PLANNING RATIONALE REPORT

Transcription

1 PLANNING RATIONALE REPORT Official Plan Amendment Application Zoning By-Law Amendment Application Westin Hotel Addition, Ottawa Prepared for: Quest Project Management Inc. (on behalf of The Westin Ottawa) by: 6393 Roslyn Street Ottawa (Orleans), Ontario K1C 2Z9

2 TABLE OF CONTENTS 1. INTRODUCTION Background SITE CONTEXT Site Location and Context Site Characteristics Existing Land Use Designations City of Ottawa Official Plan Central Area Secondary Plan City of Ottawa Zoning By-law DEVELOPMENT PROPOSAL Proposed Addition PLANNING RATIONALE Provincial Policy Statement City of Ottawa Official Plan (as modified by OPA 150) Height Controls Design Analysis Transportation Central Area Secondary Plan National Capital Commission - Core Area Sector Plan (2005) City of Ottawa Zoning By-law Building Height Restrictions Variance to Zoning By-law AZ SUPPORTING DOCUMENTATION CONSULTATIONS SUMMARY AND CONCLUSION APPENDIX 1 MD Zone (Mixed-Use Downtown Zone) APPENDIX 2 Variance Decision (File A-2948)... 45

3 Page 1 1. INTRODUCTION 1.1. Background The Westin Ottawa Hotel (referred to as the Westin Hotel) is an important landmark in Ottawa s downtown area, serving many tourists and business travelers. The Westin Hotel is currently planning an expansion to the 22 nd floor of the hotel to include an elegant, multipurpose banquet and meeting facility, which is intended to be operational in time to host celebrations and other events related to Canada s sesquicentennial year in To facilitate this development, an Official Plan Amendment and a Zoning By-law Amendment are required to allow for increased building height. The planning rationale will demonstrate that this development proposal is desirable and represents good planning. The proposal is in conformity with the Provincial Policy Statement (PPS), and it aligns with the City of Ottawa s development goals, policies and regulations.

4 Page 2 2. SITE CONTEXT 2.1. Site Location and Context The subject site is located at in the City of Ottawa, 50 metres southeast of the intersection of Colonel By Drive, Rideau Street and Sussex Drive, and nearly two kilometres northwest of the Highway 417 and Nicholas Street interchange. The Westin Hotel, the Rideau Centre shopping centre, and the Ottawa Convention Centre connect over the adjacent right of way of Daly Avenue (Figure 1). By virtue of its central location and architectural design, the Westin Hotel is a well-known landmark on the Ottawa skyline. The 25-storey hotel was initially built in and is connected internally to the Rideau Centre and the recently rebuilt Ottawa Convention Centre. The urban site lies directly across Colonel By Drive from the Government Conference Centre, and is within convenient walking distance of many premier Ottawa-area amenities and tourist attractions including the By Ward Market, Rideau Street, the Rideau Canal, the National Gallery of Canada, the University of Ottawa, the National Arts Centre, the central business district, and Parliament Hill. Figure 2 serves as a key map to contextual photographs of the Westin Hotel and its surroundings. The site is well-served by current transit service, with high-frequency bus service on Rideau Street to the immediate north, and the Mackenzie King bridge to the south. The Confederation Line (Light Rail Transit), currently under construction and slated for completion in 2018, will eventually run under Rideau Street, and include a station at the Rideau Centre (Figure 3).

5 Page 3 Figure 1: Location Map Source: Google Maps 2014

6 Page 4 NUMBERED VIEWS (photographs appear on pages 5-7) 1 From Wellington Street, showing the Government Conference Centre and surrounding buildings 2 At Elgin Street and Laurier Avenue with Confederation Park in foreground 3 From Laurier Avenue at entrance to Confederation Park 4 From between the Chateau Laurier and the Government Conference Centre 5 From Daly Avenue next to the Arts Court complex. The Rideau Centre parking garage is in the foreground. 6 From Sussex Drive next to the Royal Canadian Mint 7 From Colonel By Drive, looking to the front entrance of the Westin Hotel. 8 Ottawa Convention Centre viewed from Colonel By Drive 9 View down the Rideau Canal from the Laurier Avenue bridge towards the Westin Hotel and Parliament Hill. The Ottawa Convention Centre appears on the right and the National Arts Centre on the left. Photos: and HOK Inc. Figure 2: Key Map to Context Photos Source: City of Ottawa, GeoOttawa 2014

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10 Page 8 Figure 3: Bird s Eye Aerial - Context Source: Bing Maps 2014 Subject Site Transitway Confederation Line and Planned Stations

11 Page Site Characteristics The Westin Hotel site occupies 3,961.3 m 2 of the consolidated 4.39 ha parcel that comprises the Rideau Centre, the Westin Hotel and the office building at 10 Rideau Street. The portion of the site occupied by the Westin slopes gently from a high point at the northwest corner of the building on Colonel By Drive (65.5 m geodetic) to a low point at the southwest corner along Daly Avenue (62 m geodetic). The elevations and lot configuration are depicted in a survey plan of the property, included as Figure 4. The site contains a 25 storey hotel with 501 guestrooms, two restaurants, and 4,090 m 2 (44,000 square feet) of flexible convention and meeting space, which can accommodate up to 3,000 delegates. The Westin Hotel is directly connected to the recently expanded Ottawa Convention Centre, and the Rideau Centre shopping mall, which is currently undergoing extensive renovation. An office building at the corner of Rideau Street and Colonel By Drive (10 Rideau Street) is integrated into the Rideau Centre complex. The site is well-served by the surrounding transit, road, cycling, and pedestrian networks. Access to the Westin Hotel is via a one-way passenger pick-up and drop off loop accessed from Daly Avenue, exiting onto Colonel By Drive. The hotel has a multi-level underground parking garage shared with the Rideau Centre shopping centre, the entrance to which is accessed from the internal passenger drop off loop. The exit from the parking garage is on Daly Avenue where the road tunnels below the Westin Hotel and the Ottawa Convention Centre.

12 Page 10 Figure 4: Survey Plan Project Management T F

13 Page Existing Land Use Designations City of Ottawa Official Plan The site is designated Central Area on Schedule B of the City of Ottawa Official Plan. The Central Area is the economic and cultural heart of the city, and the symbolic heart of the nation. As such, the Central Area designation permits a diverse range of land uses with a chief focus on government, tourism, business, retail, entertainment and culture. Developments in the Central Area should contribute to a high level of overall animation and activity throughout the day and the seasons, and exhibit a high degree of design quality. The vision for the Central Area is a mix of highly interconnected uses that gives the City its vitality and identity as the national capital. The site falls within the area of height control relative to the Parliament Buildings, as represented in Annex 8 of the Official Plan. The majority of the hotel is within the area of Background Height Control on Annex 8A meaning that buildings in this area should not mar views of/toward Parliament or dominate the skyline when viewed from afar. Height limits for the site are also described in Annex 8B as an angular plane rising from the ridgeline of the Centre Block of Parliament. The current proposal requires an amendment to the angular height plane that applies to the site. Rideau Street and Colonel By Drive from Rideau to Daly Avenue are designated Arterial Roads on Schedule F. South of Daly Avenue, Colonel By Drive becomes a Federally Owned Road. The short stretch of Colonel By Drive directly in front of the Westin Hotel is a designated on-road cycling route offering a connection to the shared cyclepedestrian pathway along the east side of the Rideau Canal (Schedule C) Central Area Secondary Plan The site falls within the Rideau/Congress Centre area of the Central Area Secondary Plan. The Secondary Plan reinforces the Official Plan s focus on uses that strengthen the area s role in supporting tourism, visitor activity and special events. The policies for the Rideau/Congress Centre area stress the need for additional vibrancy, pedestrian connections, and a complementarity of uses that contribute to a high quality resident and visitor experience.

14 Page City of Ottawa Zoning By-law The lands comprising the Westin Hotel and Rideau Centre shopping centre are zoned MD[1425] S55, S56, S57, S64 Mixed-Use Downtown Zone pursuant to the governing By-Law (Figure 5). The MD Zone is designed to support the Central Area as the central place in the capital region for employment and shopping while also allowing residential, cultural and entertainment uses. The MD Zone seeks to uphold the character of the each sub-area in the Central Area (including the Rideau/Congress Centre Area), protect the visual integrity and symbolic primacy of the Parliament Buildings, and facilitate intense, compatible and complementary development to foster an active, pedestrian-oriented environment at street level. This zone allows for a mix of uses including but not limited to a hotel and a place of assembly. Urban Exception 1425 addresses the built form of the Rideau Centre parking garage fronting on Nicholas Street, and as such is not relevant to the present application. Schedules 55, 56, 57 and 64 describe the building height regulations that apply to the entire Westin Hotel and the Rideau Centre complex. In particular, Schedule 56 shows the portion of the hotel where the proposed addition is to be located (Figure 6). The proposed height of the addition does not comply with the height limits represented in Schedule 56; therefore an amendment is requested to increase the permitted building heights for this portion of the hotel. The complete list of permitted uses and the performance standards of the MD zone are included in Appendix 1.

15 Page 13 Figure 5: Existing Area Zoning (City of Ottawa Zoning By-law ) Source: City of Ottawa GeoMap

16 Page 14 Figure 6: Zoning By-law Height Limits Source: City of Ottawa Zoning By-law , Schedule 56

17 Page DEVELOPMENT PROPOSAL 3.1. Proposed Addition This application for an is intended to facilitate a 378 m 2 expansion of the 22 nd floor of the existing Westin Hotel to incorporate a new banquet and meeting facility and a stair lobby that would connect the banquet and meeting facility to the hotel from the 23 rd floor (Figure 7). The banquet and meeting facility is planned to be ready to host events associated with Canada s 150 th anniversary in As shown in the elevation and plan view drawings, the banquet and meeting facility would be built on a terrace at the northwest corner of the hotel formed by the roof of the current 21 st storey (Figures 8 and 9). The proposed addition will introduce an exciting new venue and destination into the downtown core. As one of Ottawa s premier and most sophisticated hotels, The Westin Ottawa, with its prominent location near Parliament Hill, the central business district, the UNESCO-recognized Rideau Canal, and significant conference facilities, accommodates important City entry, reception and social functions for residents, business and visitors to the Nation s Capital. The building addition will afford excellent views towards many of the capital s important landmarks. The materials proposed for the 22nd floor addition are similar in colour and patina to that of the existing buildings in and around the site (Figures 10 and 11). The design is sensitive to the nearby parliamentary district and important civic buildings such as the Fairmont Chateau Laurier, the Langevin Block at the corner of Wellington Street and Elgin Street, and the Rideau Centre Building at 10 Rideau Street. These buildings feature copper roofs (cornice in the case of 10 Rideau Street).

18 Page 16 Figure 7: Level 22 Floor Plan - Proposed Source: HOK Architects Inc.

19 Page 17 Figure 8: Plan View showing extent and height of new addition and stair access (All height measurements are ASL). Source: HOK Architects Inc.

20 Page 18 Figure 9: West Elevation showing extent and height of new banquet and meeting facility and stair lobby (All height measurements are ASL). Source: HOK Architects Inc.

21 Page 19 Figure 10: West Elevation (Rendering) Source: HOK Architects Inc.

22 Page 20 Figure 11: 3-D View of Proposed Addition Source: HOK Architects Inc.

23 Page PLANNING RATIONALE 4.1. Provincial Policy Statement The 2014 PPS came into force and effect on April 30, It provides policy direction on land use and planning matters of provincial interest, outlining the provincial government s vision and policies in these matters. The 2014 PPS builds upon its 2005 predecessor, providing greater emphasis on healthy, integrated and sustainable communities. The Planning Act, 1990, s. 3(a) requires that municipal land use and planning decisions be consistent with the policy statement as issued under the Act. Part V, Section 1.0, Building Strong Communities, encourages strong, healthy and sustainable communities through a number of strategies. Those strategies include promoting efficient land use patterns to sustain financial well-being (Policy 1.1.1(a)), accommodating an appropriate mix of land uses, including employment and other uses to meet long term needs (Policy (b)), and promoting intensification and redevelopment where this can be accommodated given the existing building stock, and existing and planned infrastructure and public facilities (Policy ). The PPS stresses the need to coordinate efforts within municipalities and with other applicable orders of government (e.g. federal government) around the management of growth and development (Policy (a)). Municipalities also have a responsibility to promote economic development and competitiveness by providing for a mix of employment and institutional uses (Policy (a)), supporting a wide range of economic activities and ancillary uses that take into account the needs of existing and future businesses (Policy (b)), and encouraging compact, mixed-use development that incorporates compatible development in support of liveable and resilient communities (Policy (c)). In addition, the PPS policies regarding Transportation Systems (Policy 1.6.7) speak to making efficient use of existing and planned infrastructure, promoting a land use pattern, density and mix of uses that support the use of transit and active transportation, and coordinating transportation and land use considerations at all stages of the planning

24 Page 22 process. With respect to Long-Term Economic Prosperity, the PPS touches on promoting economic development and community investment-readiness (Policy (a)), optimizing the long-term availability and use of land and resources (Policy (b)), and providing opportunities for sustainable tourism development (Policy (g)). The development proposal furthers the land use planning objectives of the Provincial Policy Statement by adding to the range of uses and the vitality of the area, minimizing the use of additional lands, taking advantage of the capacity of the City of Ottawa s existing and planned transit systems, and contributing to the tourism potential of the city and capital region. The proposal is also consistent with the vision of the federal government, as represented by the National Capital Commission in this instance City of Ottawa Official Plan (as modified by OPA 150) The City of Ottawa Official Plan has been amended by Official Plan Amendment #150 (OPA 150), which is not yet in full force and effect, since a number of appeals have been filed with the Ontario Municipal Board. In this circumstance, the City of Ottawa requires that development applications comply with the requirements of both the fully approved Official Plan and OPA 150. The site is designated Central Area in the City of Ottawa Official Plan, a designation intended to strengthen and promote the area in its function as the economic and cultural heart of the city, and the symbolic heart of the nation. The Official Plan acknowledges Ottawa s role as the nation s capital, and consequently sets out a vision for the Central Area to be the primary meeting place for national and international delegations, and a key showpiece of Canada s identity and vibrancy for residents and visitors alike (Section 1.2). By virtue of its location and historic function the Central Area has traditionally been, and will remain a magnet for development and social activity in the City. The Official Plan recognizes this function and stresses the importance of fostering the positive evolution of the Central Area through construction at higher densities (particularly around rapid transit stations). The Official Plan also emphasizes the need for careful attention to the interrelation of attractive building design, the provision of quality open spaces, and the expansion of effective, multimodal transportation options (Section 2.2).

25 Page 23 Consistent with the PPS, the City s plan encourages intensification in the urban area, where supported by transit (Section 2.2.2). Policy 2 in this section defines employment intensification as including an expansion of existing floor area resulting in a net increase in jobs. Policies 4 and 5 identify the Central Area as one of the City s target areas for intensification where minimum development density is expected to reach 500 people and jobs per hectare by Within the target areas for intensification taller buildings are permitted particularly in areas that are supported by the City s Rapid Transit and Transit Priority Network (Section 2.2.2, Policy 10). As a high-profile meeting place for major events, commencing with Canada s sesquicentennial celebrations, the development proposal is consistent with the City of Ottawa s policies for the Central Area land use designation and intensification. The site is located in close proximity to the City s planned light rail transit line, and the development will contribute to enhancing the amenities and overall visitor experience in the area Height Controls The site is located within a special area of height control relative to the Parliament Buildings as illustrated in Annex 8 of the Official Plan, and described in the policies for the Central Area designation (section 3.6.6). The taller portion of the Westin Hotel is located within the area of background height control on Annex 8A, meaning that buildings in these areas should not detract from the visual prominence of the Parliament Buildings when viewed from key viewpoints surrounding the Central Area. The specific maximum heights of buildings in the vicinity of the Parliament Buildings is set out in Annex 8B as an angular plane rising from the ridgeline of the Centre Block of Parliament. The Westin Hotel site is located within the angular height control plane in Annex 8B (Figure 12). As shown in Figures 8 and 9 above, the segment of the building which will accommodate the addition is currently at a level of m ASL, which in its current state slightly exceeds the angular height limit in Annex 8B. The proposed banquet and meeting facility will have a finished height of approximately metres ASL, and the associated stair lobby will rise to approximately metres ASL on the rear face of the

26 Page 24 building. In keeping with Section 3.6.6, Policy 2. e. ii., an Official Plan Amendment to Annex 8B is requested, which is supported by a thorough analysis of designated views of the Ottawa skyline looking towards Parliament. Photographs were taken at several representative key viewpoints on Annex 8A (Figure 12) which reveal no negative impact on views towards Parliament, and negligible changes to the overall Ottawa skyline.

27 Page 25 Figure 12: Central Area Key Views and Areas of Foreground/Background Height Control Source: City of Ottawa Official Plan, Annex 8A

28 Page 26 Viewpoint 1 (CONTROL POINT) At Sussex Drive over the MacDonald Cartier Bridge, the Westin Hotel does not appear in view No impact on protected views or Ottawa skyline Viewpoint 3 At the forecourt of the National Gallery of Canada, the Parliament Buildings have prominence and the Westin Hotel does not appear No impact on protected views or Ottawa skyline.

29 Page 27 Viewpoint 4 At Nepean Point, the Parliament Buildings have clear prominence. The Westin Hotel appears on the skyline to the left of the photograph, however, the building massing already extends higher than the proposed addition. No impact on protected views. Negligible change to Ottawa skyline. Viewpoint 6 (CONTROL POINT) At the high point of the pedestrian ramp of the Alexandra Bridge boardwalk, the Parliament Buildings rise prominently above the Ottawa Skyline. The Westin Hotel appears to the left of the photograph. No impact on protected views. Negligible change to Ottawa skyline.

30 Page 28 Viewpoint 10 On the terrace at the Canadian Museum of History, Parliament has clear prominence. The uppermost levels of the Westin Hotel are visible behind the Chateau Laurier. Very little, if any of the proposed addition will appear in this view. No impact on protected views. Negligible change to Ottawa skyline. Viewpoint 12 (CONTROL POINT) At the intersection of Portage Bridge (Maisonneuve Boulevard) and Laurier Avenue in Gatineau, the Westin Hotel does not appear in view. No impact on protected views or Ottawa skyline.

31 Page 29 Viewpoint 14 On the southern portion of the Portage Bridge, Parliament has clear prominence and the Westin Hotel does not appear in view. No impact on protected views or Ottawa skyline. Viewpoint 16 On the Sir John A. MacDonald Parkway above the CPR line, the City skyline complements the view of the Parliament Buildings. The buildings of Ottawa s Central Area completely block the views of the Westin Hotel. No impact on protected views or Ottawa skyline. The review of designated key views around the Parliament Buildings indicates that the increased height on the portion of the Westin Hotel will not visually mar the silhouette of the Parliament Buildings, nor will it dominate the Parliament Buildings or other national symbols.

32 Page Design Analysis As the site is located within an area of Design Priority, aspects of this Planning Rationale address the requirements of a scoped Design Brief prepared separately by the project architect and included in the submission package. In keeping with Official Plan Section 2.5.1, policy 1, the following table offers a descriptive response to how the proposal addresses the City s design objectives: Design Objectives 1. To enhance the sense of community by creating and maintaining places with their own distinct identity. How the proposal responds The proposal contributes to the overall amenity and vibrancy of the Central Area, and the Rideau/Congress Centre area in particular. This area is intended to reflect and showcase the identity of Ottawa as Canada s capital. The added space will offer spectacular views of Canada s national capital, from which to celebrate its identity and uniqueness. 2. To define quality public and private spaces through development. 3. To create places that are safe, accessible and are easy to get to, and move through. 4. To ensure that new development respects the character of existing areas. 5. To consider adaptability and diversity by creating places that can adapt and evolve easily over time and that are characterized by variety and choice. [OMB decision #2649, September 21, 2006] The proposal will add a desirable private indoor space that, over time, will be used and appreciated by many Ottawa residents and dignitaries, and by visitors to the capital. Not directly applicable. The desired conditions have been achieved through previous development on the site, and will be further enhanced by planned public infrastructure (e.g. LRT). The general building profile and existing development character will be unaffected by the proposal. The proposal will enhance the profile and amenity of the Westin Hotel and the surrounding area. The hotel is adapting to new needs by providing an elegant facility to celebrate events, commencing with Canada s sesquicentennial in 2017.

33 Page 31 Design Objectives 6. To understand and respect natural processes and features in development design. 7. To maximize energyefficiency and promote sustainable design to reduce the resource consumption, energy use, and carbon footprint of the built environment. How the proposal responds Construction will adhere to leading/current environmental standards. The addition will intensify the uses on a developed, urban site which will contribute to energy efficiency efforts, and avoid the need for construction on new lands. As the site is within 600 metres of two existing rapid transit stations, and the forthcoming Confederation Line, the suitability of the current proposal has been reviewed against the City s applicable Transit-Oriented Development Guidelines. While the magnitude of the planned addition is relatively small when considered in isolation, it will nonetheless add amenity to a well-used, multi-purpose, transit-oriented development site (Guidelines 1 and 3). It focuses additional development density and building height within the vicinity of the transit station (Guidelines 8 and 9), and enhances the established landmark feature that is represented by the Westin Hotel (Guideline 12). The Westin Hotel design respects the guidelines regarding step backs; the lower floors include a podium feature, with the taller portions set further back. The characteristic terraced profile of the Westin Hotel will be maintained following the addition. (Guideline 11). The planned addition to the Westin Hotel responds favourably to the City s applicable design objectives identified in Section 2.5.1, and reflects the intent and direction of the City s Transit-Oriented Development (Design) Guidelines. Following the planned addition, the Westin Hotel building will continue to function as an intensely-used, transit-oriented development. The purpose of the addition will increase the building s landmark importance in downtown Ottawa.

34 Page Transportation The Westin Hotel is built within Development Zone of Influence of the Confederation Line (Light Rail Transit) as depicted in Annex 17 to the Official Plan. The City has determined that the scope of the addition is relatively minor. Consequently, the City has waived the requirement for a dedicated study indicating how the proposal supports transit operations and demonstrates that there will be no negative structural or operational impacts on the Confederation Line. The proposal will nonetheless support expanded transit operations by intensifying the uses near the Rideau Station of the Confederation Line. The site is well-served by the City s existing rapid transit services and arterial roads as shown on Official Plan Schedules D and F respectively. Colonel By Drive, Rideau Street, Nicholas Street, and Sussex Drive are designated arterial roads in the Official Plan. The City s cycling network is also well-developed in the vicinity of the site, with onroad routes on Colonel By Drive and the Mackenzie Bridge, and off-road cycling routes along the Rideau Canal (Schedule C). The existing transportation network of roads, transit and cycling infrastructure, combined with planned expansions support a high-intensity of use in the area. The proposal supports the continued and expanded operations of the City s transit system Central Area Secondary Plan The site falls within the Rideau/Congress Centre area of the Central Area Secondary Plan. The Secondary Plan stresses the role of the Rideau/Congress Centre area as a focal point for tourism and visitor activity. The policies of the plan call for a range of uses that support the hosting of special events, and for welcoming residents, tourists and convention delegates to the capital. Development in the area should contribute to its overall vibrancy and cultural vitality, and further strengthen the physical and functional interconnections between the Ottawa Congress Centre, the Westin Hotel and the Rideau Centre. The plan also envisions future underground transit service (now under construction) to further boost the capacity and profile of the area for visitor activity.

35 Page 33 In relation to taller buildings, the Secondary Plan policies encourage a visually interesting roof treatment (Policy f. i.) The proposed building addition will expand one storey of the building, and incorporate glazing and other features that enhance the visual interest of the Westin Hotel. As demonstrated in the view analysis above, the development proposal will have no negative impact on significant public views of Parliament Hill, the Rideau Canal or the Arts Court heritage cluster, that are referenced in Policy g. Conversely, the planned expansion of the hotel will showcase significant views towards these significant landmarks when used for Canada s 150 th year celebrations and other functions. Significant progress has been made on each of the area-specific initiatives from the City s Downtown Ottawa Urban Design Strategy (DOUDS), over the last ten years (Policy i). These initiatives include the Rideau Centre/Congress Centre Façade Improvements, and a full redesign of Colonel By Drive (road width, sidewalk design and installation of new street furniture) between the MacKenzie King Bridge and Rideau Street. The DOUDS also calls for the strengthening of Heritage Asset Protection for the cluster of heritage buildings in the vicinity of Daly Avenue and Nicholas Street. A recently announced public-private partnership to revitalize the Arts Court complex at this intersection will largely satisfy this major remaining design policy. Taken together, each of these accomplishments from the DOUDS contributes to a strengthening of the area as the desired centre for continued visitor activity and community vitality. The development proposal is consistent with the policies for the Rideau/Congress Centre area as they strengthen the area s role in supporting tourism, visitor activity and special events. The proposal will make further use of the planned expansion of the City s public transit system, as well as the recent and ongoing public/private investments in the streetscape, roadways and heritage character of the area National Capital Commission - Core Area Sector Plan (2005) The Core Area Sector Plan represents the lead policy document governing the planning and development of federal lands in the Core Area for the twenty-year period to The plan imagines the Heart of the Capital as a unified space for working, living and celebrating Canada, a place that communicates the nation and creates spaces for Canadians to gather

36 Page 34 and celebrate their sense of country. 1 While the Core Area Sector Plan does not specifically govern land use planning proposals on privately held lands, it nonetheless sets out the federal government s vision for a visually appealing, beautiful, and commemorative capital area. The principal orientations or priorities of the plan that are relevant to the Westin Hotel proposal include: Confederation Boulevard the primacy of the ceremonial route, including Rideau Street, Wellington Street and Sussex Drive, that ties together the prominent national institutions and symbols in the Core Area. Capital Experience the desire to enhance participation and animation in the Core Area, with a view to creating memorable visitor experiences of the capital. Urban Design and Form the desire for high quality architecture and public spaces in the area to reinforce and enhance the character of the Core Area. Sustainable Urban Transportation the need for improved linkages and connectivity between the uses in the Core Area, and between the Core and the rest of the city. View Protection recognition of the important views towards Parliament, and the need to enhance or protect them. In addition, the Core Area Sector Plan addresses the importance of federal government efforts to support adjoining Character Areas where the City of Ottawa is responsible for development control. One such Character Area is the Civic Arts, Theatre and Retail Precinct, centred on the Rideau Centre, Rideau Street and the Ottawa Convention Centre (and the Westin Hotel by extension). The policies and strategies in this part of the plan refer to creating a high-quality visitor experience by supporting cultural, retail and tourismoriented land uses. The development proposal contributes to the significance, function and animation of the Core Area as a place to celebrate the nation. The addition will be designed in a way that 1 Canada s Capital Core Area Sector Plan, National Capital Commission, June 2005, pg. ii.

37 Page 35 enhances views to the Parliament buildings and other national symbols, rather than detracting from or blocking these views. The proposal also takes advantage of existing and planned public transportation capacity, and is consistent with the coordinated federalmunicipal development vision for the area City of Ottawa Zoning By-law The subject property is zoned MD[1425] S55, S56, S57, S64 Mixed-Use Downtown Zone pursuant to the governing By-Law The MD Zone supports the Central Area as the central place in the capital region for employment and shopping while also allowing residential, cultural and entertainment uses. This zone allows for a mix of uses including a hotel and a place of assembly. Urban Exception 1425 addresses the built form of the Rideau Centre parking garage fronting on Nicholas Street, and as such is not relevant to the present application Building Height Restrictions Of particular relevance to this application is Schedule 56 which describes the angular building height plane regulation that applies to the Westin Hotel. Schedule 56 (Figure 5) shows the specific portion of the hotel where the proposed addition is located. The present zoning by-law amendment constitutes a request to increase the permitted heights to allow the portion of the building where the banquet and meeting facility would be built to rise to m ASL, and the adjoining stair lobby to rise to m ASL Variance to Zoning By-law AZ-64 The Westin Hotel was originally constructed in under the provisions of City of Ottawa Zoning By-law AZ-64, as amended by By-law At the time, the site was zoned C2-c (5.0), with an established height limit of 141 metres ASL. To account for the protrusion of mechanical equipment for the 25 storey hotel, the proponent obtained a variance (File Number A-2948) to increase the building height to m ASL (Appendix B). This height variance has therefore created a non-complying right for the portions of the hotel that exceed the current height limits in City of Ottawa Zoning By-law In this regard, the current request to build a banquet and meeting facility at

38 Page 36 the 22nd level of the hotel will not increase the overall building height that was permitted by the height variance obtained for the site in At a total height of m ASL, the hotel rises well above the height planes that apply to the Westin site. The proposed building addition will occupy a notch formed by a roof terrace at the 22nd floor and yet will remain well below the full building height of m ASL. When viewed from various angles, particularly the north and south perspectives, the perception of additional building height will be minimal. When viewing the Ottawa skyline at a distance, the additional height resulting from the construction of a banquet and meeting facility on the 22 nd floor will have no negative effects on the protected views of and towards Parliament Hill. The silhouette and visual prominence of the Parliament Buildings and other key national symbols in the Central Area will remain intact. There will be negligible change to the overall Ottawa skyline, and the building will retain its stepped profile.

39 Page SUPPORTING DOCUMENTATION The following studies have been completed as part of the preparation of the Official Plan and Zoning By-law Amendment; the prescribed number of copies of each report is included in the submission package. Each study supports the development as proposed. Design Brief prepared by HOK Architects Servicing Study and Stormwater Management Brief prepared by Novatech Engineering Noise/Vibration Brief prepared by Gradient Wind Engineering Inc.

40 Page CONSULTATIONS A formal pre-consultation meeting was held with City staff on September 22, 2014 which identified the key issues and the required studies to consider in the application. Previously, in Spring 2014, Westin Ottawa representatives held a preliminary meeting with senior City planning staff. City staff were supportive of the concept and identified no high level concerns.

41 Page SUMMARY AND CONCLUSION The proposed Official Plan Amendment and Zoning By-law Amendment are appropriate for the site and its surrounding context. To summarize: The proposal complies with the policies of the Provincial Policy Statement, 2014 regarding intensification, and the optimization of transportation and other public infrastructure; The use is supported by the City of Ottawa Official Plan policies and the Secondary Plan for the Central Area. The site is located directly in the Rideau/Congress Centre area of the Secondary Plan, which specifically encourages uses that have a visitor-oriented, tourism focus. A thorough review of the key views identified in the City s Official Plan (Annex 8), reveals that the additional height will have no impact on views of the Parliament Buildings, and will have negligible effect on overall views of the Ottawa skyline. In effect, the new meeting space, which will be inaugurated in conjunction with Canada s 2017 sesquicentennial will provide a space that offers excellent views of Parliament and other important Canadian symbols/landmarks; The addition will not increase the overall height of the building, and as such the perception and effect of additional height on a portion of one floor will be minimal; The development will capitalize on the forthcoming transit expansions in Ottawa, most particularly the Confederation Line (with a station at the Rideau Centre); and The proposal is in keeping with the federal government s vision for the Core Area of Canada s Capital, as a place to celebrate the country s identity and achievements. Celebrations held at this very central location will further support the vibrancy and animation of the area and its wider surroundings. In conclusion, the proposal to increase the permitted height on the Westin Hotel represents good planning and is in the public interest.

42 Page 40 APPENDIX 1 MD Zone (Mixed-Use Downtown Zone) The following is an excerpt of Section 193 from the City of Ottawa Zoning By-law as of October 22, Purpose of the Zone The purpose of the MD Mixed-Use Downtown Zone is to: (1) support the Central Area, as designated in the Official Plan, as the central place in the region for employment and shopping while also allowing residential, cultural and entertainment uses; (2) ensure that the Character Areas in the Central Area, namely the Core Area, the Parliamentary Precinct, the ByWard Market, the Rideau/Congress Centre, the Canal Area, Lowertown, Upper Town, Sandy Hill West, LeBreton Flats and the four Business Improvement Areas, Rideau, Sparks, ByWard Market and Bank Streets, continue to serve as primary business or shopping areas and maintain their distinct character; (3) facilitate more intense, compatible and complementary development to ensure that the active, pedestrian-oriented environment at street level, particularly along Bank Street, Sparks Street and Rideau Street is sustained; and (4) impose development standards that will protect the visual integrity and symbolic primacy of the Parliament Buildings and be in keeping with the existing scale, character and function of the various Character Areas and Business Improvement Areas in the Central Area while having regard to the heritage structures of the Central Area In the MD Zone: Permitted Uses (1) The following uses are permitted subject to: (a) the provisions of subsections 193(2) to (6); (b) car wash being located in a building containing another permitted use; (c) a parking garage being permitted if 100% of the ground floor fronting on the street, excluding mechanical room, and pedestrian and vehicular access, is occupied by uses listed under subsection 193(2) below, for a minimum depth of 3 metres; amusement centre animal care establishment apartment dwelling, low rise apartment dwelling, mid rise (By-law ) apartment dwelling, high rise (By-law ) artist studio bank

43 Page 41 bank machine bar bed and breakfast, see Part 5, Section 121 broadcasting studio catering establishment cinema community centre community garden, see Part 3, Section 82 community health and resource centre convenience store court house day care diplomatic mission, see Part 3, Section 88 dwelling unit emergency service group home, see Part 5, Section 125 home-based business see Part 5, Section 127 home-based day care, see Part 5, Section 129 hotel instructional facility library medical facility municipal service centre museum nightclub office park parking garage personal service business place of assembly place of worship post office production studio recreational and athletic facility research and development centre residential care facility restaurant retail food store retail store retirement home retirement home, converted see Part 5, Section 122 rooming house rooming house, converted, see Part 5, Section 122 school service and repair shop shelter, see Part 5, Section 134

44 Page 42 small batch brewery, see Part 3, Section 89 sports arena stacked dwelling, see Part 5, Section 138 (By-law ) technology industry theatre training centre (2) At least 50% of the ground floor of any building must be occupied by one or more of the following uses subject to: (a) not applying to a building occupied by a court house, diplomatic mission, emergency service, place of worship and a school; (b) having separate and direct access to the street when located at ground level abutting a street; and (c) occupying 100% of that part of the ground floor fronting on a street, excluding lobby area, mechanical room and access to other floors, for a minimum depth of 3.0 metres, when abutting one of the following streets: (i) Rideau Street, (ii) Bank Street, (iii) Sparks Street, between Elgin Street and Bank Street, and (iv) Elgin Street, between Sparks Street and Queen Street. amusement centre artist studio bank bank machine bar cinema community centre community health and resource centre convenience store hotel instructional facility library medical facility municipal service centre museum nightclub personal service business place of assembly post office recreational and athletic facility

45 Page 43 restaurant retail food store retail store service and repair shop small batch brewery, see Part 3, Section 89 theatre Zone Provisions (3) The zone provisions are set out in Table 193 below. TABLE MD ZONE PROVISIONS I ZONING MECHANISMS II PROVISIONS (a) Minimum lot area No minimum (b) Minimum lot width No minimum (c) Minimum front yard and corner side yard No minimum (d) Minimum interior side yard No minimum (e) Minimum rear yard No minimum (f) Maximum building height (as per Schedules) (g) Maximum floor space index (h) Minimum width of landscaped area (i) Minimum width of landscaped area around a parking lot Not applicable unless otherwise shown No minimum, except that where a yard is provided and not used for required driveways, aisles, parking, loading spaces or outdoor commercial patio, the whole yard must be landscaped see Section 110 Landscaping Provisions for Parking Lots

46 Page 44 (4) In addition to the regulations that apply to a nightclub or bar, the following regulations apply to these uses located within the area shown on Schedule 7: (By-law ) (a) a nightclub or bar must not exceed a gross floor area of 500m2, and (b) a nightclub or bar with a gross floor area greater than 250m2 must be at least 100m from: (i) another nightclub or bar with a gross floor area greater than 250m2, or (ii) An I1, I2, R1, R2, R3, R4 or R5 primary zone, subzone or exception zone, and (c) a nightclub or bar may not abut another nightclub or bar along a street frontage, and (d) where adjoining nightclubs or bars are connected by internal passageways used by patrons or staff, the total gross floor area of all the connected uses must be calculated for the purposes of this subsection. (5) Outdoor storage is not permitted. (6) All parking spaces, whether principal, accessory, required or provided must be located in a parking garage. (7) For other applicable provisions, see Part 2 General Provisions, Part 3 Special Use provisions, and Part 4 Parking and Loading Provisions. (8) (a) Despite the list of permitted residential uses, where the zoning on a lot is accompanied by an H suffix, schedule or exception that restricts building height to less than 30m or to fewer than nine storeys on the entire lot, the use Apartment Dwelling, High Rise is a prohibited use on that lot. (b) Despite the list of permitted residential uses, where the zoning on a lot is accompanied by an H suffix, schedule or exception that restricts building height to less than 15m or to fewer than five storeys on the entire lot, the use Apartment Dwelling, Mid Rise is a prohibited use on that lot.(by-law ).

47 Page 45 APPENDIX 2 Variance Decision (File A-2948)