JACKSON DISTRICT AREA PLAN

July, 1990Department of Planning

and DevelopmentPlanning Division

JACKSON DISTRICT AREA PLAN - REPORT

1. INTRODUCTION

The purpose of the Jackson District Area Plan is to guide the development of the large tractof land located south of Commissioners Road, east of Highway 126, west of Jackson SideRoad and north of Bradley Avenue. The lands subject to the Area Plan are, for the mostpart, proposed for the development of a predominantly residential community commencingin late 1990 and extending over the next ten years.

The subject area represents the whole of the Jackson Planning District with the exceptionof developable lands on the north side of Commissioners Road. It is intended that the AreaPlan will be extended to include the lands north of Commissioners Road, once ongoingdiscussions and land acquisition negotiations regarding the implementation of theMeadowlilly Woods Conservation Master Plan have been completed.

The Area Plan will guide the phasing and layout of subdivision development, the applicationof zoning and site planning, and the provision of community facilities, such as school andpark sites. The broad allocation of land use within the subject area has been determinedthrough the preparation and adoption of the New Official Plan, and, subsequently, byamendment to the Existing Official Plan. The role of the Area Plan is to elaborate uponthese generalized Official Plan land-use designations and policies prior to theirimplementation by way of zoning and subdivision control.

2. CONTENT AND STATUS

The Area Plan maps display the intended phasing of development; the proposed layout ofroads, parks, school sites and open space area; and the allocation of height and densitylimits to multiple-unit residential blocks. The text contains guidelines related to matterssuch as zoning for secondary uses and the protection of archaeological resources and naturalareas.

An Area Plan or Area Study, as described in Appendix 1 of the Existing Official Plan andSection 19.2.1. of the New Official Plan, is to be adopted by resolution of Council, followingwhich it is to be applied as Council policy in the review of development applications and inthe planning of public facilities and services. While it may serve as the basis for an OfficialPlan amendment and will guide the application of zoning and subdivision approval, it doesnot have Official Plan status. Nevertheless, the preparation and review of an Area Plan isto involve participation by area residents, property owners and other interested groups andis to include a Public Meeting before the Planning Committee. Once in place, the AreaPlan may be amended by resolution of Council and any request to do so would be referredby Council to the Planning Committee for consideration.

3. REVIEW PROCESS

The Area Plan has been prepared by Planning Division staff following a lengthy process ofconsultation among the developers, Planning staff, and representatives of the School Boardsand Public Utilities Commission. The proposed Plan and background report have beendistributed to various City Departments, Provincial Ministries and local agencies involvedin the subdivision approval process for review and comment. It has also been presented tothe Administrative Planning Advisory Group and at a meeting with study area propertyowners held on May 1, 1990.

The Area Plan is generally acceptable to the Departments, agencies and property-ownerswho have responded to our liaison request. Several minor revisions to the proposed AreaPlan Guidelines have been made to accommodate the concerns expressed.

JACKSON DISTRICT

STUDY/

AREA

Amendmenf

Not to

No, 480

;OUTH

seals

MAP NO. I

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Final delineation of the wetland "Natural Area", determination of an appropriate bufferzone, and completion of stormwater management plan for the entire study area, in particularthe area draining to the wetland, continue to be issues of significant concern to the Ministryof the Environment, Ministry of Natural Resources, Upper Thames River ConservationAuthority and the McIllwraith Field Naturalists. As indicated elsewhere in this report,issues relating to the wetland can only be resolved when the ongoing monitoring programis completed and recommendations for appropriate measures to protect the wetland aremade. The Ministry of the Environment has indicated that stormwater management will berequired for the whole of the Study Area in order to minimize the impact of storm drainageon the quantity and quality of streamflow in the Dingman Creek. The intent of thestormwater management plan will be to avoid any reduction in low flow conditions in theDingman Creek so that it can continue to support existing downstream uses, and to notincrease peak flows in the Dingman Creek so that problems of downstream flooding anderosion are not exacerbated. Peak storm flows would therefore be directed to the ThamesRiver. The Ministry will require that the stormwater management plan also provide forstormwater retention for a minimum of 12 hours for up to 25 mm (1 inch) of rainfall. Thiswill allow for much of the wastes flushed from the storm sewer system to settle before thestormwater is discharged to the receiving stream.

4. AREA DESCRIPTION

The study area is approximately 263 hectares (650 acres) in size and predominantlycomposed of flat, agricultural land. There is a significant area of natural vegetation in thesouthwest quadrant which forms part of a provincially-significant wetland complex thatincludes the Pond Mills area west of Highway 126.

The subject area slopes very gently and irregularly from a height of 283 metres (930 feet)along Commissioners Road to low points of approximately 271 metres (890 feet) in thesoutheast quadrant. The area is split into two watersheds, the largest of which drains to anexisting ditch system near the southeast corner of the site and eventually to Dingman Creek.A much smaller area drains to the southwest to the wetland area and eventually to the PondMills ponds. Because of the flat terrain the boundaries of the natural drainage areas arepoorly defined. Surface drainage is limited to intermittent watercourses and a ditch systemin the southeast corner of the property.

The prospective developers, Z Group and Matthews Group, are the major landowners,having assembled 255 hectares (630 acres) or 97% of the study area. The balance of thelands consist of scattered, non-farm residential uses, a small church on the south side ofCommissioners Road, and a somewhat larger property in the extreme southwest corner ofthe area.

5. BACKGROUND

The Jackson Planning District was part of the area annexed by the City of London in 1961.Originally designated "Residential" in the 1961 Official Plan, it was redesignated "Rural"when the existing Official Plan was adopted in 1971. The "Rural" designation was re-considered in 1981 as part of the City’s review of its future land needs, and, on the basis ofthe "Land Development Strategy to 2010", the lands were changed to "Residential".Objections by Westminster Township to the redesignation delayed the approval of thisOfficial Plan amendment until 1986.

LEGEND:

DOWNTOWN AREA

NEIGHBOURHOOD SHOPPING ~..AREA

ASSOCIATED SHOPPING AREACOMMERCIAL,

~ BUSiNESS DISTRICT

ARTERIAL MIXED USE DISTRICT

RESTRICTED SERVICE COMMERCIAL

HIGHWAY SERVICE COMMERCIAL

MULTI-FAMILY~-HIGH DENSITYRESIDENTIAl".MULTI- FAMILY,RESIDENTIAL

~’-] Low DENSITY RESIDENTIAL

~ OFFICE AREA

~ OFFICE/RESIDENTIAL

¯ ~,~ OFFICE BUSINESS PARK

P~ GENERAL INDUSTRIAL

~ LIGHT INDUSTRIAL

~ REGIONAL FACILITY " ’

,~ COMMUNITY FACI L ITY

~ ,’OPEN SPACE

~ URBAN RESERVE

~IEDIUM DENSITY

CITY OF LONDONDEPARTMENT OF PLANNING AND DEVELOPMENT

NEW OFFICIAL PLANL~ND.. USE,~ MAP(EXTRACT. -- PENDING MINISTERIAL APPROVAL)

JACKSON.-. DISTRICT

MAP NO.20 200 400

SCALE: I : 20,000

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The initial draft of the New Official Plan placed a Low Density Residential designation onmost of the study lands but recognized that a mix of residential densities and commercialuses would likely be developed. At the request of the prospective developers, detailed landuse designations and collector road alignments for the subject area were considered by theSpecial Planning Projects Committee as part of the Draft Official Plan review process. Theapplicants provided various background reports and consultant studies in support of theirland use, servicing and transportation proposals. In particular, there has been and continuesto be discussions with the Ministries of the Environment and Natural Resources, and theUpper Thames River Conservation Authority, regarding the protection of the wetlandhabitat and maintenance of the quantity and quality of storm drainage to this area and tothe ponds west of Highway 126. The resulting land use designations and policies for thesubject area were approved by Council through Council’s adoption of the New Official Planon June 19, 1989.

The New Official Plan has not yet been approved by the Minister of Municipal Affairs. Arequest has been filed by the Westminister Hope Baptist Church on Commissioners Roadto have the Jackson Area designations applicable to the Commissioners Road frontagereferred to the Ontario Municipal Board. The Town of Westminister has also requested areferral of the New Official Plan with the proposed Jackson District land use designationsbeing one of their concerns.

In the Fall of 1989, an amendment to the Existing Official Plan consistent with the land usesand policies incorporated into the New Official Plan was approved by Council. Official PlanAmendment No.480 is presently before the Minister of Municipal Affairs for approval. Itis also subject to referral requests from the Town of Westminister and the WestministerHope Baptist Church.

The land use designations in the New Official Plan that are applicable to the study area areshown on Map No.2. The following special policy also applies:

3.5.5.JacksonPlanningDistrict

The Jackson Planning District located in the southeast part of the Cityof London contains a provincially significant wetland which is identifiedas Open Space on Schedule "A" - the Land Use Map, and is delineatedon Schedule "B" - the Flood Plan and Environmental Features Map.Lands adjacent to this provincially significant wetland are designatedMulti-Family, High Density Residential, Multi-Family, Medium DensityResidential, Associated Shopping Area and Community ShoppingArea. Development of these lands will not occur until theestablishment of an appropriate buffer zone around the wetlands andthe approval of a stormwater management plan for this area. Thezoning of these lands will be subject to holding provisions pending theapproval of a buffer zone and stormwater management plan for thearea.

As part of the approval process for incorporating the Jackson development scheme into theNew Official Plan, the Special Planning Projects Committee adopted the following directiveswhich are applicable to the detailed planning of the subject lands:

access to Bradley Avenue, Commissioners Road and Jackson Road is to be controlledby placing a one foot reserve along these frontages and consideration is also to be givento developing raised medians along Commissioners Road and Bradley Avenue;

the lands adjacent to the wetlands are to be placed in an urban reserve type zone witha holding provision to ensure that an appropriate buffer zone and stormwatermanagement plan is approved prior to any development proceeding;

the stormwater management plan for the southwest corner of the Jackson District willbe subject to a Class Environmental Assessment process;

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the developer’s consultants are to continue to monitor the wetlands for a minimum twoyear period and a committee consisting of representatives from the Ministries of NaturalResources and the Environment, U.T.R.C.A., P.U.C., City Planning and Developmentand Engineering Departments, the developer’s consultants and interested citizen groups,is to meet at three month intervals to review the monitoring data for the purpose ofestablishing an appropriate buffer zone and stormwater management plan for the area;

the final alignment of the roads in the southwest corner of the District shall be subjectto the determination of the buffer zone around the wetlands;

the City, in conjunction with the developers, is to undertake a review of appropriatezoning and prepare design guidelines to direct commercial development alongCommissioners Road for the purposes of maintaining a high visual quality ofdevelopment and minimizing impacts on adjacent land uses;

the Director of Planning and Development is to carry out an economic study to besubmitted to the Board of Control before development takes place in the JacksonDistrict. The study is to address:

levies for hard services and outside roadstreatment plant capacityL.T.C. transportationphases of development and method of investmentprovisions to be included in the initial agreement with the developer toprotect the City against "down zoning"expected population for the area;

a master plan for parks in the Jackson District is to be prepared prior to the first draftplan of subdivision being given final approval.

6. OBJECTIVES

The study area has been and, in some instances, continues to be subject to thoroughinvestigation with regard to land-use mix, servicing, transportation, and protection of naturalfeatures and archaeological resources. To a large extent, the general parameters for thedevelopment of the subject area have been set and the role of the Area Plan will be tofacilitate the implementation of the Official Plan and satisfy many of the terms attached tothe approval of the Jackson development scheme as discussed above. Specifically theobjectives of the Area Plan area as follows:

allocate land for the provision of park and school sites to satisfy the location, size andconfiguration requirements of the Public Utilities Commission and the Boards ofEducation;

provide direction for the phasing of development to facilitate the planning of supportservices such as parks, schools and transit;

adopt appropriate measures for the protection of identified archaeological resources andthe provincially-significant wetland area;

refine the road network as necessary to accommodate school and park sites and toachieve an efficient utilization of land;

identify guidelines to be applied to the approval of subdivision development;

recommend design guidelines to promote consistency, visual quality, functionality andappropriate buffering for commercial development along Commissioners Road andBradley Avenue;

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identify access controls to be achieved through road improvements and site developmentalong the boundary arterial roads.

7. PROPOSED AREA PLAN

The Proposed Area Plan, shown as Map No.3, conforms with the New Official Plan with twominor exceptions. One is a re-alignment of a section of one of the north-south secondarycollectors, which is necessary to accommodate the development of the high school/districtpark complex. The other is the potential church site located at the centre of thedevelopment at the intersection of the two north-south secondary collectors. The NewOfficial Plan requires that new churches sites in any of the Residential land use designationshave frontage on an arterial or primary collector street. The location shown abuts twoschool sites and is bounded on two sides by collector roads; therefore, it is unlikely to havean appreciable incremental impact on traffic flows in the area or an adverse impact onabutting uses. It is recommended that the New Official Plan be modified to reflect theminor road re-alignment and to add a special provision to permit the proposed church site.

7.1 Phasing and Development Potential

Estimates of dwelling units and population by phase of development as indicated on theproposed Area Plan, are provided in Table No.1. The Area Plan as proposed wouldaccommodate residential development having an approximate maximum potential yield of5,800 dwelling units and 12,600 population. It is unlikely, however, that these estimates willbe achieved as not all of the townhousing and apartment blocks will be developed at themaximum densities indicated. Furthermore, parcels of land within the medium and highdensity designations may be developed for non-residential, secondary uses in accordancewith the policies of the New Official Plan and the applicable guidelines in this Area Plan.

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JACKSON DISTRICT PROPOSED AREA PLAN

APARTMENTS,’

ELEMENTAR~SCHOOL,

DISTRICT;

SHOPPING

LEGEND:13RADLEY AV~"~---

S.F. RESIDENTIAL

TOWNHOUSES

.~PARTMENTS

COMMERCIAL

SCHOOLS

OPEN SPACE

PARK

APPROXIMATE LIMITS OF AREA WHERE LAND USESROAD ALIGNMENTS MAY BE REVISED ON THE BASIS N.T.S. MAP NO.3OF THE WETLAND MONITORING PROGRAM

Z

0O_0

O_

Z0

<~

I ~ ll~E itll~llt~ + it~ ll ii ii E iII ~,|i¯ , ~,.

TABLE NO. 1

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ESTIMATES OF DWELLING UNITS AND POPULATIONBY DEVELOPMENT PHASE

DWELLING I II III IV V VI TOTALTYPE

Uts. Pop’n Uts. Pop’n Uts. Pop’n Uts. Pop’n Uts. Pop’n Uts. Pop’n

Single 306 936 171 523 218 667 194 594 104 318 162 496 1,155 3,534Detached

Semi- 106 324 90 275 34 104 104 318 0 0 48 147 382 1,168Detached

Townhouse 309 816 0 0 54 143 290 766 100 264 250 660 1,003 2,649(D35)Townhouse 0 0 472 760 0 0 0 0 252 406 109 175 833 1,341Low-Rise Apt.(D75)

Apartment 0 0 1049 1689 1176 1893 0 0 0 0 209 336 2,434 3,918(D150)

~OT~L ~21 2076 178~ 3247 1482 Z~07 588 16~8 456 988 778 1814 5,807 12,610

NOTE: The estimate for single detached and semi-detached units are based on preliminary lotting provided by the developers. The estimatesfor townhouse and apartment units are based on block sizes and the density guidelines shown on the Area Plan. These figures representa maximum development potential and are unlikely to be achieved as some blocks may be developed at lower densities or for non-residential, secondary uses in accordance with the polices of the Official Plan and the guidelines set out in this Area Plan.

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Using somewhat lower aggregate densities that are more likely to be achieved on themedium and high density residential blocks, the proposed development would yield4,570 dwelling units and a population of 10,720.

The Phasing plan submitted by the developers, has been formulated so that:

the early phases of development are in close proximity to the inlet to the trunk sanitaryand storm sewer tunnel which is located in the south-east quadrant;the initial emphasis is on the provision of single and semi-detached lots;there is a minimal time lag between the start of residential development and theprovision of school and park sites;the final phase to be developed is the area in close proximity to the wetland since thefinal determination of storm drainage to the wetland and the delineation of the naturalarea and buffer zone is subject to an ongoing monitoring program;the development of commercial and higher density residential uses along CommissionersRoad will precede the development of similar uses along Bradley Avenue.

Guidelines for the Phasing of Development

i) Prior to subdivision and zoning approval for the first phase of development, anassessment of the financial impact of the proposed Jackson development on the City ofLondon will be reviewed and approved by City Council. This assessment will take intoaccount the anticipated revenues from development levies, the costs associated withmajor services and boundary road improvements and the anticipated amount andtiming of any claims by the developers against the City’s Urban Works or CapitalGrowth Reserve Funds.

ii) Individual phases of development will be reviewed and approved through the processingof applications for rezoning and plan of subdivision approval.

iii) The boundaries and order of the phases shown on Map No. 3 are regarded asapproximate and may be subject to revision to suit changing economic conditions.Individual draft plans of subdivision may include one or more of the phases shown onMap No.3; however, the final approval and registration of subdivision plans willgenerally conform to the phasing scheme.

iv) The approval of subdivision plans and zoning for the lands shown as Phases V and VIwill be contingent upon the completion of the wetland monitoring program andagreement upon:

the final delineation of the "Natural Area" boundary and buffer zone, by thedevelopers, Ministries of Natural Resources and the Environment, the UpperThames River Conservation Authority and the City;

the completion of an environmental assessment of the stormwater management planfor the Phase V and VI lands.

v) In support of applications for subdivision and zoning approval for the lands shown asPhases IV and VI, the developers will submit a noise attentiation report, prepared bya qualified consultant, which will propose measures to achieve Ministry of Environmentnoise level standards in the development of residential lands in proximity to Highway126.

vi) Prior to final approval of the initial application for draft plan of subdivision approval,the developers will submit a stormwater management plan for the study area to thesatisfaction of the Upper Thames River Conservation Authority, Ministry of theEnvironment and the City Engineering Department.

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7.2 Park and School Sites

One of the primary purposes of the Area Plan is to allocate school and park sites. Inaddition to providing a balanced distribution of schools and parks to maximize accessabilityand meet the anticipated needs of this community, the proposed Area Plan is intended to:

promote efficient open space utilization through the development of park /schoolcampuses;provide for the development of a district park which can accommodate community-scalerecreational facilities and activities at a location which is convenient for access andwhere impacts on low density residential uses can be minimized;facilitate the protection of an identified, significant archaeological resource;facilitate the buffering of the wetland area.

The park sites have been sized according to the functional requirements of the PublicUtilities Commission and on the basis that parkland dedication requirements will bedetermined according to the density-based formula of one hectare of parkland per 300dwelling units. Lands within the wetland "Natural Area" as finally delineated will bededicated as public open space but not credited as parkland.

As indicated in Table 2 and on the proposed Area Plan, provision has been made for twopublic and two separate elementary schools and one public secondary school. The sizes ofthe school sites reflect an economy of open space utilization through the development ofpark/school campuses.

The proposed Area Plan provides for the creation of two neighbourhood parks and onedistrict park. The sizes, locations and configuration of the neighbourhood park and districtpark in Phases I and II and reasonably well "fixed". Although there may be minorrefinements to these parks in the detailed subdivision plans, the size noted will be regardedas the minimum size requirement of the Public Utilities Commission. The neighbourhoodpark shown in Phase VI will likely be adjusted in size and configuration.

The park areas, as shown on the proposed Area Plan, have an approximate total area of14.7 hectares (36.3 acres) which is 5.8% of the lands owned by the major developers or 5.6%of the lands subject to the Area Plan. The total area of public lands including school sites,open space and parkland is approximately 43.7 hectares (108 acres) or 17% of the landsowned by the major developers.

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Table No. 2 lists the proposed park and school sites by location and size:

TABLE NO. 2

PARK AND SCHOOL SITES BY DEVELOPMENT PHASE

FACILITY TYPE TIMING AND SIZE (ha.(ac.))

PhaseI II III IV V VI

Schools

Public ElementarySeparate ElementaryPublic Secondary

3.25(8.04)

6.89(17.03)

2.68(6.62)2.66(6.58) 2.43(6.01)

TOTAL

Parks

NeighbourhoodDistrict

4.33(10.69)

10.14(25.07) 5.34(13.20) 2.43(6.01)

6.76(16.71)3.58(8.83)

SUB TOTAL 4.33(10.69) 6.76(16.71)

TOTAL

5.93(14.66)5.09(12.59)6.89(17.03)

17.91(44.28)

3.58(8.83) 14.67(36.23)

TOTAL 4.33(10.69) 16.90(41.78) 5.34(13.20) 6.01(14.84) 32.58(80.51)

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Guidelines For School and Park Development

i) Parkland dedication requirements will be determined according to the density basedstandard of one hectare of parkland per 300 dwelling units. The wetland delineatedas a Natural Area on Schedule B to the New Official Plan will be dedicated as publicopen space but will not be accepted for park purposes.

ii) With the exception of the neighbourhood park and separate elementary school siteproposed for Phase VI in the southwest quadrant of the District, park sites shallgenerally be as shown on the Area Plan and in Table No.2. The sizes of individual sitesmay be subject to minor change in the course of detailed subdivision planning; however,the sizes indicated in Table No.2 shall be regarded as approximate minimumrequirements.

iii) The location, configuration and size of the park and school site shown in Phase VI willbe reviewed and, if necessary, revised prior to the approval of the Phase V subdivisionplan. Revisions may be required to reflect the final delineation of the wetland "NaturalArea" and the determination of appropriate buffer zone boundaries, uses, andrestrictions. The size of the park area will also be adjusted on the basis of acalculation of the remaining parkland dedication entitlement for the overalldevelopment. The school site may also be adjusted to suit the needs of the SeparateSchool Board according to size and configuration requirements, the actual timing ofdevelopment and the results of soil tests.

iv) The public elementary school site shown in Phase II and the separate elementary schoolsite shown in Phase III may be required prior to the development of their respectivephases. Prior to the final approval of the Phase I plan of subdivision, the Boards ofEducation and the developers will agree on a process for advancing the availability ofthese school sites if deemed necessary by the Boards and the subdivision agreement forPhase I will take this agreement into account.

v) Portions of the high school/district park complex overlay a significant archaeologicalresource. Buildings and other structures requiring significant excavation will be sitedto minimize the disturbance to this resource. Appropriate measures for "capping" ofthe archaeological site prior to its development for sports fields or other recreationalfacilities and for the mitigation of any unavoidable excavation into the site will beincorporated into the subdivision agreement for the Phase II development to thesatisfaction of the Board of Education and Public Utilities Commission.

7.3 Residential Land Uses

The development concept formulated by the developers and reflected in the Official Planland-use designations is one of a low density residential community in the core of theDistrict bounded by higher intensity residential, commercial and institutional uses along thearterial road frontages to the north, east and south. Areas designated as "Low DensityResidential" in the Official Plan are shown on the Area Plan as "Single Detached and Semi-Detached Dwellings" or as school and park sites. Other secondary uses that the OfficialPlan would allow within the "Low Density Residential" designation, such as day care centres,branch libraries, or funeral homes, are considered to be more appropriately located in theMedium or High Density Residential designations.

Areas designated Multi-Family, Medium Density Residential in the Official Plan may bedeveloped for townhouses, cluster housing, low-rise apartments, rooming and boardinghouses, emergency care facilities, and small-scale nursing homes, rest homes, and homes forthe aged. They may also be developed for single and semi-detached dwellings, variouscommunity facilities, funeral homes, commercial recreation uses, and small-scale office uses,subject to certain locational criteria.

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Residential development may range up to 75 units per hectare(30 units per acre) in densityand up to four storeys in height.

To provide a greater degree of certainty with respect to the development of MediumDensity Residential areas, these lands have been differentiated on the Area Plan accordingto density limits of 35 units per hectare (14 units per acre), which is generally appropriatefor townhouse or cluster housing development in a suburban location; and 75 units perhectare (30 units per acre), which is an appropriate density for low-rise apartmentdevelopment. The guidelines applicable to the development of the D35 and D75 areas alsodeal with the types of non-residential uses that may be accommodated within these areas.In general, the D35 limit has been applied to the Medium Density Residential lands thateither abut or face areas designated for single or semi-detached housing development. TheD75 limit has been applied to areas that abut arterial roads and are separated from lowdensity areas, since the higher intensity uses at these locations will have minimal impact.

Lands designated "Medium Density Residential" and located at the centre of the District atthe intersection of the two north-south secondary collectors are proposed for low densityresidential uses with the exception of the church or townhouse block in the northwestquadrant of the intersection. The change to low density uses on the other three quadrantsof the intersection is appropriate as it reduces the interface between townhousing and singleor semi-detached housing. This change will have minimal impact on the overall mix ofhousing development within the District.

The areas designated "Multi-Family, High Density Residential" in the Official Plan are wellsituated with regard to arterial road access and proximity to planned shopping facilities. Itis therefore proposed that they be allowed to develop to a maximum density of 150 unitsper hectare (60 units per acre) which is the density limit set out in the New Official Planfor High Density Residential areas outside of Central London.

Appropriate height limitations for apartment buildings are difficult to determine given theuncertainty as to the nature of future development on nearby lands outside of the AreaPlan. Similar High Density Residential areas abutting arterial roads at other locations inthe City are subject to height limitations ranging from 30 metres to 45 metres orapproximately 10 to 15 storeys. As a general guideline it is suggested that 12 storeys is anappropriate limit for apartment development on sites that have separation from planned lowdensity residential development. Sites that face low density uses should be subject to alower height limit of six storeys so that there is some transition from high-rise to low-risedevelopment. The review of applications for zone changes to allow development of the highdensity residential blocks may provide for a refinement of these general height guidelines.

The high density residential lands along Commissioners Road are considered to beappropriate locations for various non-residential or specialized residential uses permittedby the New Official Plan including emergency care facilities, nursing homes, rest homes,homes for the aged, community facilities (as described in Section 3.6.4. of the Plan), funeralhomes, commercial recreation facilities and small-scale office development. Sites to bezoned and developed for funeral homes, commercial recreation facilities and small officedevelopment should be oriented to the Commissioners Road frontage and not directcommercial traffic to the internal secondary collector loop road.

These commercial uses should only be considered for approval where it can bedemonstrated that they are small in scale, both individually and in aggregate, and that theywill not detract from the development of this High Density Residential designation forpredominantly residential uses.

The high density residential lands at the intersection of Jackson Road and Bradley Avenueare also appropriate for specialized residential uses. They are not as well suited tosecondary commercial uses, however, given the lower anticipated traffic volumes on theabutting roads.

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The substantial tracts of land along Bradley Avenue designated "Associated Shopping AreaCommercial" and "Community Shopping Area" provide ample opportunity to accommodatesmall-scale office, commercial and funeral home development.

Guidelines for Residential Development

i) Lands shown as "Single and Semi-Detached Residential" on the Area Plan will be zonedto allow single detached and semi-detached dwellings in conjunction with the approvalof individual plans of subdivision;

ii) Lands shown as "Medium Density Residential-D35" will be zoned and developed fortownhousing or cluster housing to a maximum density of 35 units per hectare (14 unitsper acre). It is not intended that these areas will be zoned to permit specializedresidential and non-residential uses which are permitted by the Official Plan.

Lands shown as "Medium Density Residential-D75" may be zoned and developed fortownhousing or cluster housing to a maximum density of 35 units per hectare (14 unitsper acre), stacked townhousing to a maximum density of 50 units per hectare (20 unitsper acre), and apartments to a maximum density of 75 units per hectare (30 units peracre) and a maximum height of four storeys. These areas may also be zoned to permitsmall-scale nursing homes, rest homes and homes for the aged, emergency care facilitiesand community facilities as described in Section 3.6.4. of the Official Plan. It is notintended that these areas be zoned to permit any of the other secondary uses allowedby the Official Plan.

iv) Lands shown as "High Density Residential-D150" may be zoned to permit apartmentdevelopment to a maximum density of 150 units per hectare (60 units per acre). Sitesoriented to arterial roads with substantial separation from low density residential areasmay be developed to an approximate maximum height of twelve storeys. Sites that abutan internal secondary collector and lack substantial separation from low densityresidential uses may be developed to an approximate maximum height of six storeys.The height limit guidelines may be revised through the zoning amendment reviewprocess where it can be demonstrated that an increase in the height limit will notreduce the compatibility of the proposed development with adjacent uses, existing orplanned.

v) All "High Density Residential-D150" lands may be zoned to allow community facilities(as described in Section 3.6.4. of the Plan) and specialized residential uses includingemergency care facilities, nursing homes, rest homes and homes for the aged. Non-residential secondary uses permitted by the Official Plan, including small-scale officedevelopment, commercial recreation uses and funeral homes, may be allowed on specificsites that abut Commissioners Road and do not require access or egress to the internalsecondary collector loop road. Such uses will only be approved where it can bedemonstrated that they will not detract from the development of this area forpredominantly high density residential uses.

7.4 Transportation

The collector road pattern has been determined through the New Official Plan and, apartfrom the minor modification previously discussed, the Area Plan follows this pattern.Proposed local road alignments are also shown on the Area Plan for illustrative purposes;however, it is recognized that the layout of local roads may be adjusted as the result ofdetailed planning on a phase by phase basis without the necessity of a Council resolutionto revise the Area Plan.

One area where the collector road alignment may yet have to be revised is in proximity tothe wetland. Minor adjustment to the collector loop road may be necessary toaccommodate the final delineation of the wetland boundary and an appropriate buffer zone.

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The need for access control along Commissioners Road and Bradley Avenue was the subjectof considerable discussion during the Special Planning Projects Committee’s review of theJackson District development scheme. While detailed provisions for access to individualparcels of land will be developed through the site plan approval process, there has beendirection given or consensus reached on several measures of a more general nature. Thesemeasures include the construction of raised medians on Commissioners Road to restrict all-turns access to the commercial and high density residential blocks. These blocks would beaccessed by entrances located on the intersecting roads and by "rights-in/rights-out"driveways from Commissioners Road. A raised median is also proposed for BradleyAvenue, however, the lower traffic volumes anticipated along this road would allow an all-turns access to the high density residential block immediately east of Highway 126, inaddition to the three intersecting collector roads.

Pedestrian and bicycle traffic will be accommodated by the road network. The proposedlayout of local streets will minimize the need for walkways; however, individual draft plansof subdivision will be reviewed to determine where pedestrian links are necessary to improvethe accessability of neighbourhood parks and elementary schools. To facilitate bicycle travelto the major internal activity centres, i.e. the high school and district park, it isrecommended that the north/south collector road extending from Commissioners Road tothese facilities have sufficient pavement width to accommodate curbside bicycle lanes.

It is a policy of the New Official Plan that through traffic be discouraged from residentialareas. Since the alignment of the two north-south secondary collectors is somewhatconducive to through traffic, it is suggested that traffic control in the form of traffic signals,or four way stop signs, if warranted, be applied to the intersection of the two collectors atthe core of the development.

Transportation Guidelines

i)

ii)

A raised median will be constructed along Commissioners Road to restrict all.turnsaccess to the lands on the south side of Commissioners Road. Left turn movements willbe limited to the intersections of the two collector roads and to a service road, generallyaligned with Meadowlilly Road, which will be necessary to accommodate commercialdevelopment in close proximity to the Commissioners Road/Hwy.126 interchange.

A raised median will be constructed to restrict all-turns access to the lands on the northside of Bradley Avenue. Left-turn movements will be limited to the intersections of thethree collector roads and to a location which will provide access to the high densityresidential lands in the southeast corner of the Area Plan.

iii)

iv)

The need for walkways to facilitate pedestrian travel to neighbourhood parks andschools will be determined through the review of individual draft plans of subdivision.

The north/south collector road linking Commissioners Road and the secondary school-district park complex will have sufficient pavement width to accommodate curb-sidebicycle lanes.

v) No direct access to Highway 126 will be permitted. All residential buildings andstructures must have a minimum setback of 14 metres (45.9 feet) from the property lineabutting Highway 126. Site and drainage plans for lands abutting Highway 126 mustbe approved by the Ministry of Transportation or the City of London following thetransfer of the jurisdiction of the highway to the City.

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8. IMPLEMENTATION

Individual applications for zoning and draft plan of subdivision approval to implement thevarious phases of the development will be circulated to agencies, departments, and thepublic according to the City of London’s standard circulation and notification procedures.

There are a number of matters that will require a greater length of time to resolve than isproposed for the finalization of the Area Plan. Since these matters do not have implicationsfor the early phases of the Jackson development scheme it is not considered necessary todelay the Area Plan until they are settled. Accordingly, the Area Plan will be revised overthe next two years to incorporate the results of the following initiatives:

i) the ongoing wetland monitoring program and the resulting determination of appropriatewetland and buffer zone boundaries and use restrictions, and a stormwater managementplan;

ii) design guidelines for commercial development along Commissioners Road;

iii) a land use plan and development guidelines for the remainder of the Jackson PlanningDistrict north of Commissioners Road.

July 17, 1990

RP/lw

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