EETING DATE JUNE - Oakville - business/RFP-OTMH-4b-MP-… · A review of the building’s structure...

REPORT SPECIAL COUNCIL MEETING

MEETING DATE: JUNE 27, 2017

FROM: Planning Services Department DATE: June 21, 2017 SUBJECT: Master Plan – Former Oakville-Trafalgar Memorial Hospital

Lands Report LOCATION: Area bounded by Reynolds Street, Macdonald Road and Allan Street. WARD: 3 RECOMMENDATION: That the report from the Planning Services Department, dated June 21, 2017, entitled “Master Plan – former Oakville-Trafalgar Memorial Hospital Lands” be endorsed and staff be directed to undertake the implementation strategy as set out in this report. KEY FACTS The following are key points for consideration with respect to this report:

• The 2013 South Central Public Lands Study explored the future redevelopment potential of four sites in Ward 3 – the Linbrook, Chisholm and Brantwood school sites and the Oakville-Trafalgar Memorial Hospital (OTMH) site. Through that study Council endorsed the staff recommended land use options for the three surplus school sites and endorsed in principle the staff recommended land use option for the OTMH.

• The former Oakville Trafalgar High School (OTHS), which also houses a threatened bird species, is a designated heritage building that will be retained on-site, along with the existing parking garage.

• Potential development options were created based on several principles that explored potential development of the site along with a future community centre and park, the existing parking garage and potential residential development.

SPECIAL COUNCIL MEETING From: Planning Services Department Date: June 21, 2017 Subject: Master Plan – Former Oakville-Trafalgar Memorial Hospital Lands

• Public consultation has been on-going regarding the three development options through May and June 2017, culminating in a facilitated session on June 1, 2017 wherein direct feedback was provided.

• Staff has developed a recommended Master Plan for the site. • There will be further consultation opportunities on the details of implementing

the recommended Master Plan. • The timing of Council endorsing the recommended Master Plan is premised

on Councils commitment to open the South East Community Centre by September 2020.

BACKGROUND What has clearly come through the public consultation for this site over the years is the legacy of the former hospital and high school sites as a constant presence anchoring the neighbouring community. These civic uses have played an important role in both being a major employer as well as shaping the area, and contributing to its identity. As such, it is critical to consider how the shape of future development of the site continues to positively contribute to the area’s next iteration. The consideration of other civic uses on the subject site, and the idea of maintaining a civic presence, is explored further in this report. The South Central Public Lands Study (SCPLS) was a comprehensive land use study focussed on several properties, completed in 2013. The study addressed three surplus school sites (i.e. Brantwood, Chisholm and Linbrook Public Schools), the Oakville-Trafalgar Memorial hospital (OTMH) site, and the Oakville Arena site, including the surrounding Trafalgar Park. The study incorporated extensive community engagement and technical analyses for each of the sites. Through this study, Council endorsed a land use option for the former Oakville-Trafalgar Memorial Hospital. At the time of the 2013 study, it was identified that a new community centre was to be included as part of the OTMH site redevelopment. The 2012 Parks, Recreation and Library Master Plan recommended the development of a 3716 m2 – 4180 m2 (40,000- 45,000 s.f.) community centre with a 25 metre pool. This area would represent the footprint, or coverage, of the building. The updated 2017 PRL Master Plan confirmed the community centre need. Additional park facilities were also identified for south-east Oakville which would be located in association with the community centre. A report detailing the community centre may be found on the same Council agenda as the current subject matter, along with a complementary Corporate Services report regarding financial matters associated with the potential future redevelopment of the subject property.


Planning Framework The former OTMH site is located in a mature, residential area north-east of downtown Oakville and south-east of the Oakville GO station. Including Wyndham Manor, it is approximately 6.7 hectares in size and has frontage on Reynolds Street, Macdonald Road and Allan Street. The property includes the existing hospital buildings (which are to be removed) and the former Oakville Trafalgar High School building. The Wyndham Manor Long Term Care Centre is immediately south and adjacent to the subject site. When the town acquired the former hospital site, Wyndham Manor was not included. The remaining lands, without Wyndham Manor, are 5.7 hectares in area while the Open Space lands immediately east of Wyndham Manor are approximately 0.3 hectares, but encumbered by a number of easements for utilities and fire access. The former Oakville-Trafalgar High School building is designated under Part IV of the Ontario Heritage Act. The building has been vacant for more than 20 years and is currently home to a chimney swift colony who roost in the school’s four chimneys. The birds are a threatened species under both provincial and federal legislation. The Livable Oakville Plan designates the site as “Institutional” to recognize the former hospital and associated uses, but also identifies it as a “Potential Residential Redevelopment Area”. Section 26.1 provides site-specific policies intended to guide future redevelopment once the hospital is demolished. Specifically, section 26.1.2 states:

“Redevelopment shall consider the following requirements in addition to those in section 11.1.9:

a) Development should maintain and improve public parkland, pedestrian, cycling and vehicular access and connect to the surrounding neighbourhood and community.

b) Development will be subject to a phasing plan. c) Development proposals will demonstrate, compatibility and

integration with the surrounding land uses by ensuring an effective transition in built form between areas of different development heights. Transition in built form will act as a buffer between proposed development and planned uses and should be provided through appropriate design, siting, setbacks and the provision of public and private open space and amenity space.

d) Development shall protect and enhance natural features. e) Development will be required to provide the necessary community

infrastructure, transportation infrastructure and other services required to maintain a complete community.


f) Development shall protect and enhance existing cultural heritage features and, where feasible, integrate such features into the development of the lands.”

Further, the policies in section 26.1.3 permit a mix of low and medium density housing types on the OTMH site, subject to maintaining a maximum overall development density of 29 units per net hectare. These policies formed the basis of the parameters, or principles, employed in creating three redevelopment options which were presented to the public to garner feedback and opinion. With respect to the former Oakville Trafalgar High School, the Official Plan policy states:

“The Town shall encourage the maintenance and preservation of the old Oakville Trafalgar High School building, which is designated under the Heritage Act, in any development on the site.” (s.26.1.4)

A review of the building’s structure in July 2016 confirmed that, despite the poor state of the interior elements, the former high school’s structure is in good condition overall. The four chimneys that serve as chimney swift habitat also appear to be stable. Subject to certain repairs, the building was deemed suitable to be incorporated into future development. MASTER PLAN PROCESS From the 2013 SCPLS study, Council endorsed in principle a land use option that included a new community centre, preservation of the OTHS, park space, residential development and potentially a medical office or facility. This option considered integrating the community centre with the OTHS as a single building. This scenario was further evaluated to determine its appropriateness, along with alternative options to better understand the overall land use composition. Principles were created to assist in developing the options. These were augmented by input derived from previous public engagement held over the last several years and, as noted above, policies provided in the Town’s Official Plan. These principles include:

• A new community centre should have a close relationship with any park facility

• The area east of Wyndham Manor must continue to accommodate existing easements and fire routes

• A “green connection” should be considered through the site for pedestrian access and enhanced connectivity to other park locations in the broader area


• The community centre should be located near the existing parking garage, to utilise existing parking, thereby eliminating the need for new parking

• A total of 80 parking spaces are required by Wyndham Manor staff, and must be accommodated on site

• The permitted uses and residential density for the redeveloped lands must be consistent with the Livable Oakville Plan policies

• New development must be compatible with the established, neighbouring community

• The heritage aspects of the OTHS are required to be conserved • The Chimney Swift colony is required to be protected under the Endangered

Species Act, 2007 Staff started by locating the 40,000 – 45,000 sq. ft. community centre on the former hospital site in consideration of the foregoing principles, along with an adjacent park. There were only four possible community centre locations: connected to the former OTHS building, or to the north, west or south of the existing parking garage. The latter option was not pursued as it did not advance several of the foregoing principles. The three options included residential development consisting of single-detached lots which were intended to have a similar dimensional size and area as lots in the immediate area. There was also potential for some multi-residential land uses to be considered, consistent with Official Plan policy. Streets were expected to be public streets, but lanes could be either public or private depending on access and overall development feasibility. In addition, staff heard throughout the public consultation a desire to accommodate seniors’ housing on-site. While not specifically shown in the various options, the opportunity to include some form of seniors’ housing was considered either in conjunction with the redevelopment of the high school building, or stand-alone. None of the options included a medical facility as the Local Health Integration Network (LHIN) is conducting a health needs assessment in co-operation with Halton Region Public Health and Social Services, and the Town. This study will be completed later this year. Upon completion, if required, programming options, throughout the town, may be explored. The three options presented to the public are further described below. Option #1 – Modified 2013 concept The 2013 SCPLS land use option that Council ultimately endorsed in principle, included a community centre, park, potential medical facility and residential land uses. This concept was modified through Option #1 to reduce the overall number of


residential units, but maintain the same general land use composition wherein the community centre would be integrated with the OTHS. The community centre itself was approximately 3,250 m2 with the balance of 930 m2 being located within the OTHS building and the adjoining atrium. The concept presented single-detached residential development to the north of the OTHS and parking garage, along Macdonald Road and Allan Street. Some townhouse development was identified along Reynolds Street and a new east-west street connected Allan Street to Reynolds Street. Option #2 – Westerly community centre concept The community centre was focussed on the Reynolds Street frontage in this concept while a drop-off and parking garage access is provided from the Lawson Street intersection. The residential lotting pattern along Allan Street and Macdonald Street is comparable to the existing lotting pattern to the north and east of the site and the intent was to have similar zoning by-law regulations of the neighbouring RL3-0-10 zone. Townhouses were proposed east of the OTHS, south of the parking garage and serviced by a private lane. It should be noted that this concept had the most positive votes on the Town’s Idea Forum. Option #3 – Northerly community centre concept The community centre was proposed to be centrally-located in this concept, just north of the parking garage. Access was considered from a new public street to the north with a drop-off from Allan Street. The drop-off would also provide access to the parking garage. The park is prominently located along the Reynolds Street frontage while a residential lay-out is proposed east of the OTHS similar to Option #2. Public Consultation The three options were posted to the Town’s web-site in the Idea Forum which generated a fair amount of feedback once presented to Council on May 2, 2017 (see Appendix B). As well, comments were received through social media and a facilitated consultation exercise was held June 1, 2017. In addition, comments were received through email (see Appendix C). While the majority of feedback was provided through the Idea Forum and the consultation exercise, the executive group of some of the residents’ associations offered feedback by way of a modified lay-out. This submission depicted a large park area north of the garage, and utilising the existing public rights-of-way for residential development. The consultation on June 1, 2017 was attended by 90 people wherein groups went through an exercise of evaluating each of the options to consider the respective advantages, impediments and modifications / mitigations. There was no clear option


to which participants gravitated. There were elements of each option which were explored; however, there was a fair balance of opinion on every element of each Option. A summary of the facilitated table discussions can be found in Appendix A. Themes Although there was no clear consensus on one particular Option through the consultation, Staff considered the extensive feedback to understand if certain themes emerged from the discussion. The common thread throughout the public consultation was that of breaking the site into “thirds” where there would be residential space to the north, clustering the community and civic uses (community centre and park) in the middle, and a seniors / affordable housing component to the south. Many comments were also provided on-line through the Idea Forum. It appears that Option #2 benefitted from the most supportive reviews and serves to address not just the principles outlined above, but also considers some of the logistical concerns affecting the operation of the future community centre and park. This option also reflects the idea of breaking the site into three legible areas. Civic Precinct As noted earlier, the presence of the former hospital and high school uses in this part of the community has created a unique identity. The re-location of the hospital does not remove the civic function this area has experienced. There are other opportunities to maintain civic uses on the subject property through the programmes offered in the future community centre and the treatment of open space and parkland on the site. Park / Green Space The amount and quality of open park space was also noted in a lot of the submissions. As such, ensuring park space is open, safe, adjacent to the community centre, and highly-accessible was of importance in the site master plan. Seniors-oriented housing A number of comments noted the need for creating opportunities to “age-in-place”. This means allowing options for area residents to down-size to smaller, more manageable properties or dwelling units without the need to leave the community. This can also suggest opportunities for older adults who need some provision of care and who may not be living as independently. This consideration is elaborated upon in a subsequent section of this report.


Residential uses The themes were derived by understanding where the broader issues were trending. For example, where residential opportunities were considered, the majority of the comments spoke to form (i.e. single-detached) and being located at the north end of the site. The idea of character and ensuring compatibility between new and existing development was part of the commentary. Affordable units Through the public consultation, there was some passionate support for the idea of making “affordable housing” part of the master plan. While some suggested that affordable units would not fit the character of the area, there was no substantive discussion about defining what an “affordable” unit may be – what form it would take, would it be subsidised, independent or supportive housing RECOMMENDED SITE MASTER PLAN Following the extensive feedback offered by the public, a recommended Site Master Plan was devised based on a number of principles and considerations, as outlined above. The elements of this concept include: the provision of the Community Centre and an approximately 0.6 hectare (1.48 ac) park focussed towards Reynolds Street, while maintaining direct access from the Lawson Street intersection to the parking garage. There are benefits to consolidating the public uses to one area of the site. As Reynolds Street is the busiest street of those bounding the site, there is merit in considering an intersection at Reynolds Street and Lawson Street since these two streets outlet to higher order streets, being Cornwall Road and Trafalgar Road, respectively. Further, by grouping the public uses, there is a synergy which can be created by consolidating access to the former OTHS building, the existing parking garage and the entrance to the Community Centre. It also allows the balance of the site to more easily reflect the adjacent, existing neighbourhood in terms of residential density and built form. A mix of housing types can be considered in the area proposed for residential development which would maintain the Official Plan’s objective of limiting density to 29 units per hectare. These types can include single-detached, semi-detached, townhouse and apartment building forms. Residential development is proposed along the northern and eastern edges of the site which would complement the existing residential development existing on the


north and east sides of Macdonald Road and Allan Street, respectively. It is expected that zoning regulations for the low-density residential blocks would include provisions with similar metrics for lot frontage, coverage and height, among others. The recommended medium-density block on the east side of the new north-south road can incorporate either townhouse forms or a low-rise apartment form, the latter similar to that proposed at the north-west corner of Sheddon Avenue and Allan Street. As part of the feedback on the options, there were some comments suggesting the elimination of any “through” streets on the site for fear of cut-through traffic, added infrastructure and as a means to keep the number of units low. Staff considered all of these comments as well as the Official Plan policy which recommends limiting private streets and culs-de-sac. A through-street would offer more access to the future park than a cul-de-sac and would also allow underground infrastructure to connect to the municipal rights-of-way. It is not expected that cut-through vehicular traffic would be an issue since it offers a less direct route around the area compared to utilising the existing street network. An area east of the OTHS, and south of the parking garage can be reserved for some form of seniors-oriented housing which can function in close proximity to the Wyndham Manor facility. Further detail regarding this element is provided in section “Seniors-oriented Housing” in this report. The recommended site master plan:

• Conforms to Official Plan policy (density, mix of uses, compatibility) • Connects to the surrounding neighbourhood • Preserves the Heritage of the OTHS and by extension, the chimney swift

habitat • Utilises existing infrastructure available along Macdonald Street and Allan

Street • Considers the operational aspects of the Community Centre • Maintains a close relationship between the future park and Community

Centre • Follows the principles of safe park design

The public consultation generated a number of opinions regarding the future design and potential uses of the public park. The design and uses for the park will be developed through future consultation in autumn 2017.


Figure 1: Site Master Plan for former OTMH lands Seniors-oriented Housing It was clear through the consultation that there is a desire, if not demand, for some provision of seniors-oriented housing in the area. There is no pre-determined layout, built form, provider or assumed density for the area identified in Figure 1. This area is simply reserved for the potential to accommodate some form of seniors-oriented housing with a provider to be determined later. The parameters shaping the future development can be assumed to be a lower-rise built form with a design that is compatible with, and complementary to, the neighbourhood. This development could range from independent seniors-living to assisted-care. It could be provided either through a public entity (i.e. Halton Region), or as a for-profit business. Further investigation is warranted to determine the limit of the area, and the form of housing that would be appropriate for the site which could allow area residents to “age-in-place”. Through a future detailed planning exercise, the extent of the area utilised for the use can be determined, and whether it could be completed independently, or perhaps in conjunction with the former OTHS lands. Planning staff will address this more fully when more information is available, through the upcoming statutory public meeting process. Oakville Trafalgar High School It is an asset to the community to have the OTHS building existing on the site. Given its heritage significance though, further analysis for potential re-use of the building is required. The building can be used for a variety of initiatives, and the public offered some for consideration through the public consultation. Such uses could be oriented towards the public (i.e. art gallery) or as part of a business venture (i.e. coffee shop, or as independent apartments). Regardless of what the building it ultimately used for, the re-use of the former high school building will require:

• Council approval of a heritage permit; and, • Documentation, prepared to the satisfaction of the Ministry of Natural

Resources and Forestry, regarding the alterations to the chimneys and the maintenance or replacement of the chimney swift habitat.

Staff will first explore opportunities for the OTHS to be coordinated with the senior oriented housing with stand-alone residential being considered if this is not possible.


To date, the town has explored other public uses with none being identified. Market Analysis As part of the review of the recommended master plan, planning staff investigated the market feasibility of the proposed lay-out. Although the potential revenue gained from the sale of lands is not a planning consideration, it is important for Town Council to fully understand the implications of how future development may meet Council’s desire to replenish the Town’s financial reserves. The recommended master plan is assumed to have approximately 19 single-detached lots and 16 freehold townhouse lots. Based on current market analysis, the net revenue from the sale of these residential lands, including some revenue for the seniors-oriented housing, may generate between $18.6 M and $23 M. Further refinement to the lot configuration may occur which could affect this value. It should also be noted that this value only relates to the residential lands and does not include any operation or long-term maintenance costs associated with the future Community Centre or Park. Additional information regarding the financial aspects of the overall project can be found in the Corporate Services report on this same agenda (Special Council meeting of June 27, 2017). It is noted that the recommended preferred plan does not provide the maximum revenue that could be generated from this site and represents less revenue than expected from the three options. However, the recommended plan has been prepared with the best location and access to the community centre and the park, as well as a new community design which provides additional housing reflecting the character of the existing community as required by the town's Official Plan. Planning Approvals A number of Planning Act approvals related to implementing the contemplated land use composition will be necessary in order for the redevelopment of the former hospital site to proceed. An Official Plan amendment is required since the site is currently designated as “Institutional”. Also, a zoning by-law amendment will regulate future land uses. Any residential development is assumed to be subject to a future draft plan of subdivision approval, or site plan approval, pursuant to Planning Act requirements. Therefore, these development scenarios would require support from various technical studies as outlined through the Town’s Official Plan and town procedures. These development applications, along with Official Plan and zoning by-law amendments, would be subject to further consultation with the community and the


required statutory public consultation process. Staff expect to be consulting with the community in the fall of 2017. As well, future disposition of surplus lands not used for civic purposes would be required to follow the Town’s standard procedure and protocol. CONCLUSION Through an extensive public consultation process, three options for the future development of the former OTMH site were scoped down to a recommended Master Plan. This Plan satisfies the initial list of principles presented to Town Council in May 2017, and which were based on several iterations of public consultation since 2012. A draft of the implementing policy and regulations will be presented to Council in autumn 2017 as part of the statutory public process. CONSIDERATIONS

(A) PUBLIC

The public has been engaged for several years throughout the process of determining the how the former hospital site will be re-purposed. Additional opportunities will be provided to solicit public opinion in June 2017.

(B) FINANCIAL

The financial aspects of this project will be further reviewed and refined through on-going consultation. Some initial analysis can be found in the Corporate Services report also on the same Council agenda as this report.

(C) IMPACT ON OTHER DEPARTMENTS & USERS

Consultation with the Community Services and Corporate Services Commissions has been on-going.

(D) CORPORATE AND/OR DEPARTMENT STRATEGIC GOALS

This report addresses the corporate strategic goal to: • have environmentally sustainable programs/services • be innovative in everything we do • be fiscally sustainable • enhance our cultural environment • be the most liveable town in Canada

(E) COMMUNITY SUSTAINABILITY The redevelopment of the former hospital lands is premised on achieving the town's sustainability objectives.

SPECIAL COUNCIL MEETING From: Planning Services Department Date: June 21, 2017 Subject: Master Plan – Former Oakville-Trafalgar Memorial Hospital Lands Report

APPENDICES Appendix A – Public Consultation Summary (June 1, 2017) Appendix B – Public comments from Idea Forum Appendix C – Public comments submitted via e-mail Prepared and Recommended by: Diane Childs, MCIP, RPP Manager, Policy Planning and Heritage Gabriel A.R. Charles, MCIP, RPP Senior Manager, Current Planning & Urban Design Submitted by: Mark Simeoni, MCIP, RPP Director, Planning Services

EETING DATE JUNE - Oakville - business/RFP-OTMH-4b-MP-… · A review of the building’s structure...

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