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HomeMy WebLinkAboutCSD-15-046 - Residential Intensification in Established Neighbourhoods REPORT TO: Council DATE OF MEETING: April 27, 2015 SUBMITTED BY: Alain Pinard, Director of Planning, 519-741-2200 ext. 7319 PREPARED BY: Planning Division (5 contributing authors) WARD(S) INVOLVED: All Wards DATE OF REPORT: April 22, 2015 REPORT NO.: CSD-15-046 SUBJECT: Residential Intensification in Established Neighbourhoods Council Strategy Session ______________________________________________________________________ RECOMMENDATION: For discussion. BACKGROUND: Report CSD-15-012 on March 30, 2015 outlined the context for moving forward with a study for further addressing issues surrounding residential intensification in established neighbourhoods. The directions outlined in Report CSD-13-084 on August 12, 2013 provided several interim steps in advance of preparing additional deliverables. This initiative was added to the Corporate Business Plan through consideration of Report CAO-15-003. REPORT: Prior to conducting a project, such as the Residential Intensification in Established Neighbourhoods Study, it is important to prepare and confirm a Terms of Reference in order to properly program the work, outline the process and confirm the deliverables. Since this initiative was added through consultations with Council as part of the 2015 Corporate Business Plan, it is important to further discuss the scope of the project so that the final product expectations. As outlined in the previous staff reports, this topic can be very broad. The issues that are being experienced as our neighbourhoods change and grow can range from converting or replacing an existing house via a staff-issued building permit to a new, large apartment proposal that needs several planning applications and a City or Regional Council approval. Also, the perceptions and formal participation of residents and land-owners in regards to residential intensification can be wide ranging. There are many that are supportive of the principles behind intensification (provides more range of *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994 for assistance. housing, close to transit, amenities, helps populate central schools and recreation facilities, is financially and environmentally better, etc). They may not formally comment or attend meetings about proposals in certain areas or may understand that there are regulations and guidelines in place to guide the design of a proposal. There are others that have contrary views and may take a stronger, more active role . In addition to competing views there are many other challenging considerations such as legislative requirements/constraints; property/zoning rights; legal appeal rights; and the need to address provincial, regional and/or municipal objectives related to efficient government and affordable approval processes. Even comparing the approaches of other municipalities can be challenging due to many contextual differences. Extreme caution and care is especially required when making comparisons with municipalities outside of Ontario where the legislative and legal framework is very different. The scope of work will have a direct impact on resourcing needs and project timing. To assist with scoping these issues and the potential range of work to be conducted in the Study, Planning staff prepared 4 guiding questions that are attached to this report in guide the discussion at the Council Strategy Session and help focus the subsequent preparation of a detailed Terms of Reference for the Study. Although feedback on all 4 questions is welcomed, it is noted that a staff recommendation is provided for 2 of the 4 questions, and in the case of the other 2 questions, the recommendation is open. It should be noted that if the direction is to do the maximum scope (every form and aspect of intensification everywhere), it is estimated that the study could take up to 3 years to complete. If sufficiently scoped the project could take approximately one year to complete. ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: FINANCIAL IMPLICATIONS: Capital costs associated with the study will be confirmed following the Council discussion on scoping the work and upon preparing of the detailed Terms of Reference. The cost of this new Corporate Priority project would be funded within an existing account (Planning Studies). The typical Purchasing process would be followed and the decision on final awarding of the contract would be provided to Council at a later date. COMMUNITY ENGAGEMENT: It is important that the community be aware and engaged in this project using multiple specific methods will be determined through discussion with Council at the Strategy Session, through the Terms of Reference and as one of the early tasks in the project. CONCLUSION: Discussion at the April Council Strategy Session will help scope the Terms of Reference for a new Corporate Priority project: Residential Intensification in Established Neighbourhoods Study. It is expected that the deliverables of the study will be a and recommendations for approaches to zoning and engagement in intensification developments. CONTRIBUTING AUTHORS: Brandon Sloan, Manager of Long Range & Policy Planning Janine Oosterveld, Manager of Site Development and Customer Service Tina Malone-Wright, Senior Planner Dayna Lafferty, Planner (Urban Design) Natalie Goss, Senior Planner REVIEWED BY; Della Ross, Manager of Development Review ACKNOWLEDGED BY: Shayne Turner, Acting Deputy CAO (Community Services) Attachments: Terms of Reference Scoping Questions and Brief Outline of Considerations Terms of Reference Scoping Questions and Brief Outline of Considerations Question 1: Scale of development Should this Study investigate approaches for addressing the character of 20 minutes smaller projects that do not currently require a Planning Act approval (singles/ semi-detached dwellings/ duplexes)? neighbourhoods: situations where a larger single detached dwelling replaces an existing dwelling, conversions of existing buildings, construction of multiple dwellings 3 storeys or less, new apartments 4 storeys or higher For smaller projects including single detached dwellings, duplexes and semi-detached dwellings, a Planning Act approval (e.g. zone change, minor variance or site plan approval) is often not required. Currently, the City uses two mechanisms to regulate character of the neighbourhood in these situations: zoning restrictions (e.g. setbacks, building height, and parking requirements) and Heritage permits (where applicable). Under the current framework, the City cannot require any additional review of design character at the time of building permit There have been some contentious projects in the past few years that fall within this category. That is, the new housing is constructed in accordance with the zoning regulations but is considered out of character by some neighbours. A primary example is where a house is constructed to the minimum setback, and ends up sticking out in front of all the others on the street. Developing context specific zoning may go a long way in addressing this issue but this is laborious and detailed work because each neighbourhood is different. It would mean having more residential zone categories and/or more layers of zoning regulations that address a broad range of circumstances. Should Council choose to include this scale of development in the scope of work staff would also explore enhanced tools for addressing character. A couple examples from other reetscape Character Analysis requirement and expanding Site Plan Control (e.g. Town of Oakville). Potential implications include added time/cost of the approval process, staff resourcing and an increased need for applicants to hire consultants Recommendation: For discussion Question 2: Where are the geographic locations or types of neighbourhoods that the Study would investigate (central neighbourhoods, suburban, heritage 5 minutes areas, city-wide, or the topic in general)? Intensification is taking places at different scales in various locations throughout the City of Kitchener. Within the last several years, there has been increased interest in intensifying in established neighbourhoods, particularly in close proximity to the ION Rapid Transit Corridor. Because intensification issues are often context-specific, the geographical extent of the study area greatly impacts the scope of work. There are no economies of scale with this work. More neighbourhoods means more issues to examine, more stakeholders to engage and more potential solutions. As a result, some municipalities such as Ottawa have taken a phased approach to studying intensification, starting with the areas where pressures and/or conflicts are greatest. In Kitchener intensifications pressures appear to be the greatest near the ION Rapid Transit Corridor and conflicts are more common in areas established prior to 1994, the year the current residential zones were adopted by by-law. Kitchener Planning staff endorses a phased approach and propose that the initial area of study be the Central Neighbourhoods.The Central Neighbourhoods, shown in the attached schedule, include the area bounded by the municipal boundary with the City of Waterloo to the north, Conestoga Parkway to the east and south, and Westmount Road West and Westmount Road East to the west. The Central Neighbourhoods not only comprise a significant portion of the ION Transit corridor, it also includes part of the most recent Official Plan Review), three Heritage Conservation Districts and most neighbourhoods established pre-1994. If a phased approach is taken, the study would include a recommendation on how to address the remainder of the city. Recommendation: That the study focus on the Central Neighbourhoods for the initial phase. Figure 1: Map of Central and Suburban Neighbourhoods Question 3: What are some of the design issues that should be considered (building heights, building mass, front yard setbacks, side yard setbacks, building 5 minutes stepbacks for upper storeys, landscaping, parking, streetscape, etc.)? A new building in an established residential neighbourhood results in a change to the existing streetscape. To achieve the positive benefits of residential intensification, new development needs to fit into the character of a neighbourhood. Concerns with loss of front yard landscaping, garage-dominated facades, the front yard building setback and the height and size of new developments to name a few, are common and well-known. This study will examine the type and amount of change that is appropriate in established neighbourhoods; and how new developments can be designed in keeping with the character of our established neighbourhoods. Further enhancements to neighbourhoods involves changes to general and location-specific land use policies, zoning, design guidelines and the development process. Having these guidelines in place will seek to set the City expectation for new development in established residential neighbourhoods. It is important to note that following the creation of enhanced zoning, guidelines and information, there will continue to be development proposals and applications to amend the planning framework. Challenging decisions will still need to be made, however it is expected that the project will provide staff, the community and the development industry with a more clear direction as to the expectations within existing established neighbourhoods. Recommendation : That the following design issues be addressed in the Study: Front Yard Setback the actual front yard setbacks of existing developments in relation to what is being proposed; Height, Building Mass and Stepbacks for upper stories the built form in relation to surrounding buildings; Landscape Amenity Area the use of the lands in the front and corner side yards such as soft landscaping, amenity area and walkways; Parking the incidence and location of parking, the type and access to parking, the ratio of the driveway width to lot width, or more in visual terms the ratio of hard surfaces to landscaping; Streetscape character defining elements - how a new development fits into the established character of the street. Question 4: How should community engagement occur in the preparation of the Study? 20 minutes This study will result in a new/modified way to consider development in established neighbourhoods. It is important for people that live in these areas to be a voice in shaping the future of their neighbourhoods in advance of any change that may occur. Staff recommends providing opportunities for engagement at key milestones throughout this study (i.e. issue identification, review of alternatives, recommended approach). How and to what level the engagement occurs will have a significant impact on resourcing, budget and the role of any potential consultants. Options for community engagement include: Option 1 Traditional Methods (Timeframe: Approximately 1 year or less) Uses existing tools that are readily available to staff and includes online and traditional print campaigns. Consultant facilitation with staff support. Tools Pros Cons Drop In Sessions with Least expensive option Fewer communication presentation and engagement Utilizes existing tools opportunities SMS, social media, surveys, e-newsletter Does not make use of technology for visual Websites illustration (Timeframe: Approximately 1-2 years) Option 2 Hybrid Method Tools outlined in Option 1 plus a few extra. Consultant facilitation with staff support. Tools Pros Cons Tools in Approach 1 Provides more opportunities More costly than Stakeholder Interviews for communications Approach 1 Physical hub for Increased ability of reaching Frequency of engagement the target audience and communications achieving more participation impacts costs (Timeframe: Approximately 2-3 years) Option 3 Extensive Methods All tools outlined above plus new and innovative techniques to allow for intensive personal engagement. Consultant facilitation and preparation of materials with staff support. Tools Pros Cons Tools in Approaches 1 Provides opportunities for Higher costs and 2 Increased effectiveness of More time to organize Virtual town hall events messaging and and develop communicating innovative tools Enhanced online engagement, videos Demonstrate leadership in community engagement Experiential learning (bus tours/bike tours) meaningful community engagement Workshops Utilizes tools that make Ideas Boards engagement easier to access Live streaming of meetings Recommendation: For discussion