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Planning Justification Report
4853 Thomas Alton Boulevard
Adi Morgan Developments Inc.
City of Burlington
Official Plan and Zoning By-law Amendment Applications
April 2016
Planning Justification Report
4853 THOMAS ALTON BOULEVARD
Official Plan and Zoning By-law Amendment Applications
City of Burlington
April 2016
Prepared for:
Adi Morgan Developments Inc.
4190 South Service Road, Suite 200
Burlington ON L7L 4X5
Prepared by:
GSP Group Inc.
162 Locke Street South, Suite 200
Hamilton ON L8P 4A9
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GSP Group Inc. | April 2016
TABLE OF CONTENTS
1.0 INTRODUCTION .......................................................................................................... 3
2.0 REVISED SUBMISSION .............................................................................................. 3
2.1 Required Development approvals ........................................................................ 7
3.0 SITE DESCRIPTION AND SURROUNDING USES ..................................................... 8
4.0 PLANNING POLICY AND REGULATORY CONTEXT................................................ 10
4.1 Provincial Policy Statement, 2014 ..................................................................... 10
4.2 Places to Grow Growth Plan for the Greater Golden Horseshoe, 2013.............. 12
4.3 Region of Halton Official Plan ............................................................................ 14
4.4 City of Burlington Official Plan ........................................................................... 16
4.5 Burlington Zoning By-law No. 2020 ................................................................... 19
5.0 PLANNING APPLICATIONS ...................................................................................... 21
5.1 Official Plan Amendment ................................................................................... 21
5.2 Zoning By-law Amendment ................................................................................ 21
6.0 PLANNING SUMMARY AND ANALYSIS ................................................................... 22
6.1 Provincial Policy Statement (2014) .................................................................... 22
6.2 Places to Grow Growth Plan for the Greater Golden Horseshoe (2006) ............ 22
6.3 Region of Halton Official Plan ............................................................................ 23
6.4 City of Burlington Official Plan ........................................................................... 23
6.5 Burlington Zoning By-law No. 464 ..................................................................... 34
7.0 RECOMMENDATIONS .............................................................................................. 37
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Figures and Tables
Figure 1 – Proposed Development (September 2015)
Figure 2 – Proposed Development (Revised April 2016)
Figure 3 - The Site
Figure 4 – Adjacent lands to the west
Figure 5 – Adjacent lands to the south
Figure 6 – Adjacent lands to the east
Figure 7 – Burlington Official Plan Designation
Table 1 – Official Plan Intensification Criteria
Table 2 – Zoning Regulation Comparison (By-law 2020)
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1.0 INTRODUCTION
This Brief has been prepared in support of a City of Burlington Official Plan Amendment
application and a Zoning By-law Amendment application Numbers OPA 505-05-15 and ZBA
520-08/15 on behalf of Adi Development Group Inc. to permit the redevelopment of lands
municipally known as 4853 Thomas Alton Boulevard, Burlington (“the Site”) for residential
purposes. Specifically an Official Plan Amendment application to permit an increase in the
maximum residential density and building height, and a Zoning By-law Amendment
application to allow for site specific zoning regulations to reflect the proposed site layout.
This Brief, Official Plan Amendment and Zoning By-law Amendment have been prepared by
GSP Group Inc. The purpose of this Brief is to describe the proposed development,
requested official plan amendment, requested zoning by-law amendment, the applicable
planning policies and regulations, and to provide justification to support the applications to
permit the proposed development. Reference is made to Ruth Victor & Associates’ Planning
Justification Report (the “Victor Report”) dated September, 2015 regarding the subject
property. GSP Group Inc. is supportive of the conclusions of the Victor Report which was
based on the development of the Site for 691 units consisting of 21 traditional townhouse
units, 12 back to back townhouse units, 160 stacked townhouse units and 498 apartment
units as illustrated in Figure 1.
2.0 REVISED SUBMISSION
Since the application and the Victor Report were submitted, a workshop was held with City
Staff and their consultant (Brook McIlroy) to discuss the concept and design. The following
modifications were made to the original concept in order to address points raised by City
Staff and Brook McIlroy and are illustrated in Figure 2:
South Tower has been shifted south into the area that was used for park space to
create additional separation from the north tower;
North Tower has been shifted east to provide additional separation from the existing
properties to the west, and to provide a visual break between the podium and tower on
the west side of this building;
Back-to-Back Towns have been eliminated from the centre of the site;
A larger central park has been added, and internal circulation has been adjusted; and
Modifications have been made to the layout of stacked townhouses along Thomas
Alton Boulevard and the units running parallel and internal to the site.
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Figure 1: 2015 Concept Site Plan (Source: Chamberlain Architect Services Limited, September
2015)
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Figure 2: 2016 Revised Concept Site Plan (Source: Chamberlain Architect Services Limited,
April 2016)
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The proposed revised development concept is comprised of a total of 685 units with the
following unit and building type breakdown:
21 traditional block townhouse units along the western boundary of the site (Blocks 1-
3);
170 stacked townhouse units along Thomas Alton Boulevard and a parallel internal
road (Blocks 4 to 12); and
494 condominium apartment units within two 19-storey towers on a 6 storey podium.
A large ±1,500m2 private amenity feature is centrally located on the site and replaces the
back to back townhouses originally proposed. This new park feature visually and physically
separates the condominium apartment building from both the proposed townhouses to the
south and west.
Parking associated with the townhouse units is provided in private garages, while visitor
parking has been combined with the 4 levels of underground parking that service the
condominium apartment units and 1 level of underground parking to serve the stacked
townhouses. In total, 832 parking spaces will be provided on the Site of which 790 spaces
will be provided in an underground parking structure. Two separate ramps provide access to
the underground parking garage areas and both are situated internal to the site with no direct
access to either Thomas Alton Boulevard or Palladium Way. The standard townhouse units
will have 42 at grade parking spaces (driveway and private garages). This equates to an
average parking ratio of 1.21 spaces per unit.
There are two access points to service the site; one from Thomas Alton Boulevard situated
between Columbus Drive and Valera Road, and the second from Palladium Way. Internal
vehicular site circulation is achieved by way of private roads.
A number of reports and studies were prepared as a part of the original submission in
support of the 2015 concept. In response to the workshop held in March 2016 and
discussions with City Staff, various reports have been updated to respond to the revised
design concept. The following is a list of the original studies as well as the updated studies
reviewed as a part of the planning justification report:
Planning Justification Report (Ruth Victor & Associates, September 2015)
Conceptual Site Plan (Chamberlain Architect Services Limited and ICON
Architects Inc., 2015 and updated April 2016);
Shadow Analysis (Chamberlain Architect Services Limited, September 2015);
Angular Plane Plans (Chamberlain Architect Services Limited, August 2015);
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Functional Servicing Report (MTE Consultants Inc., September 2015 and
updated April 2016);
Transportation Impact Study, Parking Study, & Transportation Demand
Management Options Report (Paradigm Transportation Solutions Limited,
September 2015 and updated April 2016);
Environmental Noise Assessment (Valcoustics Canada Ltd., September 2015);
Phase 1 Environmental Site Assessment (Landtek Limited, March 2015)
Wind Study; and,
Urban Design Opinion Letter (Acronym urban Design & Planning dated
September 2015).
The findings of this Planning Brief and the updated support documents demonstrate that the
revised proposed intensification development is consistent with the Provincial Policy
Statement, the Places to Grow Growth Plan for the Greater Golden Horseshoe, the Region
of Halton Official Plan and meets the intent of the City of Burlington Official Plan.
2.1 Required Development approvals
The land is designated RESIDENTIAL HIGH DENSITY in the City of Burlington Official Plan
where a maximum height of 10 storeys and a maximum density of 185 units per hectare are
permitted. With a lot area of 2.01 hectares, this density requirement would permit a
maximum of 371 units within 10 storey buildings on the site.
The applicant seeks to provide a gradation of development to better integrate the site with
existing residential development to the south and west by limiting development to 3 storeys
in these areas, and increasing the height to 19 storeys at the northeast corner of the Site. A
density of 341 units per hectare is proposed to permit a total of 685 residential units of the
Site in the form of standard and stacked townhouses, and apartments.
While the RESIDENTIAL HIGH DENSITY designation permits a range of housing types the
Site specific Zoning does not. The Site is zoned in a site specific multiple residential RAL4-
331 Zone within Burlington’s Zoning By-law No. 2020 that limits the use of the land to
apartment buildings. An amendment to the Zoning By-law is required to permit a broader
range of residential dwellings as well as site specific regulations to address the proposed
Site layout.
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3.0 SITE DESCRIPTION AND SURROUNDING USES
The Site is known municipally as 4853 Thomas Alton Boulevard, Burlington and is a through
lot located west of Appleby Line, between Palladium Way and Thomas Alton Boulevard,
south of Highway 407. This vacant Site in the northeast quadrant of the City is 2.01 hectares
(4.96 acres) in area with a frontage of ±181 metres (594 feet) along Thomas Alton Boulevard
as well as a frontage of ±97 metres (318 feet) along Palladium Way. Figure 3 illustrates the
limits of the Site, as well as its contextual relationship to surrounding land uses.
Lands to the north are vacant
and designated for future
business type uses. Adjacent
lands to the west are
comprised of existing three
storey townhouses illustrated
in Figure 4 that back onto the
Site. These units obtain
access from a private road
west of the Site that extends
from Thomas Alton Boulevard
through to Palladium Way.
Figure 4: Adjacent townhouses to the east (Source: Google Earth 2016)
Figure 3: The Site – 4853 Thomas Alton Boulevard (Source: Google Earth 2016)
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Two-storey street townhouses are
located along the south side of
Thomas Alton Boulevard as
illustrated in Figure 5.
Lands immediately to the east
include two storey business
employment uses illustrated in
Figure 6. This block has not been
fully developed to date. An
access driveway servicing this
block is located adjacent to the
easterly lot line of the Site.
Overall the Site is located within a
relatively new community with
medium density residential
development to the south and west, and business and employment uses – both existing and
proposed- to the north and east.
Figure 5: Adjacent street townhouses to the south
(Source: Google Earth 2016)
Figure 6: Business employment uses to the east (Source: Google Earth 2016)
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4.0 PLANNING POLICY AND REGULATORY CONTEXT
The following documents serve as key considerations in determining the appropriateness of
the proposed redevelopment in the context of provincial and local policies and regulatory
documents.
4.1 Provincial Policy Statement, 2014
The Provincial Policy Statement (2014) (PPS) provides policy direction on matters of
provincial interest related to land use planning and development. The PPS is issued under
the authority of Section 3(1) of the Planning Act and came into effect on April 30, 2014.
Section 3(5) of the Planning Act requires that decisions affecting planning matters be
consistent with the PPS.
The PPS supports intensification, redevelopment and the efficient use of land and existing
planning infrastructure within urban areas. The policies attempt to focus growth within
settlement areas and remove development from significant or sensitive areas which may
pose a risk to public health and safety. In addition, the PPS recognizes that wise
management of development involves directing, promoting or sustaining growth; and directs
that land use is to be carefully managed to accommodate appropriate development to meet
the full range of current and future needs, while achieving efficient land use patterns. The
PPS provides policies for building strong communities, the wise use and management of
resources and protecting public health and safety.
The PPS sets a number of policies that are to be considered in reviewing and determining
the appropriateness of the proposed redevelopment of the Site. Section 1.1.1 states that:
“Healthy, livable and safe communities are sustained by:
a) Promoting efficient development and land use patterns which sustain the financial well-
being of the Province and municipalities over the long term;
b) Accommodating an appropriate range and mix of residential (including second units,
affordable housing and housing for older persons), employment (including industrial,
and commercial), institutional (including places of worship, cemeteries and long-term
care homes), recreation, park and open space, and other uses to meet long-term
needs;
c) Avoiding development and land use patterns which may cause environmental or public
health and safety concerns;
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d) Avoiding development and land use patterns that would prevent the efficient expansion
of settlement areas in those areas which are adjacent or close to settlement areas;
e) Promoting cost-effective development standards to minimize land consumption and
servicing costs;
f) Improving accessibility for persons with disabilities and older persons by identifying,
preventing and removing land use barriers which restrict their full participation in
society; and
g) Ensuring that necessary infrastructure, electricity generation facilities and transmission
and distribution systems, and public service facilities are or will be available to meet
current and projected needs; and
h) Promoting development and land use patterns that conserve biodiversity and consider
the impacts of a changing climate.”
Settlement Areas
Policy 1.1.3 requires that growth be focused within Settlement Areas which include “lands
which have been designated in an official plan for development over the long term planning
horizon…” In conformity with this policy, the Site is located within the Urban Planning Area
Boundary which has been designated in the City of Burlington Official Plan for development.
Further, the PPS requires planning authorities to identify and promote opportunities for
intensification and redevelopment where it can be accommodated taking into account
existing building areas and the availability of suitable existing or planned infrastructure and
public service facilities. Policy 1.1.3.3 directs the City to identify appropriate locations and
promotes opportunities for intensification and redevelopment where it can be accommodated
taking into account existing building stock and the availability of suitable existing or planned
infrastructure. Policy 1.1.3.6 further directs new development to be located adjacent to
existing built areas with a compact form, mix of uses and densities that allow for the efficient
use of land, infrastructure and public service facilities.
Consistent with these policies the Site is located immediately adjacent to existing residential
development to the south and west, as well as existing employment uses to the east,
resulting in a better and more efficient use of land, existing infrastructure and public service
facilities. In addition, the Site is located on lands which have been planned and designated
for high density residential uses. The proposed form of development is compact and offers a
range of built forms which are appropriate for and compatible with surrounding development.
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Housing
Section 1.4.3 of the PPS discusses housing and states that planning authorities are to
“provide for an appropriate range and mix of housing types and densities to meet projected
requirements of current and future residents of the regional market area”. In order to be
consistent with these policies, consideration of the City’s housing supply will be required, as
well as a determination of the availability of infrastructure, public service facilities, public
transit and residential intensification standards.
Infrastructure
Section 1.6 of the PPS provides policies on the planning of sewage and water services. In
particular, Section 1.6.6.2 states that “Municipal sewage services and municipal water
services are the preferred form of servicing for settlement areas. Intensification and
redevelopment within settlement areas on existing municipal sewage services and municipal
water services should be promoted, wherever feasible.” The Site has direct access to
municipal sewage services and municipal water services which will allow it to be serviced by
existing infrastructure and support the redevelopment and intensification of the Site.
Section 1.6.7.4 further states that a land use pattern, density and mix of uses should be
promoted that minimize the length and number of vehicle trips and supports current and
future use of transit and active transportation.
Energy Conservation, Air Quality and Climate Change
Section 1.8.1 addresses energy and air quality and stipulates that land use and development
patterns shall promote compact form and a structure of nodes and corridors that promote the
use of public and alternative forms of transportation. .
4.2 Places to Grow Growth Plan for the Greater Golden Horseshoe, 2013
The Ministry of Public Infrastructure and Renewal released the Places to Grow Growth Plan
(the Growth Plan) in 2006 to manage growth in Ontario; Amendment 2 to the Growth Plan
was approved by the Lieutenant Governor in Council and took effect on June 17, 2013. The
Growth Plan provides a framework for implementing the Province’s vision for building
stronger, prosperous communities by better managing growth. Decisions on land use
matters as they relate to the Growth Plan should be directed by its Guiding Principles with an
emphasis on creating complete communities that are “well designed, offer transportation
choices, accommodate people at all stages of life and have the right mix of housing, a good
range of jobs, and easy access to stores and services to meet daily needs.” (Section 2.1)
The Growth Plan directs growth to occur in existing urban areas and promotes intensification
of the existing built-up area, with a focus on urban growth centres, intensification corridors,
major transit station areas, brownfield sites and greyfields.
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Section 2.2.2, Managing Growth, states that population and employment growth will be
accommodated by:
a) Directing a significant portion of new growth to the built-up areas of the community
through intensification;
b) Focusing intensification in intensification areas;
c) Building compact, transit-supportive communities in designated Greenfield areas;
d) Reducing dependence on the automobile through the development of mixed-use,
transit-supportive, pedestrian-friendly urban environments;
e) Providing convenient access to intra- and inter-city transit;
f) Ensuring the availability of sufficient land for employment to accommodate forecasted
growth to support the GGH’s economic competitiveness;
g) Planning and investing for a balance of jobs and housing in communities across the
GGH to reduce the need for long distance commuting and to increase the modal share
for transit, walking and cycling; and
h) Encouraging cities and towns to develop as complete communities with a diverse mix
of land uses, a range and mix of employment and housing types, high quality public
open space and easy access to local stores and services.
Section 2.2.3.1, General Intensification, states that “by the year 2015 and for each year
thereafter, a minimum of 40 per cent of all residential development occurring annually within
each upper- and single-tier municipality will be within the built-up area”. All intensification
areas will be planned and designed to provide a diverse and compatible mix of land uses to
support vibrant communities and require all municipalities to develop and implement through
their official plans, a strategy and policies to phase in and achieve intensification.
The policies provided within the Growth Plan represent the minimum standards to be
enforced within each municipality that is subject to the Growth Plan.1 Planning authorities
and decision makers are encouraged to go beyond these minimum standards provided there
is no conflict with other policies in the Growth Plan, the PPS or any other provincial plan.
The Site is located within the Urban Boundary of the City of Burlington which is consistent
with provincial policy. The Site is located within the built up area providing a redevelopment
opportunity where sufficient infrastructure exists. Therefore, the redevelopment of the site
for urban development purposes is consistent with the Places to Grow Growth Plan.
1 Places to Grow Growth Plan – Section 5 Implementation and Interpretation, Subsection 5.4.1.5.
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4.3 Region of Halton Official Plan
The Halton Regional Official Plan (ROP) outlines Halton Region’s long term vision and
planning goals to ensure a sustainable, vibrant community and outlines specific strategies
and policies to help achieve that vision. Regional Official Plan Amendment No. 38
(ROPA38) was undertaken in 2006 to update the Official Plan and was approved in 2009 by
Regional Council. The Ontario Ministry of Municipal Affairs and Hosing approved ROPA 38
in 2011 which was subsequently appealed to the Ontario Municipal Board (OMB). The OMB
hearing to address the appeals has been ongoing since 2012. Certain policies in the
Regional Official Plan (2009) are now approved and in force and effect; however, some site
specific maters remain under appeal. On March 17, 2015 an office consolidation was issued
to include all policies, whether they are approved or remain under appeal. The policies of
the 2006 ROP remain in effect where the policies are still under appeal. The policies
discussed below are in force and effect.
The Site is identified within the URBAN AREA on Map 1: Regional Structure. Generally, the
objectives of the URBAN AREA are to accommodate growth through efficient land use and
street network patterns that support public and active transit usage. The objectives of the
Urban Area applicable to the future development of the site are:
72(1) To accommodate growth in accordance with the Region's desire to improve and
maintain regional unity, retain local community identity, create healthy
communities, promote economic prosperity, maintain a high quality, sustainable
natural environment, and preserve certain landscapes permanently.
72(2) To support a form of growth that is compact and supportive of transit usage and
non-motorized modes of travel, reduces the dependence on the automobile,
makes efficient use of space and services, promotes live-work relationships and
fosters a strong and competitive economy.
72(3) To provide a range of identifiable, inter-connected and complete communities of
various sizes, types and characters, which afford maximum choices for residence,
work and leisure.
72(5) To establish a rate and phasing of growth that ensures the logical and orderly
progression of development, supports sustainable and cost effective growth,
encourages complete communities, and is consistent with the policies of this Plan.
72(6) To identify an urban structure that supports the development of Intensification
Areas.
72(7) To plan and invest for a balance of jobs and housing in communities across the
Region to reduce the need for long distance commuting and to increase the modal
share for transit and active transportation.
72(9) To facilitate and promote intensification and increased densities.
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These policies emphasize the importance of intensification and the accommodation of
development at transit supportive densities. The proposed development has been designed
at a transit supportive density within walking distance of Appleby Line which is designated as
a Higher Order Transit Corridor on Map 3: Functional Plan of Major Transportation Facilities
intended to serve inter-municipal and inter-regional travel demands by public transit, serve
as intensification corridors, accommodate higher order transit services and connect urban
growth centres and mixed use nodes.
Policy 76 requires that the range of permitted uses in the Urban Area is to be determined
through Local Official Plans and Zoning By-laws.
The ROP identified intensification areas within the urban area and directs municipalities to
promote higher density and mixed uses within these intensification areas.
Policy 77(2.4) requires development occurring in Designated Greenfield areas to:
a) contribute towards achieving the development density target of Table 2 and the
Regional phasing of Table 2a; Approved 2013-10-21
b) contribute to creating healthy communities;
c) create street configurations, densities, and an urban form that support walking, cycling
and the early integration and sustained viability of transit services;
d) provide a diverse mix of land uses, including residential and employment uses to
support vibrant neighbourhoods; and
e) create high quality parks and open spaces with site design standards and urban design
guidelines that support opportunities for transit and active transportation.
In conformity with these policies, the proposed high density residential development will
contribute towards achieving the development density target of the Region. The proposed
urban form including stacked townhouse units and high density apartments provides a form
that is new to the area that will contribute to the viability and sustainability of existing and
proposed transit facilities along Thomas Alton Boulevard and Appleby Line. The addition of
stacked townhouses and apartment units will serve to diversify the residential unit type mix
to support the vibrancy of the neighbourhood. Finally, the introduction of a sizable private
park/open space internal to the site will enhance the livability of the site.
Therefore, the proposed development is considered to conform to the policies of the Region of Halton Official Plan. Schedule B
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4.4 City of Burlington Official Plan
The current City of Burlington Official Plan was approved in January 2008 by Halton Region,
subsequently appealed to the Ontario Municipal Board and ultimately approved by the OMB
in October 2008. The Official Plan is currently under review.
The Site is designated RESIDENTIAL – HIGH DENSITY as illustrated in Figure 7. Part III,
Section 2.2.2 d) and e) of the Official Plan identifies a range of permitted residential dwelling
types permitted within the HIGH DENSITY RESIDENTIAL designation including street and
stacked townhouse units, as well as apartment units, with a density ranging between 51 and
185 units per net hectare.
The Site is more specifically identified in the Official Plan as being part of the Alton
Community and subject to Part III, Site Specific Section 2.2.3 f) which permits apartments to
be constructed to a maximum height of 10 storeys.
On the basis of these policies, amendments to the Site Specific policies of the Official Plan
are required to permit an increase in density on the site from 185 units per hectare to 341
units per hectare, as well as in increase in the maximum permitted height from 10 storeys to
19 storeys.
Figure 7: Official Plan Designation (Source: Excerpt from Schedule B – Comprehensive
Land Use Plan, Burlington Official Plan 2009)
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Housing Intensification
The Official Plan contains criteria for the evaluation of Housing Intensification within the City.
Part III, Section 2.5 encourages residential intensification as a means of increasing the
amount of available housing stock provided the additional housing is compatible with the
scale, urban design and community features of the neighbourhood. The Official Plan defines
intensification as: “Development or re-development of a property or site within an existing
developed area which is proposed to be undertaken at a higher density or intensity than
permitted under the existing zoning, and which may include … development on vacant
and/or underutilized lands...”. On the basis of this definition, the Site and proposed height
and density development represent residential intensification.
The policy objectives of Part III, Section 2.5.1 b) encourage the redevelopment of under-
utilized residential lands where appropriate at the periphery of existing residential
neighbourhood for non-ground-oriented housing purposes. In this regard, the Site is
currently vacant and located at the periphery of an existing residential neighbourhood,
representing an opportunity to increase the housing stock through appropriate and
compatible intensification.
Part III, Section 2.5.2 a) provides specific evaluation criteria to be considered when
evaluating proposals for housing intensification within the City including the following:
(i) Adequate municipal services to accommodate the increased demands are provided,
including such services as water, wastewater and storm sewers, school
accommodation and parkland;
(ii) Off-street parking is adequate;
(iii) The capacity of the municipal transportation system can accommodate any increased
traffic flows, and the orientation of ingress and egress and potential increased traffic
volumes to multi-purpose, minor and major arterial roads and collector streets rather
than local residential streets;
(iv) The proposal is in proximity to existing or future transit facilities
(v) Compatibility is achieved with the existing neighbourhood character in terms of scale,
massing, height, siting, setbacks, coverage, parking and amenity areas so that a
transition between existing and proposed buildings is provided;
(vi) Effects on existing vegetation are minimized, and appropriate compensation is
provided for significant loss of vegetation, if necessary to assist in maintaining
neighbourhood character;
(vii) Significant sun-shadowing for extended periods on adjacent properties, particularly
outdoor amenity areas, is at an acceptable level;
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(viii) Accessibility exists to community services and other neighbourhood conveniences
such as community centres, neighbourhood shopping centres and health care;’
(ix) Capability exists to provide adequate buffering and other measures to minimize any
identified impacts
(x) Where intensification potential exists on more than one adjacent property, any re-
development proposal on an individual property shall demonstrate that future re-
development on adjacent properties’ will not be compromised and this may require
the submission of a tertiary plan, where appropriate;
(xi) Natural and cultural heritage features and areas of natural hazard are protected;
(xii) Where applicable, there is consideration of the policies of Part II, Subsection 2.11.3,
g) and m); and
(xiii) Proposal for non-ground oriented housing intensification shall be permitted only at
the periphery of existing residential neighbourhood on properties abutting, and having
direct vehicular access to major arterial, minor arterial or multi-purpose arterial road
and only provide that the built form, scale and profile of development is well
integrated with the existing neighbourhood so that a transition between existing and
proposed residential buildings is provided.
The proposed design will be need to be evaluated against these criteria.
Transportation
Both Palladium Way and Thomas Alton Boulevard are designated as Collector Road on
Schedule J – Classification of Transportation Facilities South of No. 1 Side Road in the
Official Plan with a designated right of way width of 26 metres. These collector roads are to
function as connectors to other neighbourhoods, distribute traffic to and from arterial roads,
provide convenient local transit routes, and provide access to adjacent lands uses. Access
to and from the proposed residential uses will appropriately be provided by way of these two
collector roads which have been designed to accommodate the type of traffic the proposed
development will generate. Both Thomas Alton Boulevard and Palladium Way provide direct
access to signalized intersections at Appleby Line.
Appleby Line to the east is designated as a Major Arterial Road in the Official Plan. Major
Arterial Roads are to service interregional and regional travel demands and accommodate
truck traffic and rapid transit service. In addition, Major Arterials are to connect urban areas
or nodes in neighbouring municipalities and are designed to carry high volumes of traffic.
Proximity to this Major Arterial Road provides safe and efficient access to Highway 407 to
the north at the Appleby Line interchange as well as existing and proposed transit services
with connections to other neighbourhood within Burlington.
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GSP Group Inc. concurs with the conclusions of the Victor Report which state that the
proposed development meets the goals and objectives of the Official Plan to increase the
range of housing options and promote liveable neighbourhood where residents are located in
close proximity to neighbourhood community services and amenities. The proposed Site
design and layout satisfies the criteria for housing intensification as set out in the City of
Burlington Official Plan. The proposed development is appropriate in the context of the Site
and will provide an appropriate transition from the proposed high density form at the
northeast corner, to the existing multiple attached and single detached development to the
south and west.
4.5 Burlington Zoning By-law No. 2020
The Site is zoned in the RAL4-331 Zone in the City of Burlington Zoning By-law No. 2020.
This site specific Residential Zone restricts the use of the land to apartment buildings to a
maximum height of 10 storeys. The application requests an amendment to the Site Specific
Zone to permit standard and stacked townhouses as well as two 19 storey apartment towers
on a 6 storey podium. Table 1 illustrates the requested modification to the regulations of the
RAL4 Zone to accommodate the proposed form of development and the design layout.
Table 1: Requested Zoning Modifications
Regulation RAL4-331 Required Proposed Compliance
Permitted uses Apartment building Apartment building, standard and stacked townhouses
Front Yard (min.) 7.5 m min. at grade 12 m max. at grade For each storey above 6 storeys, an additional 3m from the minimum setback
6.0 m min to Thomas Alton Boulevard
Side Yard (min.) NA 6.0 m
Rear Yard (min.) NA 4.5m min. to Palladium Way
Landscaped Area (min.)
Abutting Palladium Way 6m 4.5m
Abutting Thomas Alton Blvd.
6m 6.0m
Abutting a residential Zone 3m 6m
Abutting an MXE Zone 3m 6m
Lot Width (min.) Palladium Way: 95m Thomas Alton: 175m
95m 175m
Lot Area (min.) 2.0 ha 2.0 ha
Building Height 3 storey (min.) 3 storey (min.)
10 storey (max) 19 storey (max.)
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Regulation RAL4-331 Required Proposed Compliance
Density 100 units per ha (min.) 100 units per ha (min.)
185 units per ha (max.) 335 units per ha (max.)
Floor Area Ratio 1.0:1 2.54:1
Amenity Area (min.)
25m2 per bedroom 15m2 per efficiency
4.8m Townhouse unit 36m2(1)
5.5m Townhouse unit 42m2(1)
5.5m Townhouse end unit 55m2(1)
6.1m Townhouse end unit 62m2(1)
Unit 1 Stacked townhouse 3.0m2 (Patio)
Unit 2 Stacked townhouse 6.8m2 (Patio)
Unit 3 Stacked townhouse 3.4m2 (Terrace)
Unit 4 Stacked townhouse 38m2 (2)
Unit 5 Stacked townhouse 24m2 (2)
Community Amenity Area / Open Space
NA 1,700m2
Built Form
Balconies facing Palladium Way
Not permitted Permitted
Balconies facing Thomas Alton Boulevard
Not permitted Permitted
Vehicular Access to Palladium Way
Not permitted Permitted
Parking Spaces
Apartment Building 1.25 + 0.35 visitor / 1 bedroom unit 1.5 + 0.35 visitor / 2-bedroom unit 1.75 + 0.35 visitor / 3+ bedroom unit
1 + 0.18 visitor/unit = 494 + 89 = 583 spaces
Townhouses Unit 2 + 0.50 visitor/unit 2 unit = 42 spaces
Stacked Townhouse unit 2 + 0.35 visitor/unit 1 + 0.18 visitor/unit = 170 + 31 = 201 spaces
Parking Stall Size Width: 2.75m Area: 16.5m2
Width: 2.6 Area: 15.6m2
% of Below grade enclosed occupant parking
75% 91%
Temporary Sales Trailer Max. duration 6 months 2 years
Future Lot Division Notwithstanding Future Lot Division, the Site shall be considered one lot for the purposes of determine zoning compliance.
(1) Including backyard, deck and balcony
(2) Including terrace and roof terrace
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5.0 PLANNING APPLICATIONS
5.1 Official Plan Amendment
An Official Plan amendment is required to permit the redevelopment of the Site to allow for
an increased height to 10 storeys.
5.2 Zoning By-law Amendment
In order to permit the redevelopment of the Site as proposed, a Zoning By-law Amendment
is required to modify the regulators of the RAL4-133 Zone. The Site specific modifications
address the non-compliance regulations noted in Table 1 in the previous section including
the following:
Addition of standard and stacked townhouses as permitted uses;
Decrease in the minimum front yard setback from Thomas Alton boulevard from 7.5
metres to 6.0 metres;
Decrease in the minimum landscaped area along Palladium Way from 6 metres to 4.5
metres;
Increase in the maximum building height from 10 storeys to 19 storeys;
Increase in the floor area ratio from 1:1 to 2.54:1;
Decrease in the minimum amenity area per unit while providing a large site specific
amenity space central to the site
Permit balconies to face palladium way and Thomas Alton boulevard;
Permit a reduction in the parking and visitor parking regulations to permit the following:
Apartments 1 + 0.18 visitor parking spaces per unit;
Townhouses 2 parking spaces per unit; and
Stacked townhouse: 1 + 0.18 visitor parking spaces per unit
Permit an increase in the % of below grade enclosed occupant parking from 75% to
91%;
To permit the overall Site to be considered one lot for the purposes of determine
zoning compliance;
To permit a reduction in the width and area of required parking stall from 2.75 metres
and 16.5m2 to 2.6 metres and 15.6m2 respectively; and
To permit a temporary building or trailer for conducting sales of new dwelling units for a
period of 2 years.
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6.0 PLANNING SUMMARY AND ANALYSIS
The site is currently comprised of a vacant parcel of land with frontage on Thomas Alton
Boulevard and Palladium Way, east of Appleby Line in north Burlington. The applicant
proposes to the development is 2.01 hectare Site for a total of 685 residential units within 2
condominium apartment towers (494 units), standard townhouses (21 units) and stacked
townhouse (170 units)development proposal. The two apartment towers are 19 storeys,
while the standard and stacked townhouse are 3 storeys in height. A density of 341 units
per hectare is proposed.
6.1 Provincial Policy Statement (2014)
In conformity with the PPS, the Site is designated for high density urban development
purposes, and is located within the Urban Planning Area Boundary of the City which has
been designated in the Official Plan for development and growth. The Site represents an
excellent opportunity for intensification within an existing neighbourhood with a range of land
uses that is consistent with the PPS. The development is proposed at a density that is
transit supportive and located within an area already serviced with local public transit routes
with convenient pedestrian connections to transit stops located along Thomas Alton
Boulevard and Appleby Line. The Site is also located within an area where alternative
transportation modes, including commuter rail and bus are proposed; specifically, a future
transit corridor planned to the north adjacent to Highway 407.
Therefore, the proposal is consistent with the Provincial Policy Statement.
6.2 Places to Grow Growth Plan for the Greater Golden Horseshoe (2006)
The Growth Plan “envisages increasing intensification of the existing built-up area, with a
focus on urban growth centres, intensification corridors, major transit station areas,
brownfield sites and greyfields.” Furthermore, the Plan is about building complete
communities that are “well designed…accommodate people of all stages of life and have the
right mix of housing, a good range of jobs, and easy access to stores and services to meet
daily needs.” (Policy 2.1) Consistent with the Growth Plan, the site is within the Urban
Boundary Area of the City of Burlington. The proposed development provides for new
growth within the built-up area of the community through intensification (Policy 2.2.2.1 a)
where sufficient infrastructure exits; reduces the dependence on the automobile by being in
a pedestrian-friendly urban environment (Policy 2.2.2.1 d)); and encourages the City to
develop as a complete community, provide a range and mix of housing types, and easy
access to local stores and services (Policy 2.2.2.1 h)).
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Therefore, the redevelopment of the site for urban development purposes is consistent with
the Places to Grow Growth Plan.
6.3 Region of Halton Official Plan
In conformity with the Regional Official Plan policies, the proposed high density residential
development will contribute towards achieving the development density target of the Region.
The proposed urban form including stacked townhouse units and high density apartments
provides a form that is new to the area that will contribute to the viability and sustainability of
existing and proposed transit facilities along Thomas Alton Boulevard and Appleby Line.
The addition of stacked townhouses and apartment units will serve to diversify the residential
unit type mix to support the vibrancy of the neighbourhood. Finally, the introduction of a
sizable private park/open space internal to the site will enhance the livability of the site.
Therefore, the proposed development is in conformity with the Region of Halton Official Plan.
6.4 City of Burlington Official Plan
The Site is designated RESIDENTIAL – HIGH DENSITY in the City of Burlington Official
Plan. The intent of this designation is to permit a variety of housing types including
townhouses, stacked townhouses, back to back townhouses and apartment buildings at a
density of up to 185 units per hectare. However, the more detailed Alton Community policies
restrict the height of development to 10 storeys.
With particular regard to the housing intensification policies of the Official Plan, criteria in
which to evaluate proposals for intensification are contained within Part III, Section 2.5 of the
Official Plan. The Table 2 demonstrates how the proposal is in conformity with these
intensification criteria.
Table 2: Official Plan Housing Intensification Criteria
Housing Intensification
Criteria
Conformity of Proposed Design
(i) Adequate municipal services to accommodate the increased demands are provided, including such services as water, wastewater and storm sewers, school accommodation and parkland;
Adequate Municipal Services MTE Consultants prepared a Functional Servicing Report dated September 22, 2015 and revised April 2016 in support of the revised development proposal. Both of these reports concluded that the development can be constructed and serviced with two separate service connections for storm, sanitary and water. Adequate School Accommodation The Site will be serviced by both the Halton District School Board and Halton Catholic District School Board, each providing 2 elementary schools and 1 secondary school each within 3 kilometres of the Site. The subject application will be circulated to each of the school boards
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for comment regarding the capacity of the servicing schools to accommodate the projected number of students from the proposed development. Parkland Parkland requirement for the Alton Community were determined through the secondary planning process and have already been constructed largely adjacent to school sites and/or open space networks including Shore Acres Creek. Public parks and trails have already been constructed in proximity to the Site including Norton Park, Norton Skate Park and Palladium Community Park. Palladium Community Park includes a soccer pitch, playground, basketball court and modular skateboarding ramps and rails and functional public art benches. Therefore, the proposed development satisfies Criteria (i).
(ii) Off-street parking is adequate;
(iii) The capacity of the
municipal transportation system can accommodate any increased traffic flows, and the orientation of ingress and egress and potential increased traffic volumes to multi-purpose, minor and major arterial roads and collector streets rather than local residential streets;
Paradigm Transportation Solutions Limited prepared a TIS, Parking and TDM Options Study in response to the proposed development proposal date September 2015 and revised April 2016. The Report concludes that: Parking Demand: the proposed parking supply of 1.21 spaces per unit can be supported with an effective Transportation Demand Management program that is incorporated into the Site’s design and future operation. Relying on parking demand data collected in the City of Burlington and the Town of Oakville, the site’s estimated parking demand is approximately 806; whereas 832 spaces will be provided. Existing Traffic Conditions: The Appleby Line intersections with Palladium Way and Thomas Alton Boulevard along with the Thomas Alton Boulevard intersections with Valera Road and Columbus Drivee generally define the study area. From a capacity perspective, these intersections are currently operating with satisfactory levels of service during the AM and PM peak hours. Forecast Background Traffic: The build out of the surrounding lands is forecast to increase the peak hour traffic volumes along the adjacent road network by approximately 1,487 new vehicle trips during the AM peak hour and approximately 2,153 new vehicle trips during the PM peak hour. Background traffic Conditions: The study area intersections are anticipated to continue to operate with generally satisfactory levels of service during the AM and PM peak hours. Localized queuing issues
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and high levels of side street delays to Appleby Line are anticipated to occur. Total Traffic Conditions: The study area intersections are anticipated to continue to operate with generally satisfactory levels of service during the AM and PM peak hours. Localized queuing issues and high levels of side street delay to Appleby Line are anticipated to occur. No capacity issues are estimated to occur at the proposed driveway connections to the external road network. Road Improvements: To assist in accommodating the forecast traffic volumes, the Halton Region should monitor the future operation of the Appleby Line corridor to ensure appropriate storage lane lengths are available and that signal timings are adjusted to reflect the changing travel patterns. The Report recommends the following:
The proposed driveway connection to Thomas Alton Boulevard and Palladium Way operate under two-way stop control. A stop sign should be installed on the side street approaches.
The City of Burlington and Halton Region monitor the operation of the Appleby Line intersection with Palladium Way and Thomas Alton Boulevard to ensure appropriate signal timings are in place and that queuing conditions do not deteriorate to a point where the operation of the signalized intersections are reduced. Should queuing conditions deteriorate, consideration for additional storage lane lengths be considered, where feasible.
Burlington Transit continue to monitor ridership levels on Route 15 to ensure appropriate amenities are in place at local transit stope.
To support a parking supply that is capable of accommodating the estimated future demand, the following TDM measures that are already included in the site plan and those that should be considered during the site plan approval stage, be integrated into the final site plan design where possible:
Transit Infrastructure:
o Burlington Transit should continue to monitor ridership levels on Route 15 to ensure appropriate amenities are in place at local transit stops including weather-protected waiting areas where ridership levels warrant the need for improved amenities; and
o Provision of transit information on-site and adjacent to stops/stations.
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Cycling Infrastructure
o Short-term bicycle parking will be provided adjacent to the main entrance to the condominium buildings;
o The Site provides for 380 bicycle parking spaces within the underground parking structure. This number is fairly flexible and can increase or decrease depending upon the storage method used; and
o Site driveway connections provide cycle friendly connections to the existing bicycle network on Palladium Way and Thomas Alton Boulevard.
Walking Infrastructure
o The internal roadways are designed with sidewalk facilities along at least one side of all roadways. The sidewalks will link building entrances with public sidewalks and the existing transit stop.
o Enhanced on-site and peripheral pedestrian amenities (benches, landscaping, and lighting).
Parking Infrastructure
o Provision of no more than the minimum number of required spaces for residents and visitors;
o Reduced minimum parking requirements based on proximity to transit and the provision of dedicated car share vehicle parking spaces;
o Provision of unbundled parking by selling parking spaces separate from unit costs; therefore no free parking is provided to the residents;
o Provision of on-site car share vehicle(s); and
o Shared parking with nearby developments or on-street spaces.
Car share
o Provision of on-site car share vehicle(s). A study completed by the City of Toronto on the impacts of car share programs in relation to their parking standards was completed suggest that the minimum parking required could be reduce by up to four parking spaces for each dedicated car share space.
Car share/Bike share
o Consider enrolling or assist in developing a bike share program for the City of Burlington.
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Wayfinding/Travel Planning
o Travel planning resources for residents (individualized marketing, active transportation maps, community resources); and
o Wayfinding signage.
Education/Promotion Incentives
o Contribute to building a strong TDM brand; and
o Include transit and active transportation maps and subsidized transit passes, car share memberships, and/or bike share memberships with new home/condo purchases.
Integrating the above noted TDM measures into the site plan can assist in mitigating the site’s impact on the adjacent road network, promote a strong and vibrant economy, and create a livable community that has a balanced transportation network that accommodates all modes of transportation. Paradigm recommends no other roadway or traffic control improvement to accommodate the future traffic within the study area. Therefore, in conformity with criteria (iii) and (iv), adequate off street parking is provided and the existing and future municipal transportation system can accommodate increased traffic flows along Palladium Way and Thomas Alton, subject to the implementation of identified TDM measures and Region and City’s monitoring of .the operation of the noted intersections.
(iv) The proposal is in proximity to existing or future transit facilities
As noted in Paradigm Transportation Solutions Limited Study dated September 2015 and April 2016 respectively, the Site is serviced by 3 Burlington Transit bus routes (Routes 11, 15A/B and 51). These routes provide opportunities for users to transfer to/from inter-regional GO Transit service and other inter-city routes at various locations. Two Transit stops are located along Thomas Alton Boulevard between Valera Road and Appleby Line. Burlington Transit Route 11 provides connectivity between the Appleby GO Station on Fairview Street and the Burlington Carpool Lot located west of Walkers Line near the Highway 407 interchange. The Appleby GO Station provides connectively to multiple Burlington Transit and GO Transit routes. GO Transit is currently improving the Appleby GO Station.
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The Burlington Carpool Lot bus stop at Dundas Street and Highway 407 offers parking for approximately 105 vehicles and connectively to multiple Burlington Transit and GO Transit routes. The Metrolinx Regional Transportation Plan identifies Dundas Street as a key higher order transit corridor and a major east-west corridor in the GTHA linking Toronto, Mississauga and Halton Region. While still in the planning stages, the Dundas BRT project will look at a number of improvement in the area between Brant Street and Trafalgar Road including widening the road, improving intersections and implementing BRT service in mixed traffic. With the completion of the Dundas Street BRT corridor, higher order transit stops will be development at the Dundas Street intersection with Appleby Line. The BRT stops will be approximately 750 metres (or a 9 minute walk) south of the Site which will allow for easy and convenient access to rapid transit. Therefore, in conformity with criterion (iv), the proposed development is in proximity to existing and future transit facilities along Thomas Alton Boulevard, Palladium Way, Dundas Street, and Appleby Line.
(v) Compatibility is achieved with the existing neighbourhood character in terms of scale, massing, height, siting, setbacks, coverage, parking and amenity areas so that a transition between existing and proposed buildings is provided;
Acronym Urban Design & Planning prepared an Urban Design Opinion letter dated September 15, 2015 indicating that the proposed development achieves appropriate built form that is appropriately integrated within the existing built context. This opinion letter addresses criterion (v) as follows: The building elements, including townhouses, stacked townhouses and apartments, have been organized on the site to both frame the adjacent pubic streets at an appropriate scale and to address the adjacent existing residential development to the west with a matching built form in terms of type, scale and rear yard setbacks. The Site layout has been designed to respond to the various land use and building form conditions that surround the Site. Adjacent to the existing townhouses to the west, the proposed development locates a series of 3 storey standard townhouse that face onto an internal private street and have 6.0 metre rear yards. The proposed built form and rear yard depth mirror the adjacent townhouse to the west and will result in a facing condition that is exactly the same as what currently exist. The row of townhouses presents a blanking condition to both Thomas Alton boulevard and Palladium Way similar to the existing townhouse block to the west. A line of 3-storey stacked townhouses is proposed facing Thomas Alton Boulevard opposite existing street townhouse on the south side of the street. Although the building type is different, the stacked
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townhouses offer an alternative, improved streetscape with multiple residential front doors but without the presence of individual driveways as a result of the proposed underground parking that will serve those units. The proposed L-shaped apartment building including two 19-storey towers on a 6 storey connecting podium, frame the majority of the Palladium Way frontage with a continuous street wall before wrapping around the northeast corner of the Site where the second of the two towers is located. The primary open space is located in the middle of the site and provides a buffer between the apartment building and the existing and proposed 3 storey townhouses to the south and west. The proposed development will be compatible with its neighbourhood context. The varied building types that have been proposed allow the proposed development to respond to each of the quite different adjacent or nearby built form conditions. Where appropriate, the proposed development mirrors the configuration that is found adjacent to it. Where a residential building type that is different from the nearby conditions, such as along the Thomas Alton Boulevard frontage, the scale of the proposed building is appropriate to the scale of the street. Acronym further states that the resulting streetscape will be an improvement over the multiple driveways and limited street tree planting area that would result from a replication of the street townhouses typology that exists on the south side of the street. With respect to the apartment buildings, Acronym purports that by locating the 19 storeys buildings at the northeast corner of the Site – and the very northeast corner of the residential neighbourhood and including lower scale buildings for the portions of the Site that are closer the existing residential buildings, that an appropriate transition in scale is achieved. This approach also results in the taller buildings and the associated podium acting as a buffer between the existing residential neighbourhood and the employment and commercial lands to the north and northeast. In conformity with criterion (v), Acronym concludes that the proposed development will be well integrated with the existing neighbourhood and that an appropriate transition between existing and proposed residential buildings will be provided in both form and character, and in terms of scale, massing, height, siting, setbacks, coverage, and the proposed approach to parking.
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(vi) Effects on existing vegetation are minimized, and appropriate compensation is provided for significant loss of vegetation, if necessary to assist in maintaining neighbourhood character;
Effects on existing vegetation are minimal as the site contains limited vegetation. The existing street trees within the municipal right of way will require protection at the time of construction. Accordingly, the proposal is in conformity with criterion (vi).
(vii) Significant sun-shadowing for extended periods on adjacent properties, particularly outdoor amenity areas, is at an acceptable level;
Chamberlain Architect Services Limited prepared a Sun-shadow study dated October 2015 and revised April 2016 that demonstrates that the shadows from the proposed development and revised configuration will not impact the existing or proposed residential development to the west or south due to the orientation of the buildings. The Urban Design Opinion letter prepared by Acronym Urban Design & Planning (September 15, 2015) states that the shadows generated by the proposed development will be at an acceptable level throughout the year. Because of the position and orientation of the tallest 19 storey buildings at the northeast corner of the site, the majority of all shadows throughout the year will fall onto the paved areas of Palladium Way and the commercial property to the east. At no time during the year will there be any shadow impact on adjacent existing or proposed residential areas or amenity areas. It is noted that the impact of permitted 10 storey buildings in closer proximity to the west lot line of the Site could have generated shadows on adjacent properties that could have negatively impacted on the use and enjoyment of their outdoor amenity space. Therefore, the proposal is in conformity with this criterion (vii) which requires that sun-shadowing for extended periods on adjacent properties, particularly outdoor amenity areas, is at an acceptable level.
(viii) Accessibility exists to community services and other neighbourhood conveniences such as community centres, neighbourhood shopping centres and health care;’
The municipally owned and operated Haber Recreation Centre is a located within 1.5 kilometres of the Site and offers a wide variety of physical activities and recreation opportunities. This facility was built to support regional and provincial tournament play in sports such as basketball, volleyball, badminton and sports for people with disabilities. The Alton Community Library is also located within this facility. Within 2 kilometres of the Site is the Norton Community Park featuring: two lit artificial turf sports fields for soccer, football and field hockey; skate park; splash pad; outdoor multi-use sports court; playground; open air pavilion with washrooms; two half-court
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basketball courts, pathways and open space areas; and on-site parking. Douglas Wright Park is also located west of the site and includes some three hectares of play space including a baseball diamond, half basketball court, a playground, and on-site parking. In addition to these actively programmed parks, passive outdoor recreational opportunities are available along the walking trail system throughout the Alton Community. With respect to neighbourhood shopping centres and health care, the Site is located in close proximity to existing neighbourhood commercial centres located at Appleby Line and Thomas Alton Boulevard, as well as Dundas Street and Appleby Line including a health care facilities such as doctors and other health care professionals’ offices. Therefore, the proposal is in conformity with this criterion (viii) which requires accessibility to community services and other neighbourhood conveniences such as community centres, neighbourhood shopping centres and health care.
(ix) Capability exists to provide adequate buffering and other measures to minimize any identified impacts
As noted, the Site is currently designated and zoned to permit 10 storey apartments. In support of the requested height and density increase, the Site has been purposefully designed to move the proposed height as far away from existing development as possible to ensure that potential shadowing and visual massing impacts are minimized. Along the west property line that abuts existing 3-storey townhouses, the proposed development form and height is mirrored resulting in 3 storey units backing onto the rear yard of existing 3 storey townhouses. These units are separated by a solid board fence. South of the site are street townhouses While the overall design provides internal access to units fronting Thomas Alton Boulevard, there are not direct driveways to the public street to access these units which will minimize traffic conflicts associated with the abutting existing residential dwelling units. As noted in the Ruth Victor report, the Thomas Alton frontage has been designed so as to incorporate a similar built form that exists on the south side of Thomas Alton Boulevard to allow for a transition in height and density as one moves from west to east across the property and similarly from south to north.
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Housing Intensification
Criteria
Conformity of Proposed Design
The provision of a centrally located large amenity space not only provides amenity space for the overall development, it provides for additional separation between the more intensive 19 storey residential apartment and the lower profile and lower intensity block and back to back townhouses units proposed for the remainder of the Site. Finally, the Urban Design Opinion letter prepared by Acronym Urban Design & Planning (September 15, 2015) states that there are no specific impacts resulting from the proposed development that require mitigation from an urban design perspective. In this regard, the proposed development has been designed to provide adequate buffering and separation distance to minimize potential impact on existing surrounding development, in conformity with criterion (ix).
(x) Where intensification potential exists on more than one adjacent property, any re-development proposal on an individual property shall demonstrate that future re-development on adjacent properties’ will not be compromised and this may require the submission of a tertiary plan, where appropriate;
Lands to the south and west contain relatively new residential development; there redevelopment in the foreseeable future is highly unlikely. The vacant lands to the north and east are designated for future commercial and/or employment uses. The proposed residential development will not compromise the future development potential of these adjacent lands for their intended purpose in conformity with criterion (x).
(xi) Natural and cultural heritage features and areas of natural hazard are protected;
There are no natural or cultural heritage features or areas of natural hazard on or adjacent to the Site that required protection.
(xii) Where applicable, there is consideration of the policies of Part II, Subsection 2.11.3, g) and m);
This Site specific policy is not applicable to the Site as it refers to lands located in the South Aldershot area.
(xiii) Proposal for non-ground oriented housing intensification shall be permitted only at the periphery of existing residential neighbourhood
The Site is located at the periphery of an existing residential neighbourhood. Both Palladium Way and Thomas Alton Boulevard are collector roads with sufficient capacity to accommodate the proposed development. While the Site does not have direct vehicular access to a major or minor arterial road, the two controlled entrances to the Site are within 80 metres of the Appleby Line. These access points are appropriately positioned to ensure that ingress to and
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on properties abutting, and having direct vehicular access to major arterial, minor arterial or multi-purpose arterial road and only provide that the built form, scale and profile of development is well integrated with the existing neighbourhood so that a transition between existing and proposed residential buildings is provided.
egress from the Site will not negatively impact on the existing residential community As noted in the Ruth Victor Report, the transition between the proposed residential development and the adjacent development has been sufficiently addressed in the points above with respect to the built form, scale and profile of the proposed development. On this basis, the proposed development is in conformity with criterion (xiii).
Therefore, the density, form and height and layout of the proposed development is in
conformity with the housing intensification criteria of the Official Plan.
The need for a balanced approach in the assessment of intensification projects is required,
understanding that there is potential for competing objectives that need to be evaluated
accordingly. While the height, massing and scale of the development is greater than the
existing two and three storey buildings within the community, there are appropriate
transitions from the building to the existing neighbourhood provided through the intentional
design of the Site and buildings. The proposed buildings will be successfully integrated into
the neighbourhood through appropriate setbacks, building shape and orientation, façade
detailing and building materials. The perceived scale of the building will be minimized
through pedestrian design and setbacks. The Urban Design Opinion letter further articulates
the appropriateness of the proposed scale and massing in relation to existing surrounding
development.
On this basis, the request to amend the Official Plan for permit a height increase up to 19
storeys for the proposed apartments is considered to be appropriate.
With respect the requested increase in density, while the numerical value is substantially
higher than what is currently permitted, density is largely based on the technical ability of the
site to accommodate the proposed number of units. The Functional Servicing Report
prepared by MTE Consulting Inc. demonstrate that there is sufficient capacity to
accommodate the proposed density. The traffic and parking requirements of the
development have been reviewed and analyzed by Paradigm Transportation Solutions and
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are deemed to be adequate to service the Site. There are schools in place to accommodate
new students, as well as public parkland and community facilities.
Combined with the built form evaluation provided as a part of the residential intensification
criteria conformity review, this technical information demonstrates that the proposed density
can physically be accommodated on the site. Accordingly, the proposed density is
considered appropriate for this Site.
6.5 Burlington Zoning By-law No. 464
The lands are currently zoned RAL4-133 in a site specific high density residential zone that
restricts the building form to apartments to a maximum height of 10 storeys. The proposal is
to redevelop the land for a mix of housing forms including two 19 storey apartment towers
sharing a 6 storey podium, standard townhouse and stacked townhouses. A Zoning By-law
Amendment to modify the RAL4-133 zone is required to expand the range of permitted uses,
increase the maximum permitted height, and to permit other site specific zoning
modifications to provide for the site layout as proposed in Figure 1.
In order to permit the redevelopment of the Site as proposed, a Zoning By-law Amendment
is required to modify the regulators of the RAL4-133 Zone. The Site specific modifications
address the non-compliance regulations noted in Table 2 in the previous section including
the following:
Addition of standard and stacked townhouses as permitted uses;
Decrease in the minimum front yard setback from Thomas Alton boulevard from 7.5
metres to 6.0 metres;
Decrease in the minimum landscaped area along Palladium Way from 6 metres to 4.5
metres;
Increase in the maximum building height from 10 storeys to 19 storeys;
Increase in the floor area ratio from 1:1 to 2.54:1;
Decrease in the minimum amenity area for townhouses
Permit balconies to face Palladium Way and Thomas Alton Boulevard;
Permit a reduction in the parking and visitor parking regulations to permit: Apartments
and stacked townhouses at 1 + 0.18 visitor parking spaces per unit; and townhouses at
2 parking spaces per unit;
Permit an increase in the below grade enclosed occupant parking from 75% to 91%;
To permit the overall Site to be considered one lot for the purposes of determine
zoning compliance;
To permit a reduction in the width and area of required parking stall from 2.75 metres
and 16.5m2 to 2.6 metres and 15.6m2 respectively; and
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To permit a temporary building or trailer for conducting sales of new dwelling units for a
period of 2 years.
Height, Scale and Massing
An increase in the maximum building height of 10 storeys to 19 storeys is proposed. Any
discussion regarding building height must also consider building mass. Building designs
should typically incorporate the concept of base, middle and cap to create visual interest at
grade and reduce the scale of taller buildings. The architectural style and scale of the
building should be considered and appropriate design strategies created.
The proposed 19 storey towers have been purposely designed with a slender tower form,
rather than bulkier slab to minimize potential shadow impacts on surrounding properties.
The towers themselves are separated by more than 21 metres to allow for greater views
through the site and allows more sunlight to reach adjacent townhouse development to the
south and west. The Sun/Shadow Assessment completed by Chamberlain Architect
Services Limited demonstrates that proposed development will not shade adjacent
residential properties.
The proposed development incorporates the concept of the base in the podium which has
been designed to incorporate and respond to adjacent commercial/employment development
to the east, as well as future and existing 3 storey townhouse development to the south and
west. The middle condominium tower portion is animated by balconies that appear to turn or
pivot back and forth on an imaginary axis creating visual interest. The top penthouse floors
are stepped back to clearly define the cap and reduce the perceived scale of the building.
Finally, there are no blank walls proposed on any of the apartment elevations which serves
to break up the façade from all views. On the basis of this design and massing, and
provided the apartments are located in the northeast quadrant of the site, the proposed
height increase is considered appropriate.
Parking Modifications
The purpose of requiring minimum parking regulating in the Zoning By-law is to ensure that
there is sufficient parking on site to service residents on site, so that they are not forced to
park on abutting streets. Paradigm Transportation solutions Limited was retained to
complete a Parking Study. The Study concludes that the proposed parking supply can be
supported with the effective Transportation Demand Management program that is
incorporated into the site’s design and future operation. Resident and visitor Parking is
being provided at a ratio 1.18 spaces per apartment dwelling unit, 2 spaces per townhouse
unit, and 1.18 spaces stacked townhouse dwelling unit. This equates to a total of 826
required spaces required. The provision of 832 parking spaces as proposed on site, is
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considered adequate to meet the anticipated demand and represents an average parking
ratio of 1.2 spaces per unit across the Site.
With respect to the amount of below grade enclosed parking, an increase in the maximum
amount of underground parking is requested from 75% to 91%. This request eliminates the
need for large paved asphalt areas and creates a much more attractive setting for a
residential development. It also illustrates a development that is not dominated by the
private automobile; rather a greater focus is placed on the units and unique amenity space.
The minor reduction in the width of the required parking spaces from 2.75 metres and
16.5m2 to 2.6 metres and 15.6m2 respectively will allow for a sustainable parking structure
that maximizes the available space.
Amenity Space
The amenity space has been reduced on a per unit basis; however, the unique design of the
spaces including a combination of terraces, roof terraces, decks and balconies provides
sufficient private amenity space for the units. In addition, a large open space area for use by
all condominium residents within the block provides a unique amenity space that will be of
benefit to all residents within the Site.
Temporary Sales Trailer
Finally, the owner has requested an extension to the length of time that a temporary sales
trailer or building is allowed on site from 6 months to 2 years. This is to accommodate a
more realistic time frame for a proposed phased development.
In summary, the proposed development will contribute to the goals of the Burlington Official
Plan to provide for housing intensification in existing neighbourhoods provided the
development is compatible with surrounding development and is in conformity with the
housing intensification criteria of the Official Plan. Through sensitive design the townhouses
and two 19 storey apartment towers can be incorporated into the neighbourhood.
Accordingly, the proposed redevelopment is considered appropriate and compatible with the
rest of the neighbourhood. The proposed addition of standard townhouses and stacked
townhouses as permitted uses is considered appropriate as it provides for a broader range
of housing choices and allows for a gradation of height, density and massing on the site
versus the currently limitation to 10 storey apartment.
Finally, a modification to the by-law is requested to assist in the future interpretation of yards
and overall requirements. Specifically, to permit the overall Site to be considered one lot for
the purposes of determine zoning compliance. This serves to simply the determination of
By-law compliance.
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7.0 RECOMMENDATIONS
The proposed development and associated Official Plan and Zoning By-law Amendments
represent good land use planning and should be approved for the following reasons:
a) The proposed development is consistent with the policies of the Provincial Policy
Statement;
b) The proposed development is consistent with the Provincial Places to Grow Growth
Plan;
c) The proposed development is in conformity with the Region of Halton Official Plan;
d) The proposed development provides an opportunity for residential intensification at an
appropriate height, scale and density and offers a wider range of housing types within
the context of the immediate neighbourhood, as well as Burlington as a whole;
e) The proposed site layout, building form, height, and massing are compatible within the
neighbourhood context;
f) The Site is appropriately located on a collector road in close proximity to a Major
Arterial Road that has capacity to accommodate the redevelopment;
g) The proposed development provides for the efficient use of land and infrastructure and
supports active transportation.
Respectfully,
B. Khes MCIP, RPP
Associate – Senior Planner