Planning Justification Report - London, Ontario · 699 Village Green Avenue, London, Ontario...

Planning Justification Report October 17, 2019

699 Village Green Avenue, London, Ontario Zelinka Priamo Ltd.

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Planning Justification Report

699 Village Green Avenue, London, Ontario

Mapleton Homes

October 2019



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Table of Contents

1.0 INTRODUCTION .................................................................................................. 1

2.0 THE SUBJECT LANDS ....................................................................................... 1

3.0 SURROUNDING LAND USES ............................................................................. 3

4.0 PROPOSAL ......................................................................................................... 3

5.0 PROPOSED OFFICIAL PLAN AMENDMENT AND ZONING BY-LAW

AMENDMENT ................................................................................................................. 4

6.0 PLANNING POLICY ANALYSIS .......................................................................... 5

6.1 2014 Provincial policy statement (PPS) ................................................................ 5

6.2 1989 City of London Official Plan .......................................................................... 7

6.3 The London Plan ................................................................................................ 11

6.4 City of London Zoning By-Law ............................................................................ 13

7.0 CONCLUSION ................................................................................................... 14



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1.0 INTRODUCTION

Mapleton Homes has made an application to amend the City of London Z.-1 Zoning By-Law for

the lands known municipally as 699 Village Green Avenue (the “subject lands”). The intent of

the proposed amendment is to permit clinic, medical/dental, and wellness centre uses within

the existing building on the subject lands.

The purpose of the following land use Planning Justification Report is to evaluate the proposed

Zoning By-Law Amendment within the context of existing land use policies and regulations,

including the 2014 Provincial Policy Statement (PPS), the 1989 City of London Official Plan,

The London Plan, and the City of London Z.-1 Zoning By-Law.

2.0 THE SUBJECT LANDS

The subject lands consist of a single parcel of land located on the south side of Village Green

Avenue, between Salem Road and Lynngate Place (Figure 1). The generally rectangular

shaped subject lands have a frontage of approximately 36.78m (120.68ft) along Village Green

Avenue, an approximate depth of 28.3m (93ft), and an area of approximately 0.18ha (0.46ac).

Figure 1 – Subject Lands

The subject lands are currently occupied by a 1-storey, multi-tenanted small-scale commercial

and office building, containing a total of 2 commercial/office units (Figure 2). The remainder of

the subject lands is comprised of hard surface area parking, providing 21 parking spaces,

including 2 accessible barrier-free parking spaces. Vehicular access is provided by a driveway

from Village Green Avenue that leads to the surface parking area in the side yard (Figure 3).



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The building is serviced by municipal water, storm, and sanitary sewers. The subject lands are

generally flat in typography with no significant vegetation present. Pedestrian sidewalks can be

accessed along both sides of Village Green Avenue, providing connections to the surrounding

residential neighbourhood.





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3.0 SURROUNDING LAND USES

Land uses surrounding the subject lands consist mainly of low density residential uses in the

form of single detached dwellings to the north, south, and west. Medium density residential uses

in the form of townhouse dwellings and low-rise apartment buildings are located to the east and

southeast along the south side of Village Green Avenue and the west side Woodcrest

Boulevard. Lynngate Grove Park abuts the subject lands to the south. Woodcrest Community

Pool is located adjacent to the subject lands at 695 Village Green Avenue. Westmount

Shopping Centre is located approximately 400m east to the south side of Village Green Avenue.

Figure 4 – Surrounding Land Uses

4.0 PROPOSAL

The interior of the existing building has been remodeled to accommodate clinic, medical/dental,

and wellness centre uses. The exterior of the building has been updated, providing a more

modern façade that contributes to a more aesthetically pleasing streetscape. Additional

cosmetic changes, such as additional signage, may be required to suit the tenant’s needs.

There are no anticipated building expansions planned at this time. Existing surface area parking

and vehicular access is to remain as they currently exist.



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An existing conditions plan, providing approximate setbacks, building footprint, and parking

supply, is provided below (Figure 5). It is noted that this plan is based on the City’s base

mapping and is not a plan of survey.

Figure 5 – Existing Conditions Plan

5.0 PROPOSED OFFICIAL PLAN AMENDMENT AND ZONING BY-LAW AMENDMENT

The proposed uses are not permitted within the current site specific “Convenience Commercial

(CC (11))” zone in the City of London Z.-1 Zoning By-Law. As such, a Zoning By-Law

Amendment is required to permit additional uses within the existing building on the subject

lands.

More specifically, a Zoning By-Law Amendment is proposed to add “clinic”, “medical/dental”,

and “wellness centre” as a permitted uses within the existing building in addition to all other

permitted uses and recognize existing physical conditions through a site specific “Convenience

Commercial (CC(_))” zone with proposed special provisions being as follows:

Add “clinic” as a permitted use in addition to all other permitted uses;

Add “medical/dental” as a permitted use in addition to all other permitted uses;

Add “wellness centre” as a permitted use in addition to all other permitted uses; and



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All other physical zoning regulations to recognize the site’s existing conditions.

6.0 PLANNING POLICY ANALYSIS

6.1 2014 PROVINCIAL POLICY STATEMENT (PPS)

The Provincial Policy Statement (PPS), issued under the authority of Section 3 of the Planning

Act “provides policy direction on matters of provincial interest related to land use planning” in

order to ensure efficient, cost-effective development and the protection of resources. All

planning applications, including Official Plan Amendment and Zoning By-Law Amendment

applications, are required to be consistent with these policies.

In this section, relevant policies are bordered and in italics , with discussion on how the proposed

application is consistent with that policy immediately after:

Section 1.1.1

Healthy, liveable 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;

e) promoting cost-effective development patterns and standards to minimize land consumption and

servicing costs;

The proposal makes efficient use of vacant floor area within an existing built form that is well

suited to support the proposed uses, as demonstrated by the previous commercial uses on the

site. The proposed uses will broaden the range and mix of uses within the surrounding

residential area and, as discussed throughout this report, is appropriate within the surrounding

land use context. Given that the proposed development is a compact and cost-effective form of

development that will make full use of municipal services within an existing built-up area,

consumption of land and servicing costs are minimized.

Section 1.1.3.1

Settlement areas shall be the focus of growth and development, and their vitality and regeneration shall

be promoted.

The proposal intends to repurpose vacant commercial space within an established built up-

area, inside of the limits of the established City of London Urban Growth Boundary, thereby

promoting vitality and regeneration.



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Section 1.1.3.2

Land use patterns within settlement areas shall be based on:

a) densities and a mix of land uses which:

1. efficiently use land and resources;

2. are appropriate for, and efficiently use, the infrastructure and public service facilities which

are planned or available, and avoid the need for their unjustified and/or uneconomical

expansion;

4. support active transportation;

5. are transit-supportive, where transit is planned, exists or may be developed; and

b) a range of uses and opportunities for intensification and redevelopment in accordance with the

criteria in policy 1.1.3.3, where this can be accommodated.

The proposal promotes the vitality and regeneration of the subject lands by efficiently reusing

an existing underutilized building that is connected to existing municipal services. The

introduction of the proposed uses within the existing building will contribute to the mix and range

of uses in the surrounding area and will encourage the reuse of a vacant commercial space.

The proposal supports active transportation by adding commercial/office amenities within

walking and cycling distance of a large population. Similarly, transit is available proximate to

the site at the Wonderland Road South and Village Green Avenue intersection (Routes: 07, 10,

15, 24), providing alternative transportation opportunities for the patients of the proposed uses.

Section 1.1.3.6

New development taking place in designated growth areas should occur adjacent to the existing built-up

area and shall have a compact form, mix of uses and densities that allow for the efficient use of land,

infrastructure and public service facilities.

Given there is no physical, exterior development of the site, the proposal is an efficient, cost-

effective use, as it utilizes existing building stock to facilitate new uses on a fully serviced lot

located within an established built-up area.

Section 1.3.1

Planning authorities shall promote economic development and competitiveness by:

a) providing for an appropriate mix and range of employment and institutional uses to meet long-

term needs;

b) providing opportunities for a diversified economic base, including maintaining a range and choice

of suitable sites for employment uses which support a wide range of economic activities and

ancillary uses, and take into account the needs of existing and future businesses;

c) encouraging compact, mixed-use development that incorporates compatible employment uses

to support liveable and resilient communities; and

d) ensuring the necessary infrastructure is provided to support current and projected needs.



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Permitting the proposed uses within the existing building encourages the revitalization of a

vacant commercial space, and adds to the range and mix of uses while providing additional

employment opportunities within the existing neighbourhood. The proposed uses will also

provide additional medical service amenities to support the needs of the surrounding residents.

Existing infrastructure services are sufficient to the support the subject lands and the

surrounding area.

Section 1.7.1

Long-term economic prosperity should be supported by:

a) promoting opportunities for economic development and community investment-readiness;

d) encouraging a sense of place, by promoting well-designed built form and cultural planning, and

by conserving features that help define character, including built heritage resources and cultural

heritage landscapes;

The proposal promotes long-term economic prosperity through the revitalization of an existing

commercial building located within an established built-up area.

Based on the above, the proposed Zoning By-Law Amendment are consistent with the policies

and intent of the 2014 Provincial Policy Statement.

6.2 1989 CITY OF LONDON OFFICIAL PLAN

The subject lands are designated “Low Density Residential” as per “Schedule ‘A’– Land Use”

in the 1989 City of London Official Plan (Figure 6).

Figure 6 – 1989 City of London Official Plan (Schedule A – Excerpt)

This designation permits a range of low density residential uses in the form of single detached

dwellings, semi-detached dwellings, and duplexes. In addition to residential uses, Section



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3.6.5.a) provides that existing convenience commercial uses that are appropriately located

within residential designations will be recognized as permitted uses. The 1989 City of London

Official Plan recognizes the subject lands as an established convenience commercial use that

is appropriate and compatible within its land use context. Given that convenience commercial

uses are an established compatible use that have occurred within the existing building on the

subject lands for many years, the proposed uses are contemplated within the current “Low

Density Residential” in the 1989 City of London Official Plan.

As per section 3.7.2., applications for Zoning By-law amendments are evaluated with the

Planning Impact Analysis policies of the 1989 City of London Official Plan. The proposed uses

are appropriate for the subject lands as evaluated through the Planning Impact Analysis policies

as follows:

a) compatibility of proposed uses with surrounding land uses, and the likely impact of the

proposed development on present and future land uses in the area.

The existing multi-tenanted small-scale commercial and office building has accommodated a

range commercial of uses in the past (previously a variety store and floral shop). The proposed

clinic, medical/dental, and wellness centre uses are considered low-impact similar type uses

that are comparable in terms of function and intensity to the previous commercial uses. Given

that commercial uses have existed on the subject lands for many years with no known negative

impacts and is a well-established land use, the proposed uses are considered appropriate for

the site and are compatible with proximate land uses.

b) the size and shape of the parcel of land on which a proposal is to be located, and the

ability of the site to accommodate the intensity of the proposed use;

As discussed above, the proposed uses are similar to the existing range of permitted uses,

given that the level of activity generation and intensity on the subject lands would remain

unchanged. As such, the subject lands are considered to be of sufficient size to support the

proposed uses. Vehicular parking is not proposed to change as a result of the propose uses

and is reflective of the existing conditions.

c) the supply of vacant land in the area which is already designated and/or zoned for the

proposed use; and

There are no other vacant lands available in the immediate area that are appropriately

designated and zoned to accommodate the proposed uses. The subject lands are already

zoned for convenience commercial uses within the “Low Density Residential” land use

designation which have been previously deemed compatible with surrounding land uses, and

the proposed uses expand the list of permitted uses.



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d) the proximity of any proposal for medium or high density residential development to

public open space and recreational facilities, community facilities, and transit services,

and the adequacy of these facilities and services.

The proposal is not considered medium or high density residential development.

e) the need for affordable housing in the area, and in the City as a whole, as determined

by the policies of Chapter 12 - Housing.

Affordable housing is not proposed as part of this application.

f) the height, location and spacing of any buildings in the proposed development, and any

potential impacts on surrounding land uses;

No new buildings are proposed on the subject lands. The proposed uses will be restricted

internally to the existing building. Any potential impacts on the surrounding land uses, such as

noise, parking, and activity, are anticipated to be consistent with previous commercial uses that

existed on the subject lands.

g) the extent to which the proposed development provides for the retention of any desirable

vegetation or natural features that contribute to the visual character of the surrounding

area;

There are no significant natural features identified on the subject lands as illustrated in

“Schedule ‘B1’ – Natural Heritage Features” in the 1989 City of London Official Plan. Given that

proposed uses will be contained within the existing building, all matures trees located on the

subject lands will remain as they currently exist.

h) the location of vehicular access points and their compliance with the City’s road access

policies and Site Plan Control By-law, and the likely impact of traffic generated by the

proposal on City streets, on pedestrian and vehicular safety, and on surrounding

properties;

Vehicular access is to remain as it currently exists. Given that the proposed uses will have a

similar function and intensity to the preceding uses that existed on the subject lands, no

additional traffic impacts are anticipated.

i) the exterior design in terms of the bulk, scale, and layout of buildings, and the integration

of these uses with present and future land uses in the area;

The proposed uses will be contained within the existing building on the subject lands. No new

buildings are proposed on the subject lands. The existing building will remain as it currently

exists, save and except interior modifications to accommodate the proposed uses and cosmetic

changes to the exterior of the building.



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j) the potential impact of the development on surrounding natural features and heritage

resources;

There are no identified natural features or heritage resources on the subject lands or proximate

to the subject lands within the surrounding area.

k) constraints posed by the environment, including but not limited to locations where

adverse effects from landfill sites, sewage treatment plants, methane gas, contaminated

soils, noise, ground borne vibration and rail safety may limit development;

There are no known environmental constraints that may limit development on the subject lands

or within the surrounding area.

l) compliance of the proposed development with the provisions of the City’s Official Plan,

Zoning By-law, Site Plan Control By-law, and Sign Control By-law; and

The proposal is consistent with the intent and policies of the City’s Official Plan, however, the

proposal does not currently comply with the Zoning Bylaw, hence the need to amend this

document. City Staff have confirmed that Site Plan Approval is not required as part of this

proposal. There are no signs proposed on the subject lands at this time.

m) measures planned by the applicant to mitigate any adverse impacts on surrounding land

uses and streets which have been identified as part of the Planning Impact Analysis;

There are no mitigation measures necessary for the proposed development as the uses are

contained within the existing building and are of a similar intensity to a range of former

commercial uses.

n) impacts of the proposed change on the transportation system, including transit.

The subject lands have convenient access to Village Green Avenue, a secondary collector road,

for vehicular traffic. The lands are within reasonable walking distance (800m) to public transit

services (Routes 07, 10 , 15, and 24) via Wonderland Road South at Village Green Avenue

(Stop #2136), providing connections throughout the City of London, including Downtown,

Western University, CF Masonville Place, White Oaks Mall, and Victoria Hospital. The addition

of health services within an existing built-up residential area encourages active transportation

by providing a commercial amenity within walking and cycling distance of a large population. It

is expected that a large portion of patients will walk to the site from the surrounding residential

neighbourhood. There are no anticipated undue, adverse impacts to the existing transportation

system by permitting the proposed uses within the existing building.

Based on the above, the proposed Zoning By-law Amendment to permit clinic, medical/dental,

and wellness centre uses within the existing building on the subject lands is consistent with the



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policy intent of the 1989 City of London Official Plan and is appropriate for the subject lands.

The proposal will benefit the surrounding community by providing proximate medical services

to support the needs of the surrounding residents; will encourage the retention and revitalization

of an existing building within an established built-up area; and is compatible with the

surrounding area.

6.3 THE LONDON PLAN

As of the date this report was prepared, “Map 1 - Place Types” and many of the

“Neighbourhoods” Place Type policies are currently under appeal and are not in force and

effect.

The subject lands are identified within the “Neighbourhoods” Place Type (Figure 7) along a

“Neighbourhood Connector” Street Classification (Figure 8).

Figure 7 – The London Plan (Map 1 – Place Types)



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Figure 8 – The London Plan (Map 3 – Street Classifications)

Under the policy framework of The London Plan, commercial buildings, such as a medical

clinics and offices, are not permitted within the “Neighbourhoods” Place Type along a

“Neighbourhood Connector” Street Classification.

The intent of the “Neighbourhoods” Place Type is to provide a strong neighbourhood character,

sense of place and identity; allow for diverse housing options; provide attractive streetscapes,

buildings, and public spaces; provide well-connected neighbourhoods; provide easy access to

daily goods and services within walking distance; and, employment opportunities close to where

we live (Policy 916). Mixed-use and commercial uses are encouraged at appropriate locations

within neighbourhoods to meet the daily needs of neighbourhood residents (Policy 918). A

diverse mix of uses is promoted to prevent the isolation of housing types, intensities, and forms

(Policy 918). Implementing the proposed uses within the existing building is consistent with the

intent of the “Neighbourhoods” Place Type by adding appropriate commercial/office uses within

the existing neighbourhood that will provide convenient access to medical services to support

the needs of the surrounding residential neighbourhood.

Policy 55 of the “Our Strategy” Section of The London Plan promotes a vibrant business

environment to contribute to the range economic opportunities while encouraging the

revitalization of urban neighbourhoods and business areas. The proposal is consistent with this

policy intent by expanding economic opportunities and encouraging the revitalization of an

existing underutilized commercial building.

Based on the above, the proposed uses within the existing building is consistent with the intent

of The London Plan. The proposed development will contribute to the range of economic



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opportunities in the surrounding mixed-use area and encourages the revitalization of an existing

building within an established urban neighbourhood. As discussed throughout this report,

similar commercial uses, comparable to the function and intensity of the proposed uses, have

existed on the subject lands for many years without conflict. As such, the proposed uses are

regarded as compatible within the context of the surrounding residential neighbourhood and

represents good planning practice.

6.4 CITY OF LONDON ZONING BY-LAW

The subject lands are identified within a site specific “Convenience Commercial (CC (11))” zone

in the City of London Z.-1 Zoning By-Law. (Figure 9).

Figure 9 – City of London Z.-1 Zoning By-Law

The current site specific “Convenience Commercial (CC (11))” zone permits florist shops,

restaurants, offices, and day-care facilities within the existing building in additional to all other

permitted uses within the “Convenience Commercial (CC)” zone, including convenience service

establishments, convenience stores, financial institutions, and personal service establishments.

The proposed uses are not identified as permitted uses within the current site specific

“Convenience Commercial (CC (11))” zone. As such, A Zoning By-Law Amendment is proposed

to add “clinic”, “medical/dental”, and “wellness centre” as permitted uses within the existing

building in addition to all other permitted uses and recognize existing physical conditions

through a site specific “Convenience Commercial (CC(_))” zone with proposed special

provisions being as follows:

Add “clinic” as a permitted use in addition to all other permitted uses;

Add “medical/dental” as a permitted use in addition to all other permitted uses;

Add “wellness centre” as a permitted use in addition to all other permitted uses;

All other physical zoning regulations to recognize the site’s existing conditions.



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The proposed Zoning By-law Amendment fulfills the planned function of the subject lands by

applying an appropriate zone in line with the intent of the 1989 City of London Official Plan and

The London Plan. The proposed uses are considered an appropriate change in use that will

implement additional low-impact commercial/office type uses on site with an established history

of similar type commercial uses, which are proven to be compatible with the surrounding

neighbourhood as discussed throughout this report. The proposed uses are consistent with the

policy intent of the “Low Density Residential” designation and the general vision for the

“Neighbourhoods” Place Type by contributing to the range and mix of uses in the area; proving

additional economic and employment opportunities; and encouraging the revitalization of an

existing commercial building on a serviced lot within an established urban neighbourhood.

Given that a range of commercial uses have functioned within the existing building for many

years in the past, the addition of a similar type uses, such as the proposed uses, are unlikely to

have any significant effects on the function of the site, including parking. As such, it is

appropriate to recognize the existing physical state of the lands through a site-specific zone to

permit their continued function and operation.

7.0 CONCLUSION

The proposed Zoning By-Law Amendment to permit clinic, medical/dental, and wellness centre

uses within the existing building is appropriate and desirable for the subject lands and broader

neighbourhood. The proposal adds to the range of uses in the area, directly supporting the

surrounding residential area, and encourages the revitalization of the existing building. The

subject lands provide for an appropriate location for the proposed uses, making efficient use of

an existing built form, on a lot connected to existing infrastructure services, within an existing

built-up area. The proposed uses are considered compatible with the surrounding context, given

that the proposed uses are of a similar function and intensity to previous commercial uses that

existed on the subject lands for many years. The proposed Zoning By-Law Amendment is

consistent with the intent and the policies of the 2014 Provincial Policy Statement (PPS), the

policy intent 1989 City of London Official Plan, the intent of The London Plan, and the City of

London Z.-1 Zoning By-Law. As such, the proposed development is appropriate for the subject

lands and represents good planning practice.

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