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HomeMy WebLinkAboutPSD-067-16Planning Services Public Meeting Report If this information is required in an alternate accessible format, please contact the Municipal Clerk at 905-623-3379 ext. 2102 Report To: Planning and Development Committee Date of Meeting: December 5, 2016 Report Number: PSD-067-16 File Number: ZBA 2016-0022 Resolution: By-law Number: Report Subject: Application by Averton Homes (Bowmanville) Limited to permit increased porch and building heights on some but not all lots in Draft Approved Plan of Subdivision 18T-95030, Mearns Avenue in Bowmanville Recommendations: 1.That Report PSD-067-16 be received; 2.That the application for an amendment to Zoning By-law 84-63, submitted by Averton Homes (Bowmanville) Limited to permit increased porch heights and building heights for some but not all dwelling units in Phases 1 and 2 of Draft Approved Plan of Subdivision 18T-95030 continue to be processed and that a subsequent report be prepared; and 3.That all interested parties listed in Report PSD-067-16 and any delegations be advised of Council's decision. Municipality of Clarington Report PSD-067-16 Page 2 Report Overview The Municipality is seeking public comments on a proposed amendment to Zoning By-law 84- 63 to permit (i) 70 dwelling units with porch heights exceeding 1 metre (ii) 12 dwelling units with building heights greater than 11 metres and (iii) one bungaloft with a building height of greater than 8.5 metres for lands within Phases 1 and 2 of Draft Approved Plan of Subdivision 18T- 95030, situated north of Concession Street East and west of Mearns Avenue in Bowmanville. 1. Application Details 1.1 Owner: Averton Homes (Bowmanville) Limited 1.2 Proposal: Amendment to the Zoning By-law i) To increase the porch height greater than 1 metres for 70 units; ii) To increase the building height of a dwelling greater than 11 metres for 12 units; and iii) To increase the height of one bungaloft greater than 8.5 metres. 1.3 Area: 9.33 hectares 1.4 Location: West side of Mearns Avenue, 600 metres north of Concession Street and south of the Canadian Pacific Railway, being Part Lot 9, Concession 2, former Town of Bowmanville (See Figure 1). 1.5 Within Built Boundary: Yes 1.6 Assessment Roll Number: 1817-020-060-10805 Municipality of Clarington Report PSD-067-16 Page 3 Figure 1: Phases 1 and 2 in Draft Approved Plan of Subdivision 18T- 95030 Municipality of Clarington Report PSD-067-16 Page 4 2. Background 2.1 In 2014, Averton acquired Draft Approved Plan of Subdivision 18T-95030. At that time, under delegated authority, the Director of Planning Services amended the draft plan to include an alternate access to Mearns Avenue, which changed some of the lots and blocks and placed the lands north of the future extension of Elephant Hill Drive in a future development block. The conditions were amended to reflect current policies and guidelines. 2.2 In 2015, Averton applied for an amendment to draft approval and rezoning to change some of the lot sizes and to rezone the lands to increase lot coverage and reduce setbacks consistent with current development standards. At that time, the applicant also submitted engineering drawings to the Engineering Services Department for review. Upon the initial review, it became apparent that the site grades would prove to be challenging. The draft plan was further amended by removing road connection between Elephant Hill Drive and Lyle Drive, which had steep road grades, in favour of a walkway. The rezoning application further requested an increase in porch height from 1 metre to 1.6 metres and an increase in building height from 10.5 metres to 11 metres lots for all in Phase 1 of the draft plan. This was due in part, to the site grades and the fact that the height of a building is measured from the lowest finished grade. 2.3 In recommendation report PSD-022-16, Staff were not supportive of a blanket rezoning to increase porch heights for all units. Porches that are setback 2.0 metres from the sidewalk that are 1.6 metres (5.3 feet) high can present an overbearing presence to passing pedestrians. Staff recommended that the applicant apply for a minor variance application for a specific lot where the zoning by-law could not be met. Staff recommended an increase in building height from 10.5 metres to 11.0 metres for all lots in Phase 1. 2.4 Since then the applicant has prepared house sitings for all the lots in Phase 1 only. The same exercise has not been prepared for Phase 2 lands as of yet. It appears that there are many more lots that will exceed porch height and building height restrictions than earlier contemplated. Due to the significant number of lots effected, it is not economically feasible for the applicant to submit a variance for each lot. Instead, applying for a re- zoning would be a feasible approach. Figure 2 identifies the lots and blocks that cannot meet the zoning by-law requirements. Municipality of Clarington Report PSD-067-16 Page 5 Figure 2: Lots and blocks requiring increase porch and building heights 2.5 The engineering review is complete and the applicant has entered into a subdivision agreement with Municipality and is working toward final registration. A Site Alteration Permit has been issued and the installation of services will commence in the spring. The applicant has advised that their marketing program was very successful and that all the lots have been sold. Municipality of Clarington Report PSD-067-16 Page 6 3. Land Characteristics and Surrounding Uses 3.1 The lands are at a higher elevation at the north-west and abutting the railway then slope downward to the south-east corner. The site has been graded. Figure 3: View to the north-west from Ireland Street 3.2 The surrounding uses are as follows: North - Canadian Pacific Railway and beyond urban residential South - Urban residential East - Urban residential West - Urban residential 4. Provincial Policy 4.1 Provincial Policy Statement The Provincial Policy Statement encourages planning authorities to create healthy livable and safe communities by accommodating an appropriate range and mix of residential, employment, recreational and open space uses to meet long term needs. Some relevant policies are: Municipality of Clarington Report PSD-067-16 Page 7 New development shall occur adjacent to built-up areas and shall have compact form, a mix of uses and densities that allow for the efficient use of land, infrastructure and public services. New housing is to be directed to locations where infrastructure and public services are or will be available. A full range and mix of housing types and densities shall be provided to meet projected requirements of current and future residents of the regional market area. Infrastructure and public services facilities shall be provided in a coordinated and efficient and cost effective manner. 4.2 Provincial Growth Plan The Provincial Growth Plan encourages municipalities to manage growth by directing population growth to settlement areas, such as the Bowmanville Urban Area. Municipalities are encouraged to create complete communities that offer a mix of land uses, employment and housing options, high quality open space, and access to stores and services. In particular: Growth is to be accommodated in transit-supportive communities to reduce dependence on the automobile through the development of mixed use, pedestrian- friendly environments. Growth shall also be directed to areas that offer municipal water and wastewater systems. Municipalities should establish an urban open space system within the built up areas. Municipalities must accommodate residential development within the built up area. 4.3 The proposed development has an array of housing types. Municipal water and sanitary sewers are available to the site. Transit routes are located on Apple Blossom Boulevard and Mearns Avenue. A neighbourhood park is located on the north side of Elephant Hill Drive in the existing neighbourhood. A public elementary school and commercial centre are located on Mearns Avenue. The development allows for the efficient use of land, infrastructure and public services. The subject applications are consistent with the Provincial Policy Statement and the Growth Plan. 5. Official Plans 5.1 Durham Regional Official Plan The Durham Region Official Plan designates the subject lands as Living Area. Lands designated as Living Area permit the development of communities with defined boundaries, incorporating the widest possible variety of housing types, sizes and tenure to provide living accommodations that address various socio-economic factors. The proposed development is permitted within the Living Area designation. Municipality of Clarington Report PSD-067-16 Page 8 5.2 Clarington Official Plan The Clarington Official Plan designates the subject lands as Urban Residential, with a Medium Density Symbol at the north east corner of Elephant Hill Drive and Mearns Avenue. The lands are within the Apple Blossom Neighbourhood, which has a population allocation of 4750 and a housing target of 1650, including 225 medium density units and 125 units for intensification. The Low Density designation allows a density of 10 to 30 units per net hectare and predominant form of housing are single and semi-detached units. The Medium Density designation allows for density of 31 to 60 units per hectare while the predominant form of housing are townhouses, quadraplexes and triplexes or low rise apartments. Elephant Hill Drive is a local road with a road width of 18 to 20 metres and designed on the basis of a grid street system which may be modified where there are physical constraints. Mearns Avenue is a Type C Arterial with a road width of 26 to 30 metres and will accommodate greater volumes of traffic. 5.3 Clarington Official Plan as amended by Amendment 107 On November 1st, 2016, Council adopted Official Plan Amendment 107 which brought the Clarington Official Plan into conformity with the Regional Official Plan and provincial policies. The subject site remains designated Urban Residential. Mearns Avenue remains a Type C Arterial Road. All applicable policies remain. 6. Zoning By-law Zoning By-law 84-63 zones the subject lands “Holding-Urban Residential Exception ((H)R2-84), “Holding-Urban Residential Exception ((H)R3-49). A Zoning By-law amendment is required to implement the proposed changes. 7. Public Notice and Submissions The Public Notice of this meeting was given by mail to landowners within 120 metres of the subject site. Public Notice signs were also installed on the property frontage along Mearns Avenue, Elephant Hill Drive and Ireland Street. In a telephone conversation, a resident on the north side of Ireland Street expressed concerns with the grades of the site. The individual stated that the grade of Lyle Drive seemed too high relative to existing homes on Ireland Street. Two other inquiries were general in nature. Municipality of Clarington Report PSD-067-16 Page 9 8. Agency Comments Region of Durham Planning and Economic Development Department was the only agency circulated, and as of the writing this report, has not provided comment. 9. Departmental Comments Engineering Services Engineering Staff has reviewed the above-noted application and have no objection in principle to this proposal. All residential lots affected by this zoning change will be subject to standard review and approval of lot grading prior to the issuance of a building permit. All house siting/grading plans submitted in support of any building permit application must meet the intent and the integrity of the Master Grading Plan. 10. Discussion 10.1 The Engineering Services Department has worked with the applicant’s engineering consultant on many aspects including reducing the adverse grade conditions. Despite this however, there are some areas on the site that make it difficult to meet the zoning by-law regulations with respect to porch and building heights for some but not all the lots. When the issue of porch height and overall building height first became apparent, staff requested the applicant explore options for reducing the number of steps to a porch by adjusting the interior entrance of the dwellings, such as by creating a sunken foyer. The applicant has advised that this was not possible. 10.2 Porch Heights The zoning by-law permits a maximum porch height of 1.0 metre above the finished grade. This limitation is to ensure there is an appropriate relationship maintained between the dwelling including the main entrance and garage (the private realm) and the municipal street including sidewalk (the public realm). Maintaining a maximum porch height of 1 metre ensures the front entrance is not only elevated and large concentration of stairs is reduced. Figure 4, shows the lots that are affected by increased porch heights in .25 metre (8 inches) increments above the permitted 1.0 metre. The majority of the dwellings are in the range between 1.0 metre and 1.25 metres. Where the porch height is greater than 1.5 metres or where porch heights vary from house to house, the visual impact is more obvious. In one instance, there are dwellings with porch heights that exceed two metres, while the adjacent dwellings on either side have porch heights of 1.0 metre and 1.25 metres on the other side. In another instance, the dwelling situated at the corner of Lyle Drive and Elephant Hill Drive has a porch height of 2.1 metres or 12 risers. Corner lots play a significant role in setting the image and character of the street. Corner lots require Municipality of Clarington Report PSD-067-16 Page 10 special attention with respect to massing, height and articulation. The design of corner lots must be designed to address two street frontages. W ith reduced setbacks and the fact there is a sidewalk on one side, the impact will be certainly overbearing to the pedestrian. One solution may be to break up the stairs by turning the steps into the driveway or dispersing the steps over a large area (i.e. within a walkway). Another solution is to design or modify the dwelling by incorporating some risers inside the dwelling (i.e. sunken foyer). Figure 4: Lots and blocks with Porch heights exceeding 1 metre Municipality of Clarington Report PSD-067-16 Page 11 10.3 Building Heights Height is measured from the lowest grade and to the mid-point of the eaves and peak of the roof. In the R2-84 zone, the minimum building height for a single storey detached dwelling, which includes a bungaloft is 8.5 metres. One bungaloft is proposed with a height of 8.72 metres. The maximum height for single detached dwelling was increased in the previous zoning by-law amendment from 10.5 metres to 11 metres. There are 12 single detached dwellings that cannot meet the maximum height of 11 metres. Figure 5 shows the number of lots with increased building heights in .25 metre (8 inches) increments. Figure 5: Lots with building heights exceeding 11 metres Municipality of Clarington Report PSD-067-16 Page 12 The arrangement of houses within a street block is a key component in providing an attractive street. The overall impression created by grouping and massing of dwellings within a block has a great visual impact. The Council approved General Architectural Control Guidelines state that compatibility height and massing between adjacent dwellings is important and extreme variations in building heights should be avoided. Where single storey or 1 ½ storey dwellings are sited amongst two storey dwellings they shall: comprise of groupings of at least two adjacent units; and employ raised front facades, steeper roof pitches and increased roof massing to provide an acceptable transition between houses. Two storey dwellings sited amongst bungalows shall comprise groupings of at least two adjacent units. The dwelling units that are effected by the heights are in the southern portion of the draft plan. There are two problematic areas: i) where the single bungaloft is located adjacent to lots that have dwelling building heights greater than 11 metres in height; and ii) the lots backing on to the existing home dwellings on Ireland Street. In this instance the proposed dwelling has a height of 11.89 metres. 10.4 Adverse grade conditions do exist in subdivisions or any other development for that matter. There are ways the builder can reduce the outward effects by situating the appropriate models together or by modify the internal design of the home. Staff are not confident that Averton has delved into these solutions. Staff will continue to work with Averton and the Municipality’s control architect to explore options to reduce the number of units with excessive porch and building heights. 11. Conclusion This report provided background information on the proposal increase in building and porch heights submitted by Averton Homes (Bowmanville) Limited for the Public Meeting under the Planning Act. Staff will continue processing the application including the preparation of a subsequent report upon resolution of the identified issues contained in this report. Municipality of Clarington Report PSD-067-16 Page 13 Submitted by: Reviewed by: David J. Crome, MCIP, RPP Curry Clifford, MPA, CMO Director of Planning Services Interim CAO Staff Contact: Cynthia Strike, Principal, Planner, 905-623-3379 ext. 2410 or cstrike@clarington.net The following is a list of the interested parties to be notified of Council’s decision: Brad and Lindsay Wright Vince Baffa Justin Malfara Anthony Biglieri Lawrence Wesson Garrett and Amber Dawn Duncan Carlene Robinson Shawn Mclean Craig Gulas M.Tomei CS/CP/tg I:\^Department\LDO NEW FILING SYSTEM\Application Files\ZBA Zoning\2016\ZBA2016-0022 300 Averton -Mearns Avenue\Staff Report\PSD-067-16.docx