
Through consultation with the Region, the City has incorporated a number of regulations in
proposed Special Zoning Provisions 426U, 427U, 638R and 68H to establish the necessary
regulatory framework for future development. The proposed Zone Change is attached as
Appendix B to this report. The regulations as proposed are intended to promote compatibility of
all phases of future development within the established urban fabric and to ensure that the
development makes a positive contribution to the surrounding built environment. Generally, the
proposed site-specific provisions embed a direction from one or more of the supporting studies
into the regulatory framework of the Zoning By-law. Each of the proposed site-specific
provisions directly implements one or more aspects of the proposed Official Plan Special Policy
No. 49 and/or the general Policies of the Official Plan. TheZone Change represents sound land
use planning because it implements the Official Plan which, as outlined above, is consistent with
the goals and objectives of the Provincial Policy Statement and the 2006 Growth Plan for the
Greater Golden Horseshoe, conforms with Regional policy and is in the public interest. Staff
recommend that the Zone Change attached as Appendix B to this report be approved by Council.
Policy Conformity
Provincial Policy Statement
The Provincial Policy Statement (PPS) sets the policy foundation for regulating the development
and use of land in Ontario. The PPS promotes building liveable communities through the
efficient development of lands and appropriate mix of land uses, housing types and densities.
The proposed Official Plan Amendment and Zone Change represent an intensification
opportunity in the built-up area of the City to accommodate a range and mix of employment,
housing and other land uses. The proposed density and mix of land uses makes efficient use of
the land and infrastructure. The availability of suitable infrastructure to accommodate the
proposed intensification has been appropriately considered. The proposed co-location of
various transit service facilities within a centralized and integrated facility represents an efficient
delivery of public service and infrastructure and supports public transit and other alternative
transportation modes. For these reasons, the proposed Official Plan Amendment and Zone
Change are consistent with the PPS.
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2006 Growth Plan for the Greater Golden Horseshoe
The subject lands are within built-up area as defined by the 2006 Growth Plan for the Greater
Golden Horseshoe (Growth Plan). The Growth Plan directs population and employment growth
to built-up areas. The proposed Official Plan Amendment and Zone Change to permit greater
intensification of the subject lands are in line with this growth management objective of the
Growth Plan.
The subject lands are within the Urban Growth Centre for the City of Kitchener as defined by the
Growth Plan. The Growth Plan envisions Urban Growth Centres to be planned as focal areas
for investment in institutional and region-wide public services as well as commercial,
recreational, cultural and entertainment uses. The Urban Growth Centres are also locations
intended to support major transit infrastructure, to serve as major employment centres and to
accommodate a significant share of population and employment growth. The proposed Official
Plan Amendment and Zone Change will assist in achieving these planning objectives for the
Urban Growth Centre.
Generally, the Growth Plan promotes development that contributes to complete communities
that offer a range of land uses, a diverse mix of housing choices, high quality open and public
spaces and sustainable transportation options.In general, the proposed Official Plan
Amendment and Zone Change are consistent with the goals and objectives of the Growth Plan.
Regional Official Policies Plan
The subject lands are designated City Urban Area in the Regional Official Policies Plan (ROPP)
and Regional Official Plan (ROP) approved in June 2009 and currently under appeal. The
designation allows for a variety of land uses including residential, institutional, employment,
recreational, open space and commercial. The proposed Official Plan Amendment and Zone
Change conform with the applicable policies of the Regional Official Policies Plan and Regional
Official Plan.
Other Information and Materials
Planning Report
A Planning Report dated August 2012 and an addendum dated January 2013 were submitted to
support the requested amendments. The Planning Report provides a rationale for the proposed
Official Plan Amendment and Zoning Change applications. The Planning Report concludes that
the multi-modal transit hub and related planning applications to permit high density mixed use
intensification of the subject lands are consistent with the objectives of the Provincial Policy
Statement and the Growth Plan for the Greater Golden Horseshoe, conform to Regional Official
Plan policies, are in the public interest and represent sound land use planning. Staff are in
agreement with the conclusions of the Planning Report.
Parking Requirements Justification Report
A Parking Requirements Justification Report dated November 2012 was submitted to support
the requested Zoning Change application to reduce the parking requirements for the subject
lands. The information contained in this report served as a useful resource in the preparation of
the proposed site-specific parking and loading regulations for the subject lands as contained in
proposed Special Regulation Provision 638R subsections xii) to xvii) in the Zoning By-law.
Transportation Services has advised that the parking supply rates are justified and acceptable
for the multi-modal hub development.
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A Noise and Vibration Compatibility Feasibility Assessment
A Noise and Vibration Compatibility Feasibility Assessment dated May 4, 2012 was submitted
with respect to the request to introduce residential as a permitted land use in this location. The
assessment recommends that detailed noise and vibration studies be conducted prior to
residential development being permitted on the subject lands. This recommendation has been
incorporated in proposed Official Plan Special Policy No. 49 subsection xv) a) and proposed
Special Use Provision 427U in the proposed Zoning By-law.
Heritage Impact Assessment
A Heritage Impact Assessment (HIA) dated April 5, 2012 was submitted as part of the complete
applications to give consideration to the cultural heritage resources on the subject lands and on
adjacent properties. In so far as recognizing the significance of the Rumpel Felt Building on the
subject lands, the HIA recommended conservation measures for the adaptive reuse of the 1913
portion of the Rumpel Felt building, recommended built form design direction for additions as
well as new development on the property to ensure sensitivity to the Warehouse District and
environs and recommended that a Conservation Plan for the 1913 portion of the Rumpel Felt
building be completed at an appropriate time in the planning approvals process. The HIA also
recommended that the 1913 portion of the Rumpel Felt building be listed on the Municipal
Heritage Register in the short term and designated under Part IV of the Ontario Heritage Act in
s typical process for the
designation of property subject to redevelopment/adaptive re-use.
The Heritage Impact Assessment was reviewed by Heritage Kitchener at its meeting on October
2, 2012. The Committee expressed general support for the HIA. Heritage Kitchener requested
thatthe City proceed with the process for listing the 1913 portion of the Rumpel Felt building on
the Municipal Heritage Register as a Non-Designated Property of Cultural Heritage Value or
Interest. That process is underway andCouncil can anticipate a report on that matter in the
coming months.
The HIA was revised November 22, 2012 and subsequently approved by the Director of
Planning on November 30, 2012. The primary conclusions and recommendations of the HIA
have been reflected in the Design Brief, Official Plan Special Policy No. 49 subsections iv), ix)
and xxii) as well as proposed Special Regulation Provision 638R in the Zoning By-law.
Urban Design Brief
The applicant submitted an Urban Design Brief dated August 2012 and revised January 2013 to
support the applications. The Urban Design Brief was prepared in consultation with City staff
and
urban landscape. The document includes an overall design vision, principles and guidelines to
guide future development of the subject lands. It is recommended that City Council adopt the
Urban Design Brief dated August 2012 and revised January 2013 as attached as Appendix C to
this report. The Urban Design Brief will become the guiding document for all future Site Plan
approvals for the development. Any significant deviations from the Urban Design Brief will
require Council approval. This approach has been used successfully in many large, multiple
stage developments including the Health Sciences Campus, Sports World Crossing and 1
Adam Street.
Transportation Impacts
As a separate (but related) process, the Region has commissioned a consultant to conduct a
comprehensive review of Preliminary Site Design Considerations and prepare a Proposed
Station Area Access Plan. The study is looking at conceptual design and layout options for the
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Transit, local roads, inter-city buses, pedestrians and cycling routes. The study is being guided
by a Working Group consisting of staff from the City and the Region. Numerous meetings have
been held with other stakeholders representing the interests of active transportation,
accessibility, rail operations and the surrounding property owners. The comprehensive review is
sufficient to support the Official Plan Amendment and Zone Change applications from a
transportation perspective.Site-specific transportation issues still outstanding (access for
example) will be addressed through the Site Planapproval process.
The City has received correspondence from the Region advising of the intent to assume the
portion of Waterloo Street from Breithaupt Street to Victoria Street North. It is the Ci
understanding that the Region does not intend to close Waterloo Street at this time. It is
reasonably foreseeable that the Region may proceed to close Waterloo Street between
Breithaupt Street and Victoria Street North to facilitate redevelopment of the subject lands as
one consolidated parcel if and when it is deemed necessary. To close a road right-of-way
requires the completion of a Schedule A+ Environmental Assessment. The closure of Waterloo
Street is being evaluated as part of the Multi-modal Transit Hub Environmental Assessment
which is currently underway. The proposed Official Plan Amendment, Zone Change and Urban
Design Brief have considered the possible eventuality of development on what is currently the
Waterloo Street road right-of-way.
Legal, Engineering Services, Transportation Services and Planning staff have no objections to
the Region assuming this portion of Waterloo Street as proposed. Staff are therefore
recommending that the City support the assumption of the portion of Waterloo Street from
Breithaupt Street to Victoria Street North by the Regional Municipality of Waterloo.
Servicing
There are City services (water, sanitary and stormwater) within the portion of Waterloo Street
that the Region plans to assume. Access to this City infrastructure must be maintained, the
details of which will be resolved in the context of a possible future road closure process and/or
the Site Plan approval process.
Engineering advised that confirmation of sanitary capacity is needed prior to development
proceeding. The City has proposed Holding Provision 68H to ensure that Servicing Capacity is
confirmed prior to development of the subject lands.
Additional Considerations
In addition to the implementation of these conventional planning tools to influence future
development, as the owner, the Region has considerable control over the future development of
the subject lands. The City and Region are in agreement that urban design and the quality of
the development are of utmost importance for the success of this site as a landmark and state-
of-the-art facility. This tenet is reflected in the first line of proposed Official Plan Special Policy
Official Plan Special Policy No. 49 subsections i) through ix) all provide
design direction with the goal of achieving a high quality of urban design on the subject lands.
The Region can ensure that the development demonstrates high quality design and architecture
by specifying these expectations in the procurement process for the selection of a private sector
partner(s) for future development of the subject lands. Staff are recommending that the City of
Kitchener participate in the Regional procurement process. To date, all of the project work on
the Regional multi-modal transit hub project has been undertaken in consultation with City of
Kitchener staff. City staff are represented on steering committees and working groups of the
component sub-projects relating to the multi-modal transit hub (such as the Preliminary Site
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Design Considerations and Proposed Station Area Access Plan described above). Staff are
committed to ongoing collaboration on this project, including participation in the procurement
process.
Community Input
The public comments received through the circulation can be summarized into several subject
areas, as outlined below.
Density and Floor Space Ratio
Generally there seemed to be public support for the proposed density. There were comments
submitted that expressed support with caution; that the proposed density seems appropriate for
the subject lands but not if it becomes a precedent for all sites in the downtown or translates to
or results in significant intensification in nearby stable neighbourhoods. Staff note that each
application is considered on its merits and that the current applications to redesignate and
rezone apply only to the multi-modal transit hub site; not any other properties in the City. There
will be opportunities for public input on any future Official Plan Amendments or Zone Changes
cted to
be published for public comment later this year.
There was one comment that indicated that the requested FSR was too high, but the majority of
comments were supportive of the proposed development intensity and one even suggested that
the FSR be increased to up to 8.0. There were a few submissions that wanted to make sure that
the scale of future development be in keeping with surrounding buildings. Staff agree with these
comments and have incorporated policies in the Official Plan and regulations in the proposed
Zoning By-law to ensure that the scale of future development is compatible with and does not
overwhelm the surrounding built environment. The Urban Design Brief also includes guidelines
to this effect.
Land Uses
Generally there was support for the proposed mix of land uses. Many submissions expressed
support for residential, office, retail (such as grocery stores, convenience retail, pharmacies, and
flower shops), restaurant/café, entertainment (such as a cinema), personal services (such as a
dry cleaner) and financial services (such as a bank) as appropriate land uses for the subject
lands. There were disparate opinions about whether Beer Store or LCBO would be an
appropriate use. There was support for providing street level retail and other similar active uses
to improve streetscape quality. All of the above noted uses would be permitted by the proposed
Zoning By-law in accordance with the applicable regulations.
One submission recommended that strip clubs, massage parlours and bars be restricted from
the range of permitted uses citing compatibility concerns. Each of these uses is a subordinate
use to a category of land use that is generally appropriate for the subject lands (eg: a bar would
be classified as a restaurant in the Zoning By-law). Rather thanprohibiting the full range of
commercial entertainment, personal service and/or restaurant uses which are considered
appropriate for the subject lands, there are other mechanisms in place to address the
compatibility concerns raised. The C
Licensing for Adult Entertainment Parlours specifically prohibits the issuance of a Business
License for either an adult massage parlour or strip club at this location because it does not
have B-4 zoning.With respect to bars, complaints pertaining to noise, nuisance or other
-Law Enforcement department rather than
through Zoning By-law regulations. Staff are confident in the Business Licensing, Site Plan and
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By-Law Enforcement processes as appropriate mechanisms to address compatibility concerns
and potential behavioural issues.
Some comments made pertaining to land use extend beyond the scope of what can be
regulated by a Zoning By-law. For example, there was a recommendation that local businesses
be favoured over franchise or chain businesses. Similarly, there were other comments made
with respect to the affordability of spaces (lease and/or rental rates). Such comments may be
better considered by the Region at the time of selecting a development partner or ultimately in
securing tenants or occupants for the commercial and/or residential spaces. The Region has
also received copies of all of the public comments.
In addition to the above comments, there were numerous submissions that expressed support
for allocating space on the subject lands for public amenity/waiting areas and/or gathering
spaces. There was emphasis on year-round weather protection of these spaces. There was
ite through vegetation and providing public amenities such as
seating areas, water features, public art and pedestrian-scaled lighting. Many of these principles
are contained within the proposed Urban Design Brief as well as proposed Official Plan Special
Policy No. 49.
Heritage Resources
Some submissions emphasized conservation of the Rumpel Felt building as a priority for future
development. The findings of the Heritage Impact Assessment submitted in support of the
applications recommend conservation measures for the 1913 portion of the Rumpel Felt
building. The HIA has been approved and appropriate measures have been incorporated in the
proposed Official Plan Special Policy No. 49, the proposed Zoning By-law and the proposed
Urban Design Brief. In addition, the process to list the 1913 portion of the Rumpel Felt building
on the Municipal Heritage Register as a means of formally recognizing its cultural heritage value
is already underway.
Noise/Vibration/Pollution/Safety
A few submissions expressed concerns with possible noise, vibration and pollution impacts
resulting from construction and ultimate land uses. As with any development application, these
types of considerations are evaluated in accordance with provincial and regional regulations
governing compatibility. General Official Plan policies are in place governing noise, vibration
and safety and are all applicable to the subject lands. Attenuation measures may be required
through the Site Plan approval process.
With respect to safety, some submissions also emphasized creating a safe and comfortable
environment and deterring criminal activities as much as possible. Several aspects of the Urban
Design Brief reflect Crime Prevention Through Environment Design (CPTED) principles which
will assist in achieving that objective. These CPTED principles will be considered through the
Site Plan approval process.
Transportation/ Traffic
It was evident from the submissions that integration of the various transportation modes on the
subject lands is a priority. This key tenet is reflected in the proposed Urban Design Brief. There
seemed to be a lot of support for the preliminary design considerations of accessibility, cycling
and pedestrian connectivity on-site and beyond the site as well as the provision of on-site
transit, cycling and pedestrian amenities (such as waiting areas, bike racks and streetscaping).
Some questioned whether the size of the subject lands could accommodate all of the proposed
transportation functions as well as additional space for other uses. Some questioned site access
and circulation details (such as locations for taxi queuing and possible on street bus loading
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areas). Preliminary Site Design and Station Area Access is currently considered and has
informed appropriate aspects of the Official Plan Amendment and Urban Design Brief for the
subject lands. A more detailed review of transportation and traffic circulation considerations will
be fully completed in the context of the Site Plan approval process.
There were a few transportation related comments submitted that may be better considered by
the Region in the context of other Regional transportation planning processes. For example,
several submissions suggested improved connections to the Waterloo Regional airport and the
Pearson International airport. This is not a matter than can be addressed through the planning
applications currently under consideration.
There were divergent opinions on the proposed parking reductions. Some expressed support for
the reductions, some recommended that parking rates be eliminated entirely and others
expressed concerns that the parking reductions were too generous. The applicant submitted a
Parking Requirements Justification Report dated November 2012. With this information, a site-
specific parking and loading schedule has been prepared as part of the proposed Zoning By-
law. The proposed parking and loading rates are intended to serve as an interim measure until a
more comprehensive review of parking rates City-wide is completed in the future, which may or
may not result in further refinement of the proposed parking rates for the subject lands.
Two comments expressed reservations with respect to reduced parking rates and suggested
that parking in the immediate area needs review and that parking enforcement (eg: with respect
to use of onstreet parking) needs to be part of the implementation plan for the multi-modal
transit hub development. The -Law Enforcement departmentis committed to ongoing
enforcement of parking infractions City-wide.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
This proposal supports development of our community and will align with the Kitchener Strategic
Plan. The multi-modal transit hub and mixed use intensification of the property will be catalytic
for achieving many of our Strategic Plan community priorities, including Quality of Life, Dynamic
Downtown and Development.
FINANCIAL IMPLICATIONS:
The recommendations do not have any direct financial implications at this time. There are no
financial implications to the City associated with the Regional assumption of that portion of
Waterloo Street. The recommended implementation policies contained in proposed Official Plan
Special Policy No. 49 and the recommendation that the City participate in the Regional
procurement process will require commitments of staff time that are within the operating
budgets of the applicable divisions and therefore do not require any additional funding.
COMMUNITY ENGAGEMENT:
The proposed Official Plan Amendment and Zone Change were circulated to City departments,
commenting agencies and property owners within 120 metres of the subject lands as per
Planning Act requirements in September 2012. A copy of all agency/department comments are
attached as Appendix E to this report. Staff received several written responses from property
owners and interested parties in response to the public circulation. A copy of all written
submissions are attached as Appendix G to this report. The public comments have been
addressed in the Community Input section of this report.
Notice signs were placed on the subject lands advising of the applications and a Neighbourhood
Information Meeting was held September 27, 2012. The Region also circulated property owners
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within 800 metres of the subject lands as a courtesy, inviting them to attend the Neighbourhood
Information Meeting. The September 27, 2012 session was very well attended, with over 250
residents and interested parties in attendance. The summary notes from the question and
answer period of that meeting are attached as Appendix F to this report. As a follow up from that
session, staff also attended the monthly meeting of the Downtown Neighbourhood Alliance on
November 27, 2012.
Information regarding the Planning and Strategic Initiatives Committee meeting date will be
circulated to all property owners responding in writing, by email or who attended the September
27, 2012 neighbourhood meeting. Notice of the Public Meeting, attached as Appendix D to this
report, will also be given in The Record on February 1, 2013.
CONCLUSION:
Based on the foregoing, staff are of the opinion that the Official Plan Amendment and Zone
Change are appropriate and represent good planning. The applications represent an excellent
mixed use intensification opportunity at an optimal locat
Growth Centre (Downtown), and propose to make efficient use of land and infrastructure. The
applications are consistent with the Provincial Policy Statement and the Growth Plan for the
Greater Golden Horseshoe, and conform with the Regional Official Plan.The comments
received through the public and agency circulation have been appropriately addressed.
Appropriate recommendations have been made with respect to actions for the City to take to
implement policy direction contained in the proposed City Official Plan Amendment. Therefore, it
is recommended that the Official Plan Amendment be adopted and forwarded to the Region for
approval and that the Zone Change be approved.
Reviewed by: Della Ross, Manager of Development Review
ACKNOWLEDGED BY:
Michael May, Deputy CAO
Community Services Department
Appendices
A Proposed Official Plan Amendment & Schedule A
B Proposed Zone Change & Map 1
C Proposed Urban Design Brief
D Newspaper Notice
E Agency Comments
F Questions and Answers at the Neighbourhood Information Meeting September 27, 2012
G Public Comments
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APPENDIX A
AMENDMENT NO. __ TO THE OFFICIAL PLAN
OF THE CITY OF KITCHENER
REGION OF WATERLOO MULTI-MODAL HUB
490-520, 510 KING ST W, 16, 50, 60 VICTORIA ST N
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AMENDMENT NO. __ TO THE OFFICIAL PLAN
OF THE CITY OF KITCHENER
REGION OF WATERLOO MULTI-MODAL HUB
490-520, 510 KING ST W, 16, 50, 60 VICTORIA ST N
INDEX
SECTION 1 TITLE AND COMPONENTS
SECTION 2 PURPOSE OF THE AMENDMENT
SECTION 3 BASIS OF THE AMENDMENT
SECTION 4 THE AMENDMENT
APPENDICES
APPENDIX 1 Notice of the Meeting of Development and Technical
Services Committee of February 25, 2013
APPENDIX 2 Minutes of the Meeting of Planning and Strategic Initiatives
Committee February 25, 2013
APPENDIX 3 Minutes of the Meeting of City Council March 4, 2013
2
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AMENDMENT NO. __ TO THE OFFICIAL PLAN
OF THE CITY OF KITCHENER
SECTION 1 TITLE AND COMPONENTS
This amendment shall be referred to as Amendment No. __ to the Official Plan of the City of Kitchener. This
amendment is comprised of Sections 1 to 4 inclusive.
SECTION 2 PURPOSE OF THE AMENDMENT
This Official Plan Amendment proposes to add Special Policy Area No. 49 to permit a maximum Floor
Space Ratio of 7.5, to permit a broader range of land uses including residential and retail and to
establish
special policy directionfor the future development of the multi-modal hublands municipally known as 490-
520, 510King Street West and 16, 50 and 60 Victoria Street North.
SECTION 3 BASIS OF THE AMENDMENT
The current land use designation on the subject lands is Warehouse District in the Downtown Land Use
Districts in the Official Plan. This designation permits uses suited to the reuse of the existing buildings,
such as warehouse outlets, boutiques, flea markets, studios, theatres and restaurants. Retail, office, and
commercial entertainment uses, as well as industries which do not have a noxious component to their
operation are also permitted within the Warehouse District. However, the full range of retail uses is
restricted to those lots fronting directly on King Street. In addition, residential uses are permitted but only
within existing buildings, subject to the Ministry of the Environment being satisfied with allowing
residential use, having considered the potential adverse environmental conditions. Residential is not
permitted within buildings located between Victoria Street and the CN railway.
The subject lands are also within the Warehouse Design District in the Official Plan. The applicable
Warehouse Design District policies establish several general design principles for future development
with respect to style, building height and form for new development as well as adaptive reuse,
streetscapes, storefronts and signage. A policy in this section of the Plan establishes the principle that the
façade height for all new development should range between 3 and 6 storeys, however gives latitude to
consider additional building height subject to an approved Urban Design Brief.
The applicant has proposed to add a Special Policy to the subject lands to broaden the range of permitted
uses, namely to include residential and retail uses subject to appropriate criteria. The applicant has also
proposed a number of policies to provide specific direction with respect to future development. ASite
Plan has not been submitted concurrent with this application, though the applicant has also applied for a
Zone Change to establish site-specific Special Zoning Provisions to the same effect. The intent of the
Official Plan Amendment and associated Zone Change are to allow for mixed use, high density
development integrated on the same site as the future Regional multi-modal transit hub facility. The
applicant has prepared several supporting studies and reports to develop the proposed policies, including a
Planning Justification Report, an Urban Design Brief, a Noise and Vibration Compatibility Assessment
(with respect to residential uses), a Parking Requirements Justification Report and a Heritage Impact
Assessment.
d Official Plan amendment and supporting studies and reports staff
are supportive of the requested policy changes to permit high density mixed use intensification of the site.
The requested Official Plan amendment would permit the form of development and range of uses
appropriate for a mixed use multi-modal transit facility; which was not contemplated at the time the
current policy framework was initially established for this particular location. However, in the absence of
a site development concept or understanding of the anticipated phasing of development, procurement
process or ultimate build out of the site at this time, staff are recommending that a number of additional
policies be incorporated in proposed Special Policy No. 49 as well as site-specific Special Zoning
3
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Provisions to give further guidance for future development applications. Proposed Special Policy No. 49
contained herein provides the appropriate degree of flexibility for future development applications while
ensuring that such applications are both appropriate and compatible with the surrounding environs. The
amendment as proposed herein complies with the Regional Official Policies Plan because it represents the
type of high density, mixed-use development anticipated at rapid transit station sites within the Central
Transit Corridor. It is also consistent with the objectives of the 2005 Provincial Policy Statement and
-
livable, sustainable and complete communities through efficient development patterns and an appropriate
mix of land uses. Official Plan Amendment No. __ is consistent with provincial policy objectives,
conforms with regional policy objectives and is in the public interest and therefore represents sound land
use planning.
4
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SECTION 4 THE AMENDMENT
1.The City of Kitchener Official Plan is hereby amended as follows:
a)Part 3 Section 13.1.3 is amended to add new Special Policy # 49 as follows:
49. Multi-modal Transit Hub
The Vision fo
future transit network, functioning as the central point for moving
residents and visitors to and throughout Waterloo Region. It is intended
to be a contemporary, state-of-the art, multi-modal transportation facility
that accommodates a broad range of users arriving by different modes,
while furthering the revitalization of Downtown Kitchener. Given its
will reflect the functional
prominence of transit use within the region in providing a transit facility
that is convenient, safe and easy to use, that exemplifies high quality
residents and visitors can identify with and embrace. Notwithstanding
the Urban Design Policies, Downtown Warehouse Design District
Policies and Transportation Policies in Part 2 and the Warehouse District
Land Use Designation policies in Part 3 of this Plan, the following
policies will apply to the development of the Multi-modal Transit Hub
lands:
Urban Design
i)
urban design for all new development. Site development will include a
high standard of site amenities and features, including interconnected
pedestrian linkages, integrated transit, cycling, pedestrian and vehicular
facilities and high quality public amenity areas both internal and external
to buildings. Public amenity areas must be visible and accessible to the
general public and are expected to include permanent furnishings (such
as benches, tables) for resting/waiting transit users and pedestrians,
enhanced landscaping features (such as trees, shrubs) to provide relief to
the built environment and cultural features (such as sculptures, water
features, murals, monuments or other public art) for public appreciation
and to create an identity.
ii)A grand entrance and public plaza at the corner of King and
Victoria will be a requirement of future site development. The City will
establish regulations in the Zoning By-law to ensure there is a generous
amount of space for a public plaza along the entire King Street frontage
and within 60 metres of the intersection along the Victoria Street
frontage. Zoning regulations may define setbacks relative to the back of
curb rather than street line to implement this policy.
iii)The City will promote architectural innovation and excellence as
a high priority for site development to ensure that any development is
sensitively woven into the urban fabric, while identifying the Transit
Hub as an iconic landmark in the urban landscape.
iv) The City will promote the conservation and adaptive reuse of the
cultural heritage resources on site, namely the 1913 portion of the
Rumpel Felt Company building, in accordance with the approved
5
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dated April 5, 2012
and revised November 22, 2012.
v)The City will promote art in publicly accessible places on the
Transit Hub site in order to enhance the enjoyment of the built
environment while contributing to a sense of place, meaning and context.
The City will encourage the Region to include public art in site
development.
vi) Through the Regional procurement process, the City will
emphasize urban design and architectural expertise and demonstrated
innovation and excellence as key criteria in the selection of a
development partner.
Implementation Strategies
vii) The City will review and approve site development based on the
Council -Modal Transit Hub Urban
dated January 2013 and any other relevant design studies
and guidelines, which will form the primary basis for any site plan
application approvals.
viii) The City may establish a multidisciplinary Urban Design Panel
comprised of qualified individuals to fulfill an advisory role during the
review of site plan applications and supporting plans, studies and reports
for the future development of the subject lands.
ix) The City will review and approve site development based on the
dated April
5, 2012 and revised November 22, 2012, which will form the primary
basis for the conservation and adaptive reuse of the 1913 portion of the
Rumpel Felt building and the completion of a Heritage Conservation
Plan for the site. The Heritage Conservation Plan may be required as
other information and materials needed to constitute a complete site plan
application.
x)The City may require additional reports/studies to form part of a
complete site plan application. Such plans/studies may include any of the
other information and materials listed in Schedule I of this Plan, as well
as additional information and materials not listed in Schedule I of this
Plan such as a massing study, an angular plane analysis, conceptual cross
sections, a structural engineering report, a detailed site servicing plan, a
functional infrastructure maintenance assessment and a phasing of
development plan.
xi) The City may conduct a peer review of any part of the
submission or other information and materials submitted where
necessary to determine whether the quality of the submission is
satisfactory. Such peer review will be completed by an appropriate
expense.
xii) A holding provision will be applied through the zoning by-law
and will not be lifted until such time as the site servicing capacity has
been confirmed and a record of site condition has been acknowledged by
the Ministry of the Environment or its delegate advising that the Ministry
6
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or its delegate is satisfied with development, having considered the
potential adverse environmental conditions or constraints caused by
adjacent and/or previous industrial uses, transportation corridors and
decommissioning requirements.
Permitted uses
xiii) The City will encourage the mixing and integrating of uses on
the site and within buildings.
xiv) The City will encourage a variety of unit types and tenures for
residential development.
xv) Sensitive land uses will be permitted subject to:
a)Regional approval of a detailed Noise and Vibration Assessment
prior to the issuance of site plan approval; and
b)City approval, in consultation with the rail authority, of
appropriate safety measures from the adjacent railway for
residential land uses (such as setbacks, berms and security
fencing) as contained in the Zoning By-law.
xvi) Retail uses will be permitted subject to size and locational
requirements as contained in the Zoning By-law. Retail and other active
uses will be encouraged along the ground floor of all street frontages.
Specific types of retail uses that are not consistent with the transit-
supportive character of the multi-modal hub site will be restricted n the
Zoning By-law.
Parking
xvii) The City will establish a site-specific off-street parking and
loading schedule for the site as an interim measure. These site-specific
parking and loading rates may be further refined through comprehensive
updates to the Zoning By-law which may establish maximum parking
standards or shared parking rates.
xviii) In addition to the off-street parking requirements, the City will
encourage the provision of an appropriate amount of parking to serve the
commuter needs identified by the applicable travel providers (eg: GO
transit, VIA rail and Grand River Transit).
xix) The City will encourage the first phases of development to
incorporate the maximum possible amount of underground parking
spaces for the purpose of providing required parking for future uses on
the site.
xx) Above grade parking structures may be permitted provided that
all street-facing facades are wrapped with other permitted land uses at
grade, and provided that no blank walls or open air parking decks are
visible from the public realm.
grade parking levels wrapped with other permitted land uses along all
street facing facades.
Massing
xxi) The maximum Floor Space Ratio (FSR) permitted for the site as
a whole will be 7.5.
7
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xxii) The City will establish regulations through the Zoning By-law to
ensure a human-scaled form of development and an appropriate
proportion relative to surrounding industrial heritage buildings.
xxiii) Through the Site Plan Control process, building stepbacks for
any portion of a building greater than 8 storeys in height may be
required. The appropriate amount of stepback is to be determined to the
satisfaction of the Director of Planning prior to Site Plan approval.
b)Map No. 8 add new Special Policy Area No. 49 to 490-520, 510 King St W, 16, 50, 60
Victoria St N
8
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APPENDIX 1 Notice of the Meeting of Planning and Strategic Initiatives
Committee of February 25, 2013
Advertised in The Record February 1, 2013
PLANNING MATTERS:
PROPERTY OWNERS AND INTERESTED PARTIES ARE INVITED
TO ATTEND A PUBLIC MEETING TO DISCUSS
A PROPOSED AMENDMENT TO THE KITCHENER OFFICIAL PLAN
UNDER SECTIONS 17 AND 22 OF THE PLANNING ACT
and
A PROPOSED ZONING BY-LAW
UNDER SECTION 34 OF THE PLANNING ACT
490-520, 510 King Street West, 16, 50, 60 Victoria Street North
The City of Kitchener has received applications from the Re
designation and zoning for the properties located between King Street West, Duke Street West, Victoria
Street North and the Canadian National railway.
The Region of Waterloo has applied to add a Special
-
permitted uses, including permission for the full range of retail uses, residential and hotel uses. The
applications are also requesting to increase the total amount of permitted development intensity to 7.5 times
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the total site area (or approximately 1,292,000 square feet). The applications are requesting special
regulations to provide the appropriate urban form and reduce the amount of required parking.
The public meeting will be held by the Planning & Strategic Initiatives Committee, a Committee of Council
which deals with planning matters on:
MONDAY, FEBRUARY 25, 2013 at 7:00 P.M.
nd
COUNCIL CHAMBERS, 2 FLOOR, CITY HALL
200 KING STREET WEST, KITCHENER.
Any person may attend the public meeting and make written and/or verbal representation either in support of,
or in opposition to, either of/any of the above noted proposal(s). If a person or public body that files a
notice of appeal of a decision does not make oral submissions at
written submission prior to approval/refusal of this/these propo
may dismiss all or part of a subsequent appeal.
ADDITIONAL INFORMATION is available by contacting the staff person noted below, viewing the report
contained in the meeting agenda (available at www.kitchener.ca on the Wednesday evening prior to the
th
meeting - click on the meeting date in the Calendar of Events), or in person at the Planning Division, 6 Floor,
City Hall, 200 King Street West, Kitchener between 8:30 a.m. - 5:00 p.m. (Monday to Friday).
Heather Holbrook, Senior Planner (Urban Design) - 519-741-2200 ext. 7324 (TTY-TDD 741-2385),
heather.holbrook@kitchener.ca
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APPENDIX 2 Minutes of the Meeting of Planning and Strategic Initiatives
Committee February 25, 2013
1 - 22
APPENDIX 3 Minutes of the Meeting of City Council March 4, 2013
1 - 23
1 - 24
APPENDIX B
PROPOSED BY-LAW
January 18, 2013
BY-LAW NUMBER
OF THE
CORPORATION OF THE CITY OF KITCHENER
(Being a by-law to amend By-law 85-1, as amended, known as
the Zoning By-law for the City of Kitchener City of
Kitchener)
WHEREAS it is deemed expedient to amend By-law 85-1;
NOW THEREFORE the Council of The Corporation of the City of Kitchener enacts as
follows:
1. Section 4.2 of By-law 85-1 is hereby amended by adding the following new definitions in
proper alphabetical order:
means the ground floor and immediate floors above the ground floor of a building
that form the base section of a mid- to high-rise building.
means the façade heightof the podium of a building.
2. Schedule 84-law Number 85-1is hereby amended by changing
the zoning applicable to lands specified and illustrated as Area 1 on Map No. 1
attached hereto, from Warehouse District Zone (D-6) with Holding Provision 42H to
Warehouse District Zone (D-6) with Special Use Provisions 426U and 427U, Special
Regulation Provision 638R and Holding Provision 68H.
3.-law Number 85-1 is hereby amended by changing
the zoning applicable to lands specified and illustrated as Area 2 on Map No. 1
attached hereto, from Warehouse District Zone (D-6) to Warehouse District Zone (D-6)
with Special Regulation Provision 638R, Special Use Provisions 426U and 427U and
Holding Provision 68H.
4.-law Number 85-1 is hereby amended by changing
the zoning applicable to lands specified and illustrated as Area 3 on Map No. 1
attached hereto, from Warehouse District Zone (D-6) with Special Regulation Provision
105R and Special Use Provision 141U to Warehouse District Zone (D-6) with Special
Regulation Provision 638R, Special Use Provisions 426U and 427U and Holding
Provision 68H.
5. Schedule 84-law Number 85-1is hereby further amended by
incorporating additional zone boundaries as shown on Map No. 1attached hereto.
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6. A-law 85-1 is hereby amended by adding Sections 426 and 427
:
thereto as follows
.Notwithstanding Section 17.1 of this By-law, within the lands zoned D-6 and
establishment, commercial entertainment, research and development establishment,
retail, and scientific, technological or communications establishment shall also be
permitted, and the following uses shall not be permitted:
Building Material and Decorating Supply Store
Carwash
Craftsman Shop
Funeral Home
Garden Centre and Nursery
Gas Station
Manufacturing
Sale and Storage of Heating Fuel
Sale, Rental, Service, Storage or Repair of Motor Vehicles, Major Recreational
Equipment and Parts and Accessories for Motor Vehicles or Major
Recreational Equipment
Sale of Monuments
Sale, Rental, Storage or Service of Tools and Industrial, Farm or Catering
Equipment
Warehouse
Wholesaling
Notwithstanding Sections 5.23a)and17.1 of this By-law, within the lands zoned
D-6 as shown as affected by t
units, multiple dwellings, educational establishments and day care facilities may be
permitted subject to the completion of a detailed Noise and Vibration Assessment, to
assess both potential off-siteand on-site transportation and stationary noise sources,
to the satisfaction of the Region of Waterloo.Any building or part thereof used for a
residential dwelling, educational establishment and/or day care facility shall be located
30 metres from the lot line abutting the CN Rail right-of-way. Buildings or parts thereof
used for the above noted uses may be permitted where a 30 metre setback from the lot
line abutting the CN Rail right-of-way can be provided.
7.y-law 85-1 is hereby amended by adding Section 638 thereto as
:
follows
638. Notwithstanding Sections 5.9b), 6.1.1.1 a), 6.1.2.b) vi),6.1.2b) viii)a),
6.1.2.b)viii)b), 6.1.2c), 6.2.2, or 17.3 of this By-law, within the lands zoned D-6 and
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shown as affected by this subsection on Sc
regulations shall apply:
i)Maximum Floor Space Ratio7.5measured as the total building floor area
divided by the total lot area shown as affected
by this subsection on Schedule 84 of
ii)Maximum gross floor area for Retail 10,000 square metres
Use
iii)Maximum gross floor area for 1,000 square metres
individual, single Retail Use
establishment
iv)Location of Retail UseIn the first 2 storeys of a building
v)Minimum setback from King Street 7.0 metres measured from the back of curb
West
vi)Minimum setback (for any building 7.0 metres measured from the back of curb
constructed after the date of passing of within 60 metres of King Street West;
this By-law) from Victoria Street North or 2.0 metres measured from the back of curb
Duke Street West for all other locations
vii)Maximum podium façade height21.5 metres
viii)Maximum building heightNo maximum, provided that the minimum
stepback provision of ix) is satisfied.
ix)Minimum stepback for any portion of 3.0 metres measured from the location of the
a building locatedabove the podium King Street West and Victoria Street North
podium façades
x)Maximum building height applicable 8.5 metres measured from the highest point
to any building addition located above of the roofline of the 1913 portion of the
the 1913 portion of the Rumpel Felt Rumpel Felt Company building
Company building
xi)Facade openings (for any building Not less than 50 percent of the area of the
constructed after the date of passing of ground floor façades addressing King Street
this By-law)West and Victoria Street North shall be
devoted to display windows or entrances to
the building(s).
xii)New construction shall be subject to the following Off-Street Parking Schedule:
Auditorium/ Commercial 1 for each 10 fixed seats or1 for each 30.0
Entertainmentsquare metres of the gross floor area which
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accommodates such use, whichever results in
the greater requirement.
Multiple Dwelling Unit 0.7 for each dwelling unit, inclusive of visitor
parking
Conference, Convention or 1 for each 50.0 square metres of the gross
Exhibition Facility, Educational floor area which accommodates such use.
Establishment, Museum or
Religious Institution
Individual None required.
Establishment, Personal Service, establishment with
Restaurant or Retail, Studioa gross leasable
commercial space
equal to or less
than 200 square
metres:
Individual 1.0 for each 100
establishment with square metres above
a gross leasable 200 square metres of
commercial space gross leasable
of greater than 200 commercial space
square metres:which accommodates
such use.
Hotel0.5 for each room,in addition to the parking
required for ancillary uses such as restaurant,
conference centre or offices.
Visitor Parking 10 percent of the required parking spaces for
multiple dwellings, or ten spaces, whichever is
less.
All Other Uses Not Otherwise Listed 1 for each 100.0 square metres of gross floor
Above area which accommodates such use.
xiii) The loading regulations of 6.2.2 of the By-law shall apply, orten spaces, whichever
is less.
xiv) Notwithstanding provisions xii)and xiii)above, an exemption from parking
requirements shall apply for up to 2,500 square metres of non-residential gross
floor area established within the 1913 portion of the Rumpel Felt Company building.
xv) All of the required off-site parkingand loadingprovided in accordance with sections
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xii)and xiii)above shall be exclusively allocated for its intended use.
xvi) Any gross floor area of a building for the exclusive purpose of loading, servicing,
boarding, alighting, parking, access and other vehicular circulation shall not require
parking.
xvii)Notwithstanding Subsection 6.1.1.1a) i) of the By-law, where the provision of off-
street parking on the same lot as a permitted non-residential use is not possible or
not practical, such off-street parking facilities may be located on another lot within
800 metres of the lot containing the use requiring the parking, but such alternate
parking shall only be situated in a Commercial, commercial-residential, industrial,
mixed-use corridor or downtown zone, or outside the extent of the floodline in an
Existing Use zone, or within the same zone as the use requiring such parking, or
within a Hydro Electric Power Corridor and shall be subject to Subsection
6.1.1.1a)iii) of the By-law.
8.-law 85-1 is hereby amended by adding Section 68 thereto as
follows:
68. Within the lands zoned D-6 and shown as affected by this subsection on Schedule
84
accordance with the regulations of Sections 6 and 17 of this By-law until such time as
the holding symbol affecting the lands has been removed by By-law:
commercial parkingfacility not requiring building permit(s)
transportation depot not requiring building permit(s);
wayside pit;
construction trailer;
sales office and/or office of up to 500 squaremetresof gross floor area on
each property (unless located within a building existing on the date of
passing of this By-law and in accordance with the regulations of Section 6,
in which case no maximum gross floor area shall apply).
The holding symbol shall not be removed until such time as:
i) The City of Kitchener and the Regional Municipality of Waterloo are in
receipt of a Record of Site Condition and a letter of acknowledgement
from the Ministry of the Environment or its delegate advising that a
Record of Site Condition has been completed in accordance with the
Environmental Protection Act, as amended;
ii) A detailed Servicing Capacity Study for all phases of development has
and Director of Utilities; and
1 - 29
iii)The holding symbol affecting these lands has been removed by by-
9. This By-law shall come into effect only upon approval by the Minister of Municipal
Affairs and Housing, or his/her delegate, of Official Plan Amendment No. _, but upon
such approval, the provisions hereof affecting such lands shall be deemed to have
come into force on the date of passing hereof.
PASSED at the Council Chambers in the City of Kitchener this
day of A.D., 2013.
_____________________________
Mayor
_____________________________
Clerk
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83
SCHEDULE SCHEDULE 84
75SCHEDULE 74
SCHEDULE
1 - 31
APPENDIX C
Region of Waterloo
Multi-Modal Transit Hub
Urban Design Brief
16, 56 and 60 Victoria Street North
490 520 King Street West
City of Kitchener
January 2013
1 - 32
Contents
1Background 1
2Design Context 2
Community Context 2
Site Context 6
3Design Framework 8
Provincial Policy Statement 8
Growth Plan for the Greater Golden Horseshoe 8
Mobility Hub Guidelines 9
Regional Official Policies Plan 9
Kitchener Municipal Plan 9
Kitchener Zoning By-law 10
Kitchener Urban Design Manual 11
4Design Vision 12
5Design Guidelines 14
Buildings 14
Circulation 20
Public Realm 23
6Summary26
1 - 33
1
Background
The Region of Waterloo is planning a new multi-modal Transit Hub on a site at the northeast corner of Victoria
Street and King Street in Downtown Kitchener, municipally known as 16, 56 and 60 Victoria Street North and 490,
510 and 520 King Street West. The Transit Hub will be a multi-modal facility to accommodate local and regional
traffic (pedestrians, cyclists, drivers, taxis, buses, light rail trains) as well as intra-regional traffic (buses and heavy
rail). It will be a mixed-use development incorporating opportunities for office, retail, residential, hotel, institutional,
and civic uses and activities coupled with the principal transportation function. The proposed development is
intended to be a landmark site within the city and the region as a whole, with uses and activities in a built scale and
form that support the site’s prominence in Downtown Kitchener and Waterloo Region. To implement the proposed
uses and form envisioned for the development, amendments to the City of Kitchener’s Municipal Plan and Zoning
By-law are required.
There are two purposes of this Urban Design Brief. First, it has been prepared in support of the amendments to the
Kitchener Municipal Plan and Zoning By-law, illustrating consistency with the relevant design policies at the
provincial, regional and local levels through design guidelines. Second, it has been prepared to provide sufficient
guidance to the ultimate design and development of the Transit Hub through a future master planning exercise and
site plan approvals for individual components of the master plan. Overall, the Urban Design Brief provides the
overarching design vision and principles for development of the site which will set the foundation for the preparation
of more detailed plans that implement this vision.
The Urban Design Brief is comprised of five principal sections. The Brief outlines the existing conditions of the site
and its context as they affect the design of the site (Section 2); summarizes the policy and regulatory framework at
the provincial, regional and local levels that direct the design and development of the site (Section 3); articulates the
vision and design principles for the proposed development (Section 4); provides detailed design guidelines for the
development of the site that build on and complement the City’s Urban Design Manual (Section 6); and illustrates
the application of the design principles and guidelines through a series of demonstration concepts.
Urban Design Brief
1
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Region of Waterloo Multi-Modal Transit Hub
2
Design Context
Community Context
The site is situated at the northeast corner of the King Street and Victoria Street intersection at the northern end of
Downtown Kitchener, as a principal intersection of two arterial streets within the city that is geographic heart of
Waterloo Region. It is located within the Kitchener Urban Growth Centre, as per the Places to Grow legislation, and
is intended to accommodate a significant proportion of the Region’s future population and employment growth in a
compact, dense and transit-supportive fashion. The City’s Economic Development Strategy (2011) strives for a
“Dynamic Downtown”, which intends to “
capture future growth and development by enticing residents to t
downtown core by offering a variety of cultural, retail and recr
”. The site is well connected to the surrounding transportation
developing innovative, urban living environments
network, including transit, driving, cycling and walking options, with a number of central neighbourhoods within an
800 metre walking distance (10 minute walk) of the site, and can successfully facilitate the achievement of this
vision.
The site is located within the centre of the City’s “Warehouse District”, a policy designation that is based on the
historic industrial area of “Busy Berlin”.
The area between Joseph Street and King Street has become a research
and educational cluster that has successfully attracted national and international talent, currently anchored by the
Building on the significant base of
University of Waterloo Health Science Campus and the Tannery development.
industrial warehouse architecture within the area, the Warehouse District is intended to be fashioned in a
quintessential urban form that meshes complementary new developments with preserved and adaptively re-
used heritage buildings in developing an innovative and
creative neighbourhood. A number of surrounding buildings
in the community have been identified by the City for their
heritage value and have or are in the process of being
adapted as per this policy direction of the Warehouse
District.
“‘Busy Berlin’, coined as a catchphrase in the
1890s, described perfectly the bustling,
industrious, ever-growing town. As the centuries
changed in 1901 and Queen Victoria died, the
dawning 20 century seemed Berlin’s for the
th
taking.”
-
Images of Canada Kitchener (Berlin), Rych Mills,
2002, page 7
Urban Design Brief
2
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Region of Waterloo Multi-Modal Transit Hub
Urban Design Brief
3
1 - 36
Region of Waterloo Multi-Modal Transit Hub
Urban Design Brief
4
1 - 37
Region of Waterloo Multi-Modal Transit Hub
Urban Design Brief
5
1 - 38
Region of Waterloo Multi-Modal Transit Hub
Site Context
The site is comprised of five different properties that are bounded by the existing CNR railine to the north, Duke
Street to the east, Victoria Street to the south, and King Street to the west. It is currently divided into two separate
blocks by Waterloo Street. There are four buildings currently on the subject site, as follows:490 to 520 King Street
houses a current one-storey commercial building (The Beer Store); 510 King Street previously contained a one-
storey commercial building that was recently demolished; 16 Victoria Street North contains a one-storey commercial
building; 50 Victoria Street North contains a one-storey commercial building; and60 Victoria Street North contains a
three-storey former industrial building (Rumpel Felt) that is currently vacant.
There is minimal existing vegetation on the subject site, which is generally limited to a small pocket of trees on the
490 to 520 King Street property and some existing, low-lying vegetation along the railine. The site is predominately
hard-surfaced in nature, comprised of either buildings or parking areas. The site’s topography slopes upwards from
Victoria Street towards the railine on the site’s northern boundary, which is approximately two metres higher in
elevation than the Victoria Street and King Street intersection.
Urban Design Brief
6
1 - 39
Region of Waterloo Multi-Modal Transit Hub
The immediately surrounding portion of the City’s Warehouse District has seen over the past ten years, and will
continue to see, significant change over the past ten years in keeping with the City’s policies for Downtown
Kitchener. The northwest corner of the King and Victoria intersection contains the University of Waterloo Health
Sciences Campus, which houses more than 600 students, faculty and staff in two buildings. The southeast corner
of the intersection contains the Kaufman Lofts, a six-storey adaptive re-use of the former Kaufman Footwear Co.
building (designated under the Ontario Heritage Act) with approximately 250 residential units. The southwest corner
of the intersection contains two one-storey contemporary buildings housing service commercial uses. Further to the
west of the southwest corner is the Tannery District, an adaptive re-use of the former Lang Tannery building
contains 350,000 square feet innovation office space and ground floor retail uses. To the north of the subject site,
across the railine, is the Breithaupt Block (listed on the City’s heritage register), which will be an adaptive re-use of
the former Merchants Rubber Co. building and will ultimately contain 175,000 square feetof commercial office
space. To recognize the immense change and potential for the area, the City has recently identified this area as the
“Innovation District”, and is planning for 15,000 jobs in the area.
Urban Design Brief
7
1 - 40
Region of Waterloo Multi-Modal Transit Hub
3
Design Framework
The following provides a general summary of the relevant policies and regulations from provincial, regional and local
planning documents that affect the design of the proposed development. A more fulsome review of the land use
planning framework affecting the subject site can be found in the Planning Report, dated August 2012 and prepared
by GSP Group.
Provincial Policy Statement
The vision of the Provincial Policy Statement (the “PPS”) vision for land use planning is “
the long-term prosperity
and social well-being of Ontarians depends on maintaining strong
”. To this end, the PPS generally promotes the creation of “healthy, liveable and safe
and a strong economy
communities”, through efficient land use patterns, appropriate mixes of different land use types, cost-effective
development standards, environmentally sensitive development practices, accessible neighbourhoods, and
available infrastructure and public facilities. Opportunities for intensificationand redevelopment
are encouraged
where they can be accommodated taking into account existing buildings and areas and the availability of suitable
existing or planned infrastructure and facilities. The development of transportation systems that are safe,
accessible and efficient is particularly sought, with land use patterns that minimize vehicular dependence and
maximize opportunities for public transit use.
Growth Plan for the Greater Golden Horseshoe
The site is within the “built-up area” of the Growth Plan for the Greater Golden Horseshoe, the Province’s growth
strategy for the Greater Golden Horseshoe region which includes the Region of Waterloo. Generally, this growth
strategy strives for complete communities with a range of land use types; a diverse mix of housing options; high
quality open spaces; sustainable transportation choices; connected pedestrian and cyclist networks; and energy
conservation measures. The Growth Plan sets a minimum intensification target of 40% of total residential units in
the municipality to occur within the built-up area by 2015 (or the current intensification level in the municipality
should it be higher), such areas which are intended to provide a diverse land use mix, opportunities for walking and
cycling, high quality public open spaces, generally higher densities, and appropriate transitions. Specifically, major
transit station areas, or those
areas within 800 metres (10
minute walk) of a major transit
node, are intended to provide a
range of residential, commercial,
office and community uses, at
generally higher densities to
support existing and planned
transit service, and to
accommodate access from various
transportation modes.
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Mobility Hub Guidelines
Mobility Hubs as per Metrolinx’s “The Big Move” report are major transit station areas (areas within a 10 minute
walk from a higher order transit station) that are particularly significant for the broader rapid transit system. The
Guidelines prepared for these Mobility Hubs provide guidance to assist implementing the existing policies and
directions in The Big Move and the Growth Plan. While the Guidelines are meant for Greater Toronto and Hamilton
Area, they provide insight into good design for the Transit Hub on the subject site. The seven objectives for Mobility
Hubs in the Guidelines are as follows:
Seamless integration of modes at the rapid transit station.
1.
Safe and efficient movement of people with high levels of pedestrian priority.
2.
A well-designed transit station for a high quality user experience.
3.
Strategic parking management.
4.
A vibrant mixed-use environment with higher land use intensity.
5.
An attractive public realm.
6.
A minimized ecological footprint.
7.
Flexible planning to accommodate growth and change.
8.
Effective partnerships and incentives for increased public and private investment.
9.
Regional Official Policies Plan
The site is designated as “City Urban Area” in the Regional Official Policies Plan (ROPP), which outlines the Region
of Waterloo’s planning goals and priorities for a vibrant and sustainable community, and outlines specific strategies
and policies to help achieve that vision. The ROPP defers to the lower-tier municipality for the City Urban Area to
provide more specific direction for land use designations in their official plans. Generally, the ROPP promotes the
establishment of a full range of housing types and densities, efficient land patterns, and innovative lot patterns and
housing design; opportunities for mixed-use developments in new residential neighbourhoods; the integration of
planning for human services in the land use planning process; the creation of land use patterns and street network
patterns and design that support public transit usage; and transportation opportunities for pedestrians, cyclists and
transit users.
Kitchener Municipal Plan
The subject site is designated “Warehouse
District” in the City of Kitchener Municipal
Plan. The Warehouse District area,
characterized by the number of larger historic
industrial buildings, is intended to function as
a transition area between the retail core and
the surrounding area. New development is
to be designed to complement the design
and siting of the older industrial building
stock. The reuse and conversion of the older
industrial building stock is encouraged,
particularly as incubators for new industry.
New development is intended to emphasize
the City's industrial and transportation heritage, which may include utilization of bonusing provisions in the Zoning
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By-law for heritage conservation efforts. Permitted uses in the Warehouse District include a limited range of
commercial uses (such as boutiques, restaurants, theatres) that are suited to the reuse of existing buildings to
create a distinct shopping environment; complementary commercial uses (such as entertainment or exhibition
establishments) oriented to a tourist orientation; a full range of smaller scale retail outlets on lots fronting King
Street; uses permitted in the Service Commercial District in existing or new buildings that take advantage of access
to Victoria Street; retail, office and commercial entertainment within larger historically significant buildings, as well
as residential uses in existing buildings such to holding provisions.
The proposed Municipal Plan Amendment (MPA) for the Multi-Modal Transit Hub is seeking to maintain the
underlying Warehouse District designation, but with a “Special Policy Area” designation to broaden the range of
uses and intensity of development permitted on the site. The policies of the Special Policy Area designation seek to
identify: the intent for the site as multi-modal transit facility; the intent for new complementary buildings to the
industrial heritage of the Warehouse District; the permission for a broad range of primary uses and complementary
issues; opportunities for TDM measures and reduction in parking requirements; the increase in the Floor Space
Ratio to 6.0; the desire for high quality urban design in all of the site’s places and spaces; and the intent for the
Urban Design Brief to be the guide for site plan approvals moving forward with the development. The Planning
Report for the Multi-Modal Transit Hub provides specific details regarding the proposed MPA.
Kitchener Zoning By-law
The subject site is zoned “Warehouse District Zone (D-6)” in the City of Kitchener Zoning By-law. The D-6 Zone
permits a broad range of retail, office and service commercial as well as other community and public facilities.
Noteworthy permitted uses include convenience retail, offices, personal services, restaurants, educational
establishments, conference facilities, studios, among other uses. There are special regulations on the middle
portion of the site with provisions regarding commercial floor space limits, residential use location, and parking
requirements. The maximum floor space ratio is 2.0 and the minimum façade height is 6.0 metres.
The proposed Zoning By-law Amendment (ZBA) for the Multi-Modal Transit Hub is seeking to maintain the
underlying D-6 zone for the site, but with amendments to the site-specific use and regulation provisions that would
broaden the range of permitted uses and enable the future development of a high-density, mixed-use development
for the Transit Hub. Permitted uses would be added that complement the character and nature of the Innovation
District, including artisan establishments, commercial entertainment, residential units, research and development
establishments, retail, and scientific, technological or communications establishments. Built form regulations for the
site would be amended to enable the desired urban form of the development, which includes increased maximum
floor space ratio permissions, increased permissions for retail commercial space, reduced yard setbacks along King
Street and Victoria Street, and modified parking requirements for certain permitted uses. The Planning Report for
the Multi-Modal Transit Hub provides specific details regarding the proposed ZBA.
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Kitchener Urban Design Manual
The subject site is within the “Warehouse Design District” of the City of Kitchener Urban Design Manual. Generally,
the primary objectives for Downtown Kitchener respecting design is to make the area a lively place with people and
activity downtown and a livable place with a green public realm; secondary objectives include promoting high quality
design, respecting cultural heritage resources, embracing art and culture, and embracing multi-culturalism.
Specifically, the Warehouse District is intended to evolve into a “
dense, contemporary urban setting, with former
”. The design
factories converting into trendy loft space and new development
principles for new development in the Warehouse Design District provide for:
building styles that respect the area’s heritage industrial building form and architecture while adding
contemporary additions;
façade heights that range between three and six storeys with building massing that frames the street in the
traditional perimeter block pattern;
adaptive re-use of former industrial buildings and conservation of architectural features, with new
contemporary additions that accent rather than replicate heritage features;
streetscapes that are designed to soften the building massing along the street;
storefronts between building divisions with transparent interfaces with the street; and
signage that enhances architectural features of a contemporary design that matches the warehouse
character of the area.
This design direction will be generally continued in the development of the Transit Hub. Buildings will frame the
street, with podiums of three to six storeys, rather than total building heights of three to six storeys.
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4
Design Vision
The proposed Transit Hub will be the heart of Waterloo Region’s future transit network, functioning as the central
point for moving residents and visitors to and throughout Waterloo Region. It is intended to be a contemporary,
state-of-the-art, multi-modal transportation facility that accommodates a broad range of users arriving by different
modes, while furthering the continuing revitalization of Downtown Kitchener. Given this importance, the proposed
Transit Hub’s design has to reflect the functional prominence of transit use within the region in providing a transit
facility that is convenient and easy to use, that exemplifies high quality design and architecture complementing the
site’s context, and that residents and visitors can identify with and embrace.
“The relationship between the structure of a city-region and its transportation system is critically
important. An attractive and environmentally sustainable urban structure requires fast, frequent and
well connected means of movement. An efficient and cost-effective transit system requires nodes (or
dense concentrations) of trip origins and destinations. The interface between urban form and the
transportation system is particularly important around major transit stations. Focusing growth and
development around major transit stations allows more people to live near transit services, and
makes more destinations accessible by transit. Transit stations are also the key point of contact
between the traveller and the transit system, so they have a significant impact on customer service
and the overall travelling experience. A well designed transit station can help make travellers feel
relaxed, informed and appreciated. A poorly-designed station can cause frustration.”
- “The Big Move: Transforming Transportation in the Greater
Toronto and Hamilton Area”, Greater Toronto Transit Authority,
2008, page 46.
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The design vision for the Transit Hub identifies the desired, long term objectives for the proposed development. It is
a synthesis of the various design goals, objectives and policies at the provincial, regional and local levels, as
outlined in the Design Framework section above, which are translated to the subject site and its context within the
community. The design vision for the subject site identifies that the Transit Hub will be:
A place that provides a that recognizes the primacy of the
1.
seamless and integrated transit node
transportation function in accommodating those arriving and departing by foot, by bicycle, by car, by bus,
and by train.
A place that is with opportunities for retail shops, offices,
2.
mixed in terms of land use activities
residences, civic uses, community facilities, visitor accommodations, among other uses, that supports
activity throughout the day in a safe, secure and comfortable fashion.
A place that is an of the site, adding activity that complements the
3.
efficient and intensified use
surrounding Warehouse District and Downtown Kitchener as a whole by achieving provincial and
municipal intensification targets in a characteristically urban fashion.
A place that is of the Warehouse District, both physically in
4.
sensitively integrated in the built fabric
terms of movement linkages as well as visually in respecting the industrial heritage of the surrounding
area.
A place that sensitively on the site for a future,
5.
protects and incorporates the existing built heritage
long-term use that supports the mixed-use character of the Transit Hub.
A place that is a in terms of form and function, easily seen
6.
landmark within the city and the region
and identified as a prominent addition to the Kitchener skyline with an architectural style and form that
distinguishes, yet complements, the surrounding heritage fabric
A place that is , including those arriving by various modes of
7.
universally accessible to all users
transportation, arriving from different directions to the site, as well as those with different special mobility
needs.
A place that incorporates in terms of both building and site design
8.
green and sustainable choices
opportunities in respect to energy, water and air quality considerations.
A place that provides a for visitors arriving to Kitchener and that leaves
9.
grand presence from the street
a lasting impression for visitors.
A place that includes a that are animated with activities and
10.
series of interconnected vibrant spaces
spaces throughout all times of the day and that are legibly linked between activities and different
transportation modes.
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5
Design Guidelines
Buildings
Orientation and Siting:
Site the base portion of all buildings parallel to the Victoria
Street property line, or both Victoria Street and King Street in
the case of the corner location.
Locate principal building entrances so that they are clearly
visible and directly accessible from the public sidewalk.
Orient buildings close to the King Street and Victoria Street
frontages to reinforce the street edge, while ensuring
sufficient space for pedestrian movements to access transit.
Generate activity along ground floor façades by maximizing
transparency, minimizing blank walls, and incorporating
active ground floor uses, such as retail, restaurants, cafes,
and uses catering to transit users.
Set the noise-sensitive uses (such as residential uses) on the
upper storeys of the building at least 30 metres back from the
railine.
Capitalize on key views and vistas to and from the site
through design analysis and modeling to ensure the
proposed development sits as a landmark in the broader
area. Particular emphasis should be placed on the views on
King Street (east and west) and on Victoria Street where the
street bends.
Ensure an adequate separation distance is maintained
between new buildings and the Rumpel Felt building (1913
portion).
Podium level of development scaled and
Top:
designed to the pedestrian.
Buildings set tight to the street edge to
Middle :
reinforce the street.
Development with active ground
Bottom and Left:
floor uses that “spill out” to the street help to
animate the public streetscape.
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Massing and Scale:
Develop a block structure that balances site circulation
patterns with the emphasis on pedestrian movements.
Ensure taller buildings have slender tower forms with defined
base, middle and top sections in the wall elevations for
definition and articulation purposes.
Scale the building’s base section with considerations for the
scale of adjacent or surrounding buildings, abutting street
widths, and other buildings on the site.
Use techniques on the building’s middle and top sections to
limit visual and shadowing impacts on surrounding buildings
and streets, such as setbacks of the building’s base to
provide additional separation to the street and surrounding
buildings; and stepbacks of upper storeys from the base
portion to provide additional physical separation of upper
storeys from the street and surrounding buildings
Use a mix of materials, articulation and recessed/integrated
balconies on residential buildings.
Ensure top floors of tall buildings contribute to the city skyline
through special architectural treatment, particularly for any
building at the King and Victoria Street intersection.
Integrate mechanical penthouses and roof-top equipment
into the design of top floors of all buildings.
Ensure any buildings at the King and Victoria Street
intersection has the most active edge with street fronting
uses, transparent wall
elevations, and
prominent entrances to
the building and
transportation facilities.
Provide continuous
pedestrian weather
protection along the
base portion of all
buildings where there
are active uses.
Distinct rooftop architecture that defines the
Top:
top portion of a taller building.
High-rise building option that
Middle and Left:
reinforces the street edge with defined base,
middle and roof sections.
Ground floor orientation and definition of
Bottom:
base portion of taller building.
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Character and Style
Reinforce and emphasize the “landmark” nature of the site,
featuring the highest quality architecture and innovation in its
design features.
Ensure the new building form communicates a sense of the
present that is integrally woven into the neighbourhood’s
industrial past.
Ensure all building design clearly defines the three general
components of a building: the base that defines and scales
the street edge; the middle that provides visual interest in
connecting the base and top portions; and the top that caps
the building, provides a distinctive profile, and positively
contributes to the skyline.
Divide building massing along the Victoria Street frontage
into distinct buildings with frontages complementary to the
existing and historic patterns.
Take cues from the Warehouse District in terms of mass,
siting, materials and elements in designing a contemporary
addition to the built fabric in the area, rather than using
imitative architecture caricaturing the surrounding heritage
fabric.
Set upper storeys back from the Victoria Street edge so that
the streetscape space is primarily formed by a height that is
complementary to surrounding buildings with heritage
attributes.
Follow the rhythm, balance and proportions of surrounding
industrial heritage buildings in designing buildings on the site,
particularly for the base and middle sections of the building.
Provide an appropriate transition in colour, materials and
texture to soften building mass and add visual depth to the
building elevation.
More contemporary architectural expressions
Top:
can fit within the Warehouse District theme to the
area.
Contemporary building respecting a
Bottom:
traditional balance of rhythm and proportions in
wrapping the corner of two public streets.
Design cues for the subject site set by
Left:
buildings in the surrounding Warehouse District.
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Signage:
Develop a signage master plan for the overall development
that establishes a coordinated character, style and location
for all signage elements on the site (building, wayfinding, and
directional).
Incorporate fascia signage for ground floor retail uses as an
integral component of the storefront architecture.
Locate fascia business signage in a more traditional sign
band, the horizontal section which divides the storefront
windows from the upper façade.
Utilize durable, weatherproof materials for all building
signage that complement the overall character of the building
façade in terms of design, style and materials.
Use simple lettering that is clear and easy-to-read and
complement graphics that relate to the business function.
Heritage Resources:
Set the upper storeys of buildings back from the podium
base to generate a height and massing that is
complementary to surrounding heritage buildings in the
Warehouse District.
Ensure new buildings respect the prominent heritage
attributes and elements of surrounding heritage buildings,
including consideration of building setbacks, horizontal and
vertical lines, proportions, balance, rhythm, and openings.
Ensure through shadow studies that adjacent heritage
resources (especially 51 Breithaupt and 283 Duke) are not
impacted significantly.
Utilize buildings materials for new buildings as well as
additions that are compatible to and complementary with the
existing palette of materials in the Warehouse District.
Should the 1913 Rumpel Felt portion be retained, preserve
and restore the building’s character-defining elements and
attributes, including the wall elevations facing Victoria Street,
50 Victoria, and the rail corridor;
Should the 1913 Rumpel Felt portion be retained, ensure that
the site and building design surrounding it:
heritage precedents within the Warehouse
Above:
Retains the space immediately west of the 1913 portion
o
District of Downtown Kitchener.
of the Rumpel Felt building to allow its western
elevation to continue to add to the streetscape;
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Ensures any additions are contemporary and
o
distinguishable from the 1913 portion through the use
of different materials, colours, setbacks and divisions;
Restrict upper storey additions to the 1913 portion to
o
two storeys and set back from the Victoria Street edge
so that the original building plays the principal role in
defining the street space; and
Setbacks the upper storeys (generally above the fifth
o
storey) of new buildings to the west of the 1913 portion
of the Rumpel Building and its abutting space to
minimize shadowing and avoid overwhelming the scale;
Builds tight to the intersection of Duke Street and
o
Victoria Street North, recognizing necessary sightlines
and pedestrian space, for additions to the existing
structure or with new construction;
Does not introduce a grade change that would
o
adversely impact the existing Rumpel Felt building
relationship with the rail corridor;
Consult the Heritage Impact Assessment (April 2012)
o
completed by Landplan for further guidance; and
Design railway platforms and barriers in a manner that
o
avoids blocking access for heritage restoration works
that may be necessary.
Sustainability:
Consider incorporating sustainability measures at the outset
of the design and construction process, with a LEED Silver
certification for all buildings as a minimum target.
Explore opportunities for sustainable or functional roofs,
particularly on the lower podium base, such as green roofs,
white roofs, or other methods or technologies.
Explore opportunities for incorporating on-site renewable
energy generation technologies, such as a geothermal
heating, solar facilities, or other technologies.
Include entirely covered parking facilities (underground or
structured), increasing the surface permeability of the site
and lowering any heat island potential for the site.
Use native or adapted species that are low maintenance and
suited to an urban environment for all landscaped areas.
Consider opportunities for rainwater capture for irrigation
A broad range of techniques
Above:
purposes, both outdoors and indoors.
technologies for promoting sustainability as
part of the site and building design.
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Parking Structures:
Design parking structures to provide for ease of
o
circulation and wayfinding on site in a secure fashion.
Wrap the at-grade portion of all street-facing elevations
o
with active uses and activities (such as commercial
uses) that relate to the street and the public realm.
Design and site parking structures to integrate with the
o
buildings in terms of a complementary scale and style
to the associated building(s). This should include
complementary treatment of massing, style, materials,
colours, and articulation, among others considerations,
along with appropriate landscaping.
Incorporate stairwells within parking structures with
o
glass or transparent openings for visibility purposes.
Align rows of parking perpendicular to the building to
o
minimize the number of crossings of drive aisles for
pedestrians.
Incorporate defined bicycle parking areas, including
o
short term and long term, either within the parking
structure or with direct connections to bicycle storage
areas (and end-of-trip facilities) internal to buildings.
Parking structures that
Above/Left:
are integrated in the architectural style
and detailing of the building and
provide a high quality ground level
interface with the public realm.
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Circulation
Pedestrians:
Provide multiple building entrances to both King and Victoria
Street to ensure connectivity and encourage transit use.
Ensure that all pedestrian connections are direct, convenient,
safe, comfortable, and barrier-free.
Incorporate clearly defined pedestrian linkages reinforced by
appropriate landscape materials, paving materials and
pedestrian scale lighting.
Clearly separate loading, servicing, drop-off areas from
pedestrian circulation routes. Where they cross, consider
using a different surface treatment, such as imprinted,
textured or colour concrete or asphalt, to visually define
pedestrian routes.
Provide appropriate separation for pedestrian movement and
circulation along the railway tracks.
Grand pedestrian concourse connecting to
Top:
Provide continuous pedestrian weather protection along the
transit platforms as part of transit station.
base portion of all buildings where there are active uses, as
Safe and easy access for pedestrians
Bottom:
appropriate.
and cyclists a key component of a multi-modal
Provide clearly defined pedestrian linkages in all
transportation facility.
underground parking facilities.
Grand, sunlit entry and ticket space that is
Below:
easy to navigate and provides a good first
impression to travellers.
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Cyclists:
Consider a combination of indoor bicycle parking facilities
and outdoor post and ring type spaces throughout.
Ensure outdoor bicycle parking is conveniently located close
to building entrances, protected from the weather, visible
from the interior of the building and does not impede the
movement of pedestrians.
Ensure indoor bicycle parking facilities are conveniently
located in highly visible locations, minimize conflicts with key
pedestrian movements, and are connected directly to cyclist
amenities such as storage facilities or shower facilities.
Consider defined bicycle entrances to buildings with access
to transit platforms that enable minimal exertion and
maximize comfort when moving the bicycle to parking
facilities. Such measures may include bicycle switchbacks
or bike ramps along stairways.
Vehicles:
Locate all off-street parking within structured facilities,
whether underground or above-ground.
Consider the sharing of parking spaces for uses in the overall
development that have peak parking demands at different
times of the day.
Ensure parking entrances are fully integrated into site design
through appropriate architectural design and are sited to
minimize potential conflicts between pedestrians and
vehicles.
Incorporate preferential parking spaces for carpools, car
sharing, and ridesharing to help reduce vehicle parking
demands and the necessary overall parking capacity.
Transit:
Fully integrate transit through special paving materials and
architecturally enhanced transit shelter designs.
Secure bicycle storages as part of transit
Top:
station development.
Consider the location and integration of transit stops and
shelters along King Street and Victoria Street early in the
Seamless connection between modes an
Middle:
design process to ensure sufficient space for transit users
important consideration for an effective multi-
and pedestrians
modal transportation facility.
Ensure building entrances are located near street-side transit
Distinct architecture for transit
Bottom:
stops together with supportive uses (such as coffee shops or
infrastructure and facilities.
convenience retail).
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Wayfinding:
Develop a signage master plan for the overall development
that establishes a coordinated character, style and location
for all signage elements on the site (building, wayfinding, and
directional).
Incorporate a comprehensive wayfinding system for transit
users as part of the development.
Consider as part of the wayfinding system directional
signage (such as to transit platforms or pay stations), static
transit information displays (such as local and regional
routing maps), and real-time transit information displays
(such as displaying arrivals/departures).
Ensure wayfinding signs and features have a common
template (colour, materials, fonts, etc) so that the system
reads as a comprehensive package and is easily
recognizable by transit users.
Consider designing signs and features in keeping with the
industrial character of the development and surrounding
Warehouse District.
Ensure directional signage is located both along the route
and at key “decision” points along the route to ensure ease
of use. Signage should be clearly legible from a distance
and include easy to read and unambiguous symbols/arrows.
Design all wayfinding features in keeping with universal
design principles to maximize accessibility, and usability for
all transit users. Particular considerations should include the
location, placement, height, font, and colour to ensure
usability for those with particular needs, whether visual,
physical or otherwise.
Various elements combine to
Above and Left:
form a comprehensive wayfinding program that
seamlessly direct transit users through an multi-
modal transit hub.
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Public Realm
Plaza:
Incorporate high quality public space the King Street and
Victoria Street corner that acts as a public plaza between the
development and the street-side transit facilities.
Design this plaza as:
i.An active and animated gathering space for transit
and building users;
ii.A space that allows ground floor uses to “spill-out”
to the plaza to further animate the space;
iii.A space that accommodates a circulation route
from the street to the building and transit facilities;
and
iv.A part of the “grand entrance” at the King Street
and Victoria Street intersection.
Incorporate opportunities for landscaping, seating, shade
structures, public art, bike racks, waste and recycling and
other related site furnishings, as appropriate.
Ensure a primary pedestrian route through this plaza is
maintained which is direct, barrier-free and unobstructed.
Walkways:
Site buildings to ensure that at least a 4.0 metre sidewalk
and boulevard can be provided along the street for easy and
unobstructed pedestrian movements.
Use surface materials for all walkways and paved surface
areas that provide barrier free access through the site, such
as poured concrete.
Incorporate universal design features along the streetscape
walkways that are suited to users with visual limitations,
including such features as textured banding, bus stop
detection strips, and corner curbs and ramps.
Plantings:
With a preference for native species, select trees and shrubs
with regard to their characteristics and those of the proposed
locations including soils, sun, root spread, growth rate,
canopy size and salt tolerance.
Reinforce the pedestrian circulation system through
structured and unstructured civic spaces
Above :
generous landscaped sidewalks, clearly defined, and
that provide valuable space for gathering at key
entrances.
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landscaped, pedestrian linkages, unique markers at street
entrances and decorative street furniture.
Use plant materials grouped to frame building elevations, to
shade transit stops/shelters along the street, add a visual
interest to blank building facades, accentuate building
entrances and screen service areas.
Ensure landscaping is used in a balanced fashion with
unobstructed views to spaces and buildings so as to not
create potential hiding areas.
Plant shade trees and use permeable and/or light coloured
hard surfaces to minimize urban heat island effects in order
to create a more comfortable environment at the ground level
for transit users.
Furnishings:
Incorporate site furnishings including waste receptacles, bike
racks, and pedestrian scale lighting along both the King
Street and Victoria Street streetscapes, where space
permits, in a manner that does not obstruct pedestrian
circulation or sight lines.
Utilize the established form and style of streetscape
amenities within the Warehouse District, including the
package of decorative light standards, street signage, and
street furnishings.
Incorporate opportunities for public art in the public realm,
both outdoors along the street and indoors in the central
concourses and transit platforms.
Incorporate pedestrian-scaled lighting throughout the
proposed development, both outdoors and indoors, to
promote safety and comfort at the Transit Hub during the
evenings.
Use a hierarchy of lighting levels to provide the necessary
illumination required for particular components of the site,
Established street tree planting on the west
Top:
focused on pedestrian areas and clearly identifying
side of King Street associated with the Health
pedestrian walkways and building entrances.
Sciences campus
Preferably locate site furnishings on the site rather than
within the public right-of-way, to preserve the latter for
Established program of decorative light
Middle:
pedestrian travel routes. Regardless, furnishing plans for the
standards and signage for the Warehouse District.
site should be coordinated with any public plans for land
within the right-of-way.
Installation of hardy and easily
Bottom:
maintained plantings that provide colour and
visual interest.
Urban Design Brief
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Region of Waterloo Multi-Modal Transit Hub
Public Art:
Incorporate public art throughout the development, both in
outdoor spaces as well as other publicly accessible internal
spaces, to enhance the identity and provide visual interest
and vibrancy.
Locate public art in a variety of locations, includingwithin the
boulevard space between the sidewalk edge and curb edge
(for smaller pieces), within open public spaces, or internal to
buildings that are publicly accessible.
Locate public art outside of pedestrian travel routes to limit
any conflicts with vehicular, bicycle, or pedestrian circulation.
Ensure public art is an original piece of artwork with the
primary function of providing visual interest without any
commercial advertising function.
Ensure public art is accessible and/or visible to the public,
located either within a public street right-of-way or other
publicly owned space, or on a private property where it has
an interface and connection with the public realm.
Incorporate a range of different purposes for public art pieces
throughout the development, including functional,
interpretive, abstract, and historical purposes.
Incorporate a range of sizes, artistic mediums (metal, stone,
paint), and variety of different forms (architectural features,
sculptures, landscape features, street amenities, public
works, paintings, or murals) throughout the development.
Incorporate interpretive displays, or similar pieces, into the
overall public art program that commemorates the industrial
heritage of the site.
public art presents an endless
Above and Left:
array of opportunities for providing visual interest
and identity to a downtown or main street area.
Urban Design Brief
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Region of Waterloo Multi-Modal Transit Hub
6
Summary
The Region of Waterloo is planning a new multi-modal Transit Hub at the northeast corner of Victoria Street and
King Street in Downtown Kitchener. The intent is a mixed-use development that brings together commercial,
residential, community, institutional and public uses at the doorstep of the Region’s central node within its transit
network. Applications to City of Kitchener for an Official Plan Amendment and Zoning By-law Amendment have
been proposed to modify the permitted uses and built form regulations on the subject site in order to facilitate the
proposed mixed-use Transit Hub. This Urban Design Brief has been prepared in support of these planning
applications and provides the design foundation upon which future master site planning exercise and individual site
plans will be undertaken.
An overall vision establishes the guiding framework for the design and development of the Transit Hub. This vision
identifies that the Transit Hub will be a place that: is a seamless and integrated transit node; is mixed in terms of
land use activities; is efficient and intense use; is sensitively integrated in the built fabric; protects and incorporates
the existing built heritage; is a landmark within the city and the region; is universally accessible to all users;
incorporates green and sustainable choices; provides a grand presence from the street; and includes a series of
interconnected vibrant spaces.
The detailed development plans for the Transit Hub will be prepared by the Region and its development partner at a
later date, which should follow the guidelines of this Urban Design Brief as well as detailed servicing, traffic, noise
and other technical studies. The proposed development could potentially accommodate ground floor retail uses as
well as office uses, residential, educational and institutional uses, and hotel uses, among others. The buildings on
the site should have a base section that is sympathetic to the “warehouse” form of the Warehouse District, with
vertical building extensions that capitalize on the prominent location of the King and Victoria intersection as a central
hub within the region. Public spaces should be well designed for ease of access to and between various travel
modes, and to create a high degree of pedestrian comfort.
Urban Design Brief
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Region of Waterloo Multi-Modal Transit Hub
APPENDIX D
Councillor Dan Glenn-Graham
Regional Municipality of Waterloo- City of Kitchener
Advertised in The Record February 1, 2013
PLANNING MATTERS:
PROPERTY OWNERS AND INTERESTED PARTIES ARE INVITED
TO ATTEND A PUBLIC MEETING TO DISCUSS
A PROPOSED AMENDMENT TO THE KITCHENER OFFICIAL PLAN
UNDER SECTIONS 17 AND 22 OF THE PLANNING ACT
and
A PROPOSED ZONING BY-LAW
UNDER SECTION 34 OF THE PLANNING ACT
490-520, 510 King Street West, 16, 50, 60 Victoria Street North
The City of Kitchener has received applications from the Re
designation and zoning for the properties located between King Street West, Duke Street West, Victoria
Street North and the Canadian National railway.
The Region of Waterloo has applied to add a Special
-
permitted uses, including permission for the full range of retail uses, residential and hotel uses. The
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applications are also requesting to increase the total amount of permitted development intensity to 7.5 times
the total site area (or approximately 1,292,000 square feet). The applications are requesting special
regulations to provide the appropriate urban form and reduce the amount of required parking.
The public meeting will be held by the Planning & Strategic Initiatives Committee, a Committee of Council
which deals with planning matters on:
MONDAY, FEBRUARY 25, 2013 at 7:00 P.M.
nd
COUNCIL CHAMBERS, 2 FLOOR, CITY HALL
200 KING STREET WEST, KITCHENER.
Any person may attend the public meeting and make written and/or verbal representation either in support of,
or in opposition to, either of/any of the above noted proposal(s). If a person or public body that files a
notice of appeal of a decision does not make oral submissions at
written submission prior to approval/refusal of this/these propo
may dismiss all or part of a subsequent appeal.
ADDITIONAL INFORMATION is available by contacting the staff person noted below, viewing the report
contained in the meeting agenda (available at www.kitchener.ca on the Wednesday evening prior to the
th
meeting - click on the meeting date in the Calendar of Events), or in person at the Planning Division, 6 Floor,
City Hall, 200 King Street West, Kitchener between 8:30 a.m. - 5:00 p.m. (Monday to Friday).
Heather Holbrook, Senior Planner (Urban Design) - 519-741-2200 ext. 7324 (TTY-TDD 741-2385),
heather.holbrook@kitchener.ca
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Unfiled Notes Page 1
INTERNAL MEMO
City of Kitchener
City Hall, 200 King St. West
P.O. Box 1118
Kitchener, ON N2G 4G7
Date:
January 14, 2013
To:
Heather Holbrook
From:
Katie Pietrzak
cc:
Binu Korah
Subject:
Official Plan Amendment
Zone Change Application
Site Address:490-520, 510 King St W, 16, 50, 60 Victoria St N
Project Description:ZCand OPA
Owner:Regional Municipality of Waterloo
The following comments are submitted in reply to your request.
Prior to the zone change and official plan amendment applications being accepted as compete the
following must be submitted:
1.) A Functional Servicing plan showing outlets to the municipal servicing system along with the
storm and sanitary design sheets are required to the satisfaction of the Engineering Division. The
sanitary zoned and actual peak flow must also be submitted to the Engineering Division to run the
sanitary capacity modeling. The City of Kitchener will use this information to determine if there
are any downstream issues. If the capacity analysis determines that the pipes will need to be
upgraded to support the development, then these upgrades will be rolled into the development
costs. Further studies will be required at the time of development to determine the approximate
amount of sanitary sewers that will need to be upgraded to accommodate the above
developments. (Please note that upon a preliminary sanitary capacity analysis completed by The
City of Kitchener it was identified that there may be some major restrictions in the sanitary pipes.)
2.) A Water Distribution Report is required to the satisfaction of the Engineering Division in
consultation with Kitchener Utilities and the Region of Waterloo.
Alternatively to providing these requirements as part of the OPA/ZC applications, Engineering can accept
the application of the holding provision.
This holding prevision that would be placed on the property must be lifted prior to Final Site Plan Approval
through the site plan process. This holding prevision would be lifted at such time that adequate sanitary
and water capacity can be achieved and proven satisfac
Engineering and Director of Utilities.
Katie Pietrzak, C.E.T.
Engineering Technologist
S:\Sections\Developement Engineering\Site Plans\Zone Change Application\490-520 510 King St W 16 50 60
Victoria St N - revised.doc
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Unfiled Notes Page 1
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Unfiled Notes Page 1
APPENDIX F
Multimodal Hub Sept. 27, 2012 Public Meeting Question & Answer P
1.Include Greyhound on Site? Yes, intercity transit will be accom
2.Two biggest challenges ahead? 1) Intensity of the uses on site
Rapid transit and GO platforms must be accommodated in addition
and entry to private development. 2) Finding the right private
3.What will happen to the old VIA train station? Discussions with VIA and the City will occur to
determine that. The building has heritage value.
4.Will the future detailed vibration study look at impacts off the? This study will address the
impacts of noise and vibration to the new development on the sit
a.What about the surrounding neighbourhood during construction? The construction
team will address impacts to the neighbourhood. They will mitig
5.How will Victoria Street traffic congestion be addressed? This
complex, especially with more pedestrians crossing. New develop
addressed through traffic studies. The Regional Transportation
needs longer term.
6.Has consideration been given to travel from the city centre to t
transit planning looks at this. The new Fairway Road extension
accommodate future rapid transit. The Fairway Road extension wi
7.Will the Charles Street Terminal site be decommissioned and/or s
and beyond it will continue to be used as a bus terminal. The G
realignment will lessen the need for the terminal. The site doe
potential. Discussions with Regional Council and the City regar
8.Will Ahrens St. re-open when the GO train station moves to the multimodal hub? No.
9.Offering parking on the site does not support transit use. Ther
now. Will there be lots of parking when the site is fully devel
balance with parking there should enough, but not too much. Many municipalities who
to support public transit use through a proper balance of parkin
parking requirements to maximum parking requirements.
10.This site will serve both transit and community needs. How will
friendly? The site has, or will have, a number of strengths: a mix of uses, a nice street
network/grid, wider sidewalks, landscaping and site furnishings,
cycling access from Waterloo Street.
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11.What is the estimated cost of this project? There are a number of components to the hub
project. Some components are currently funded, such as the King
light rail platforms on King Street. The upcoming Market Scopin
cover costs, such as through a private partnership. Upon the co
planning work, Regional Council will consider those costs and a
and financing the project.
12.Will Duke Street remain open during and after the King Street an
separations? Yes. Will the tracks be improved for easier cross
Improvements to the rail crossing are uncertain at this time.
13.How will you generations from now? We are working to
ensure the facility will be functional in the long term. The pl
ensure we get it right.
14.Along King and Victoria Streets, how will cyclists mix with ligh? Cyclists will cross light rail
tracks only at Moore St.
15.The City-Use Trails Master Plan looks to connect the Iron Horse Trail an
Can other trails be made more accessible? Yes, this is a priori
south? A funding application has been submitted to upper level
spur.
16.Will there be increased traffic in residential areas as a result
access of the surrounding area is being considered but cannot be
until we have a better idea of what the ultimate uses of the sit
more detailed traffic studies when the uses are known and the si
developed. Traffic calming may be an option for mitigating sign
necessary.
17.What are the grade separation impacts to cyclists? Concerns about cycling next to a wall if there
are traffic problems/accidents. If the pedestrian clearway is m
mergency vehicles must be accommodated as well.
18.How many bus platforms will there be? It is not expected that there will be much bus layover
on the site, as local bus routes will be reconfigured and most w
priority to get back into travel lanes. Intercity buses will st
the building on the main floor, accessed from Victoria Street.
more scheduled and used very efficiently.
19.Will there be space for taxis on the site? Yes, there will also be passenger pick up and drop off
areas on the site, likely on the second level, accessed from Duk
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20.Where will the busses be housed at night? The will not be houses on the Hub site, but at other
locations such as the Strasburg Road bus maintenance facility.
21.How many rail lines will be running over King Street on the grad We are
planning for 2 rail lines with 2 platforms for passenger service
22.Will the GO Train layover facility be relocated in the future? Yes the
permanent layover facility to the west of where it is currently
23.Where is the Beer Store moving to? It will be relocated but is likely to stay within the same
market area. Retaining and supporting local businesses is a prio
that Noble Trade (which was formerly housed in a building on the
temporarily located on the site will be relocated nearby in the
24.How will you mitigate construction impacts to homes? Agreements will be established with
contractors in advance to mitigate impacts as much as possible.
mean fewer transportation trips through the neighbourhood to get
location. Will you have a liaison for the neighbours during con
25.You mentioned target densities for the Urban Growth Centre is 20
What is the current density? The Region estimates 175-190 people and jobs per hectare, while
the City currently estimates approximately 157. These figures a
variables used in the measurement.
26.The introduction of iXpress stop at King and Victoria has increa
The width of sidewalks in front of the Kaufman Lofts is a safety
addressed now. John Hill will talk to Grand River Transit about
th
Comments must be submitted to either the Region or the City on o to be considered
in the staff report for the Official Plan Amendment (OPA) and Zo
applications. There will be opportunities later in the process t
notified of the upcoming Committee meeting will receive written
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