Salvation Army Documents

Opening new doors,
creating new
possibilities
Position paper opposing the Salvation Army

proposed shelter development in Vanier
Prepared by:
the SHCHC Board of Directors
November 15, 2017
To: Councillor Jan Harder - Chair, Planning Committee
Re: The Salvation Army plan to develop a new multi-purpose

facility on 325, 327, and 333 Montreal Road, 334 Montfort
Street and 273 Ste. Anne Avenue, Vanier, Ottawa
File No: D01-01-17-0013, D02-02-17-0062, D07-12-17-0077
Dear Councillor Harder,
With specific reference to the Planning Committee
We are concerned about the Salvation Armys plan for a new,

multi-program facility located on Montreal Road in Vanier in-
tended to serve vulnerable individuals who are homeless in

Ottawa. We, along with the Coalition of Community Health
As a citizen, and prior to joining SHCHC, I
and Resource Centre members (attached), have had an op-
felt largely powerless to address the issue of portunity to review the Planning Rationale document that has
homelessness. But now, I am in a position where been submitted to the City of Ottawa for a proposed Official
I have a privileged opportunity to work from Plan Amendment, a Zoning By-law Amendment, and a Site
the inside, as a policy maker and a community Plan Control application.

leader, to effect meaningful change and carry the
conversation to my neighbours, fellow residents, Specifically, we are concerned that the proposed Salvation
and fellow elected officials. Army shelter development has not addressed adequately a
question that the Ontario Municipal Board highlighted in 2004
- Lynn Marchildon, Board Chair of the in an appeal in Toronto which stated: it is valid to question the
Sandy Hill Community Health Centre type of activity to be generated by the use, the intensity of that
activity, and whether the neighbourhood context and the use
are compatible.
Aside from the proposed 140 emergency shelter beds, it is our

understanding that all the residential, transitional, treatment
and stabilization programs (as separate and distinct zoning
variances) must meet the specific zoning criteria under the
permitted use. In this case, it would permit the use by the zon-
ing variance to include community centres, community health
and resource centres, emergency services, group homes and
rooming houses.
2 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

The current zoning of the property in question, which spe-
cifically relates to the below programs, is considered a R4E
[1340], or a Residential Fourth Density zone, pursuant to the
approved City By-law 2008-250, as amended. This zoning
would, in our opinion, restrict each of the below programs to a
maximum of 10 residents, unless there is an exception made
for each of these programs on their own merit. If an exception
is made by this Committee, it would have to be under Sec-
tion 125(d) of the By-law. This means that this property is not
subject to the requirement that one program be located a min-
imum distance from any other lot on which another program
is located. Further, the programs on an individual basis would
only be permitted to house a maximum of 30 residents.
20 beds for addiction stabilization (a pre-requisite to the

addiction program).
30 beds for addiction recovery (Anchorage program).
30 beds for the mens work program. It was inspiring to learn about all the great work
being done in our community to help those who

42 beds for a new flex program (to help homeless men
with developmental challenges). find themselves in the circumstance of poverty.
28 beds for residential life skills program. Collectively, supporting Housing First principles,
60 beds for medical care (to be run by Ottawa Inner City we will end chronic homelessness in Ottawa.
Health).
- Aynsley Morris, Board Vice-Chair of the
Sandy Hill Community Health Centre
From Sandy Hill Community Health Centres (SHCHC) read-
ing of the Salvation Armys application for a minor variance
from the Zoning By-law under Section 45 of the Planning Act,
we assert that the Planning Committee cannot grant this mi-
nor variance change based upon the failure of the applicant to
meet the four minor variance criteria or four tests:
The variance is minor; in this case, the development actu-
ally purposes 7 different uses for the property in question.
The variance is desirable for the appropriate development
or use of the property; in this case, the variance is signifi-
cantly different than all other allowed R4E [1340] devel-
opments within the Vanier community. For example, Billy
Buffet House of Welcome on Granville Street is permitted
under the current zoning use to only have a group home
designation, even though it operates as a mens addiction
stabilization program. Currently it has a permitted use of
10 beds.
PROPOSED SHELTER DEVELOPMENT IN VANIER 3 | Page

The general intent and purpose of the Zoning By-law is
maintained; in this case, the variance is in fact for 7 dis-
tinct and separate programs in a R4# [1340] site. From our
perspective, this does not meet the same standards as
other R4E [1340] designated group homes or treatment/
residential sites within Vanier.
The general intent and purpose of the Official Plan is main-
tained; in this case, the proposed development does not
align with the Main Street planning designation, which has
been applied consistently as the planning standard by the
City of Ottawa since 2008.
With specific reference to the City of Ottawas 10 Year

Housing and Homelessness Plan
At SHCHC, we take pride in our Vision to make the City of Ot-

tawa a more inclusive city. It is our firm belief that the only way
With funding from the Champlain Local Health to develop into the even greater city to which we aspire, is to
Integration Network it helped build SHCHCs ensure everybody is brought along; that no one is left behind,
capacity in the operationalization of our vision that everyone matters.
to end homelessness. This added capacity comes
from better coordination of resources, and the Hand in hand with those working on the front lines, we have,
gathering of many individuals, private and non- like the Salvation Army and other Alliance to End Homeless-

profit organizations, outside of our traditional ness members in Ottawa, long been champions for the cause
homeless serving groups, which are ready to
of alleviating chronic homelessness. Through our work, it has
engage in executing the City of Ottawas Plan to
become obvious to us, as it has to a growing numbers of peo-
End Homelessness.
ple because the data is so clear, that an approach known as
Housing First is the best way to move forward. In fact, through
- Kenneth Workun, Board Treasurer of the
Housing First, we believe that not only can we alleviate chron-
ic homelessness, we can eliminate it.
It is within this context that SHCHC wishes to comment on the

Salvation Armys plan for a new, multi-program facility located
at 333 Montreal Road and intended to serve 350 vulnerable
men who are homeless in Ottawa. At their core, we believe
the Salvation Army are doing their best and working towards
the same goals as we are (to help the homeless), but doing it
in a way that is inconsistent with the City of Ottawas 10-Year
Housing and Homelessness Plan. It is also known to be not
as effective as Housing First, and is associated with negative
consequences on which we would like to comment.

From our perspective, Housing First is a recovery-oriented
approach to ending homelessness that centers on quickly
moving people experiencing homelessness into independent
and permanent housing and then providing additional sup-
ports and services, as needed.
For over the past four years, SHCHC, in partnership with the
Canadian Mental Health Association, Ottawa Branch, with
funding from the Champlain LHIN, has been operating an
intensive case management Housing First Program for 119
chronically homeless individuals. A typical client is a man or
a woman who: has had at least one childhood adverse event
(abuse, severe poverty, attachment disorder), suffers from
depression, anxiety, schizophrenia or PTSD, has numerous
homelessness episodes with at least 2 years of concurrent

homelessness, drinks or uses drugs to the extent that it brings
social or legal problems, has been in jail at least 5 times and
is very institutionalized. At SHCHC we have opened the door to some very
real possibilities that can resolve homelessness in
Research has found that Housing First has a tremendous a compassionate and effective way. It will not only
success rate, so much so that many levels of Canadian gov- make our city a model for how planning, design

ernment have committed to funding Housing First strategies. and caring can dovetail with our humanity, but it
Recently, the federal government committed $2.1 billion over can also be a standard for how the right thing to
11 years toward its Homelessness Partnering Strategy, focus- do can often be the most cost-effective and ethical
thing to do.
ing on Housing First, and it has been reported that the soon-
to-be-announced National Housing Strategy will be based on
- David Gibson, Executive Director of the
the belief that housing is a right. In turn, many municipalities,
including the City of Ottawa, have committed to Housing First
in their 10-Year Housing and Homelessness Plan.
The worlds largest study on Housing First was conducted

by the Mental Health Commission of Canada. Through this
study, it was demonstrated that $21.73 was saved for every
$10 invested in Housing First measures for those with the
most complex needs. This study also shows that cost savings
ranged from $9,464 to $18,928/year for each person support-
ed through Housing First services (depending on level of acu-
ity and duration of homelessness) (Goering, 2014).

The ultimate goal of reducing homelessness is to ensure
that homelessness will no longer be a sustained, enduring
experience for anyone in our community. This includes the
adoption of a systems approach grounded in Housing First
philosophies, leading initially to the elimination of chronic and
episodic homelessness and the long-term goal of ensuring
that no one in Ottawa will experience homelessness on the
street or in an emergency shelter for longer than 30 days be-
fore they have access to appropriate, permanent housing and
the support needed to maintain it.
As seen from our Centres progress thus far with our Hous-
ing First program, the City of Ottawas 10-Year Plan to End
Homelessness can be within reach, but it will require unprec-
edented collaboration between all levels of government, the
non-profit sector, philanthropic bodies and the general com-

munity.
By measuring public life, those who are shaping
the way cities are made can create spaces that We must also ensure that Housing First participants have ac-
are more inclusive, healthy, and thriving. We cess to high quality clinical and non-clinical recovery oriented
think everyone counts in this work, and thus more supports. Development of these support teams are well un-

people need to be counting to reveal the vital derway, but we need to ensure that the capacity of these sup-
importance of people in public space, and make ports grow in step with the creation of new Housing First units.
the case that public life is for everyone and is
possible in every community.
We can end chronic and episodic homelessness. However, it
requires concerted focus and heavy lifting to create a Housing
- Brian Legris, Board Director of the
First systems approach while preserving existing necessary
emergency services. Only by doing this will we be able to re-
duce pressure on our existing homeless system, so that we
are better equipped to work on the causes of homelessness
and on prevention.
With growing research, it can be seen that homelessness

comes at a great social, economic and moral cost. We must
ask ourselves, can we afford to allow our most vulnerable
neighbours to languish in shelters, temporary lodging, in parks
and under bridges? Given that evidence-based, cost effective
and people-centred solutions exist, we must ask ourselves,
what is stopping us from making the change?

How the citizens of Ottawa choose to respond to homeless-
ness is fundamental to the future of our city. Should we main-
tain the status quo and rely solely on emergency services? Or
should we take the steps necessary to ensure a real solution
for people who have endured persistent, long-term homeless-
ness?
We believe that we can and should take the measures need-

ed to create a complete systems approach to homelessness,
to ensure that future generations of Ottawa can enjoy a com-
munity free of long-term, persistent homelessness and its
damaging effects.
We believe that the City Planning Committee, as well as City

Council, should not perpetuate a homelessness reduction

strategy that:
continues to make housing contingent upon readiness or
on compliance (for instance sobriety); The importance of early, sustained, and genuine
does not implement the conscientious, explicit and judi- engagement with local communities - residents,
cious use of current best evidence-based best practices in business owners, neighbourhood organizations,
and leaders - to understand their history,

making decisions;
continues to use shelters as more than a 30-day emergen- dynamics and unique needs, challenges and
cy stay for chronic homeless people; opportunities must be the minimum standard for
continues to perpetuate a system that can be character- any city planning decision.
ized as a band-aid solution and a disconnected system of
- Karen McMullen, Board Director of the
crisis response;
continues to warehouse people and create community
ghettos, which can define a community as opposed to in-
tegrating within a community;
continues to treat the problem instead of ending chronic
homelessness, which is far cheaper; and
continues to invest in a housing readiness industry instead
of investing in a permanent Housing First solution.

For these reasons, the Board of Directors of SHCHC believes
the Salvation Army proposed shelter build within the commu-
nity of Vanier should be limited to only emergency housing
with stay times of no longer than 30 days, and significantly
smaller in scale, to be consistent with the surrounding neigh-
bourhood. By reducing the size of the proposed shelter, the
success of integrating within a community has a far better
chance of occurring. In addition, we believe that the Salvation
Armys proposed shelter plans are well meaning, but outdat-
ed, and that evidence shows a much better/more efficient/
proven path to success. With a significant reduction in scope

of this project or, better yet, by redirecting its funding, the

Maybe its not always trying to fix something City of Ottawa could achieve much more success with simi-
broken. Maybe its about starting over and lar investments through the expansion of the City of Ottawas
creating something better. Housing First program.
- Edward Speicher, Board Vice-Chair of the

Sandy Hill Community Health Centre Respectfully submitted by
Lynn Marchildon,
Chair of the Board of Directors,
on behalf of SHCHC Board of Directors
CC: Councillor David Chernushenko, Capital Ward

Councillor Mathieu Fleury, Rideau-Vanier
Hon. Yasir Naqvi, MPP (Ottawa Centre)
Ms. Nathalie Des Rosiers, MPP (Ottawa-Vanier)
Ms. Mona Fortier, MP (Ottawa-Vanier)
Mr. Chad Rollins, Chair of Action Sandy Hill
Ms. Phyllis Odenbach Sutton and Mr. Don Stephenson
- Co-Chairs of Old Ottawa East Community Association
Mayor Jim Watson
Ms. Chantale LeClerc, CEO of Champlain LHIN

The graph illustrates the success rate of The SHCHC believes:
SHCHCs Housing First Program versus models Housing First represents a paradigm shift in
that are Treatment as Usual (TAU) and At Home/ how to address chronic homelessness;
Chez Soi (AHCS). At the end of the study, 81% Housing First is effective in ending chronic
of Housing First participants were housed for homelessness for a majority of people with
six months or more, versus 55% of people re- varying backgrounds, and in different con-
ceiving other services in the community. Of note texts;
is SHCHCs 76% rate of Housing First clients Housing First produces rapid improvements
over a 2-year time period, in comparison to TAU, in community functioning and quality of life;
which was less than 40%. there is qualitative evidence that Housing
First transforms lives once individuals find
themselves stably housed without any pre-
conditions to permanent housing;
Housing First yields other improvements in
areas, like the reduction of hospitalizations,
substance use problems, community inte-
gration, incarceration and recovery toward
stability.

Sequencing of outcomes involves first getting These shorter-term outcomes are followed
people engaged in the program, achieving by improvements in functioning, community
housing stability, getting set up with the right integration and quality of life.
health and social services.

Vision Every one in our community will have an equitable
opportunity for health and wellbeing.
Mission To lead and innovate in person-centred primary

health care and community wellbeing.

From: Adam D
To: Ramirez, Lucy
Subject: Question for the Planning Committee re: 333 Montreal Road,
Date: Wednesday, November 15, 2017 5:17:20 PM
Hey Lucy, hope things are well. If the committee is considering questions/points made via
email regarding the 333 Montreal Road proposal, I'd like to point out that the Transportation
Impact Assessment document submitted by the Salvation Army doesn't include any estimates
on increased bus usage from shelter residents going downtown via Route 12 to access services
(cited as a reason for the current site).
The Planning Committee has the right to define the scope of any Transit Impact Assessment.
http://documents.ottawa.ca/sites/documents.ottawa.ca/files/tia_guidelines_en.pdf
Quote:
NOTE: The City of Ottawa reserves the right to determine the scope of any TIA study based on its
professional judgement despite these guidelines.
Please ask council to consider asking the Salvation Army to broaden its Transportation Impact
Assessment, so that service provision can be expanded accordingly.
- Adam Drackley
14 November 2017
Planning Committee
City of Ottawa
110 Laurier Ave W, Ottawa ON
Re: Planning Committee, November 14, Agenda item 3:

Official Plan Amendment and Zoning Bylaw Amendment:
325, 327, and 333 Montreal Road, 334 Montfort Street and 273 Ste. Anne Ave
Dear Councillors:
Action Sandy Hill (ASH) is writing to express our support for the Vanier and Overbrook Community
Associations in opposing the Salvation Army shelter proposal for 333 Montreal Road.
As our colleagues from other community associations have pointed out; this proposal is inconsistent with
the City of Ottawas own homelessness strategy and Ten Year Plan, which identify Housing First as a
key priority and targets a 40% savings in the funding to emergency shelters by 2024. Housing and
supports are proven to have better outcomes for homeless individuals and to be less expensive.
Relocating an emergency shelter from one neighbourhood to another does not address the issues with
homelessness in our city, nor within the Salvation Armys outdated approach or effectiveness.
In addition, the proposed development is inconsistent with a traditional mainstreet and would undermine
efforts to revitalize this area of our City. The Montreal Road Rideau Street corridor is the gateway to
downtown and Parliament, and the backbone of Ward 12, connecting our various communities. Council
has, through the Montreal Road District Secondary Plan, expressed its goal to Foster development and
redevelopment which complements and improves upon the positive qualities of the existing character
of the District. A mega shelter as proposed would clearly undermine this objective.
We encourage you to oppose the proposed amendments to the official plan and zoning bylaw; and, we
encourage Council to redouble efforts to implement the Ten Year Plan, which commits the City of Ottawa
to a Housing First model.
Sincerely,
Chad Rollins, President

Action Sandy Hill
Cc: Mona Fortier, Member of Parliament

Nathalie des Rosiers, MPP
Mathieu Fleury, Councillor Ward 12
Lauren Touchant, President, Vanier Community Association
Rawlson King, President, Overbrook Community Association
Liz Bernstein, President, Lowertown Community Association
Concerns and Issues with the Salvations Armys proposed facility on Montreal Road
by Amanda Carver, Vanier Resident (version dated July 14, 2017)

Pursuant to the recent rezoning application for 333 Montreal Road submitted by the Salvation
Army, please consider the following reasons why that rezoning should not be granted.

The Salvation Army has proposed to build a modern building designed to address the needs of
their clientele. The largest portion of this programming includes housing services, both 140
emergency shelter beds and 210 supportive housing spaces. Of these 210 supportive housing
space, 38 are considered overflow if the 140 emergency shelter beds prove insufficient to
meet demand.

Affordable housing is a touchstone debate in every community. The Ministry of Municipal
Affairs and Housing (2011) states Housing is one of the most fundamental of human needs. It
is a key driver of shaping the economic and social sustainability of communities. People face
struggles at times and need to be treated with compassion and dignity when they do. They
deserve evidence-based services to help them overcome challenges and continue on to live
healthy, meaningful lives. Designing strategies for the types of programs that serve at-risk
clientele is a focus of academic institutions, provincial and municipal policy development, and a
key component of official city plans. When considering the type of social housing that should be
provided and the placement of social housing, it is responsible and critical that past successes in
social housing and academic findings be taken into consideration.

The healthy growth of local economies and the building of healthy, liveable, sustainable
communities is another critical focus when considering city planning. The Ministry of Municipal
Affairs and Housing (2011), while stating the importance of building social housing into the
community, also asserts that it must be relevant to local circumstances and support
economic prosperity.

A growing body of evidence suggests that healthy communities host a diversity of incomes.
Research demonstrates that the best outcomes for at-risk youth come from being placed in
economically diverse communities, where those youth have the opportunity for healthy role
modelling beyond just the family home. Further, the greatest predictor of mental health and
addiction relapse is lack of social supports outside a persons network of mental health
professionals. Economically diverse communities and small-scale social housing strategies
provide greater opportunity for those struggling with mental health challenges and addiction to
form new, healthy connections who can provide them with that social support.

An economically diverse community is also supported by a vibrant main street which hosts a
variety of businesses and attracts people both from within and outside the community. When
planning for healthy main streets, zoning amendments should therefore only be considered
when there is evidence that the zoning will encourage healthy business growth, thereby
creating employment opportunities in the community.

The main issue at hand in considering the rezoning of 333 Montreal Road to allow for major
construction and programming provided by the Salvation Army is balancing the need for social
housing against the express needs of the community. Further, the application for rezoning must
be examined in the context of the Provincial Policy Statement Under the Planning Act, the City
of Ottawa Official Plan, and the Montreal Road Secondary District Plan, as well as the current
and past findings of City of Ottawa staff, academics, and other evidence.

When deciding on the appropriateness of this rezoning, the following criteria or questions must
be answered:

1) Is the proposed Salvation Army facility at 333 Montreal Road the right model of social
housing that should be provided?

2) Is the proposed Salvation Army facility at 333 Montreal Road the correct location for a
major social housing project?

3) Does the proposed Salvation Army facility at 333 Montreal Road support business
growth for a redeveloped Montreal Road, Vaniers traditional mainstreet? Will it draw in
people from outside the district or attract tourists to the area?

4) Does the plan for the proposed Salvation Army facility at 333 Montreal Road meet
standards outlined by the provincial Planning Act, the City of Ottawa Official Plan, the
Provincial Policy Statement Building Strong Communities, and the Montreal Road
Secondary Development Plan?

If the answer to most of these questions is no, then this rezoning should not be granted by
the City of Ottawa and any rezoning approvals could subsequently be rejected by the Ontario
Municipal Board.

The answers to each of these questions is examined below through exploring research relevant
to each.


The struggle to define exactly what a sound housing model looks like has been ongoing. We
have decades of trial-and-error studies to draw from as we perfect social housing that meets
the needs of its inhabitants as well as the needs of host communities. To date, that research
has generally concluded that the most successful social housing programs are small and
integrate into their host communities. They are also designed in such a way so as to blend in
with their host communities and reduce stigmatization of the residents. Affordability and
Choice TODAY (ACT) (2009) states that, in drawing from examples of successful social housing
design and implementation in Montreal, Good design is important: avoid architectural style
that stigmatize social housing. This was done by using smaller units that ensure social housing
blends in effortlessly with the surrounding properties and preserves the privacy of the
occupants. This reduces stigma to the people living within the program. These elements form
the basis of what successful social housing looks like.

To tackle homelessness in cities, the most effective strategy currently known is Housing First
strategy. In this strategy, persons without permanent, stable, safe housing are given units of
their own without strings attached. This strategy is preferential to the use of emergency
shelters. The Housing First strategy is so successful that the City of Ottawa has pledged to
pursue it and reduce the need for emergency beds. And this is for very good reason. The body
of evidence surrounding housing-first strategies indicate that emergency shelters do not
combat homelessness or increase positive outcomes for users of emergency shelter beds.
Again, housing-first programs work best when small units are integrated into the city. Evidence
of this can be drawn from looking at cities such as New York and Vancouver as well as
numerous others.

The above paragraphs outline what successful social housing looks like small units blended
into the surrounding community. However, the model proposed by the Salvation Army for 333
Montreal Road looks quite different from best practices. First, it proposes a large social housing
component that does not blend in with the surrounding community, but instead places it in a
structure architecturally quite different from the neighbourhood surrounding it. This serves to
stigmatize residents and set them apart in a clear way from the rest of the neighbourhood,
reducing the likelihood of the residents forming community ties. Furthermore, the social
housing component is adjacent to 140 emergency shelter beds. This adds an additional level of
stigmatization for these clients, associating those clients with emergency bed clients.

In addition, if any of the residents in supportive housing are struggling to overcome addictions,
placing them beside emergency shelter beds will unduly expose them to individuals who are
actively addicted, as well as marijuana shops and drug dealers that are already abundant in
Vanier. In addition, this type of facility is likely to draw drug dealers into the community already
known to circulate around the Salvation Army in its current location (Ottawa Citizen, 2016). The
greatest predictor of addiction relapse is failing to change ones social context or any context
associated with drug use. Our bodies form cravings, and the desire to use drugs can be
triggered simply by looking at people and places associated with ones drug use. Studies of
veterans returning from Vietnam addicted to opiates highlight how simply changing ones
surroundings can dramatically quash addiction (Gupta, 2015).

Indeed, a large supportive housing project which fails to blend in with the surrounding
community and which fails to use best practices to insulate people from addiction relapse is not
the correct model to employ when serving our societys most vulnerable people. ACT (2011)
states that Affordable housing developments or mid-rise apartments that blend into the
neighbourhood can be a big selling point when trying to gain community acceptance. Sadly,
this is not the model proposed by the Salvation Army for 333 Montreal Road.

In summary, the evidence-based answer to the question Is the proposed Salvation Army
facility at 333 Montreal Road the right model of social housing that should be provided? is
No. This proposed model is not the right one for delivering supportive housing or tending to
the needs of homeless people as it stands in stark contradiction to the evidence and best
practices of successful supportive-housing models.

major social-housing project?

Social housing is a necessary component of every city and a major goal for the City of Ottawa
and the province of Ontario as a whole, as laid out both in the City of Ottawa Official Plan as
well as the Provincial Policy Statement Under the Planning Act. However, in order to assure its
success in meeting the needs and goals of social-housing clients, it must be strategically placed
and help to create healthy, safe, and sustainable communities.

Social housing is best placed where it allows for diverse income levels across the community.
Studies have shown that allowing for a blending of low- and high-income individuals and
households promotes positive outcomes for low-income people, particularly youth. Glister, as
cited in Kirk (2017), states that Its clear that low income kids do better on a variety of
outcomes when they have folks of a higher occupational status surrounding them. This
assertion is seconded by the provincial policy statement around affordable community housing,
which dictates that units should be small (50-60 units each) and spread amongst many
communities to create a diversity of incomes, suggesting this can be achieved via the creation of
carriage houses or small apartments in single dwellings, or via infill (Ministry of Municipal
Affairs and Social Development, 2011). In speaking about income-diverse neighbourhoods as
part of the Pittsburgh redevelopment plan, architects have stated that the more time the two
groups spend together, working shoulder to shoulder on common objectives, the more gaps
between advantaged and disadvantaged can close, and the more real change can take place
(Bannan, 2016).

As an example, the recent Regent Park redevelopment project embraces these principles.
Regent Park in Toronto struggled for many years with poverty, criminality, and other negative
outcomes. However, Regent Park has undergone a major renewal in recent years. This was
achieved by allowing private-sector companies to revitalize social housing by converting some
units traditionally reserved as social housing to market-value rentals, so long as they also
renovated and beautified the affordable housing units. This attracted people of higher incomes
to the neighbourhood. Mixing-income levels in the community dramatically changed the
character of the neighbourhood, making it safer for all community members, both high- and
low-income, and reduced childrens exposure to drug culture and prostitution. Learning from
the Regent Park redevelopment can be summed up as: there are no poor doors in the new
Regent Park. Instead of apartment building entryways segregated by income level, the
subsidized townhouses resemble the market-rate homes across the street, erasing the stigma
of poverty. A recreation center has opened down the block from a new arts building, both of
them free to use (Levin, 2016). In fact, this redevelopment was so successful, the City of
Toronto has endeavoured to use this model in several other areas of the city that are dense in
social housing.

Not only has Toronto found great success in placing social and affordable housing in small
locations amongst mixed-income neighbourhoods, but so too has Montreal, Vancouver and
Richmond hill (ACT, 2011), as has Pittsburgh (2009) and many, many more cities. In looking at
strategies for placing social housing, ACT (2011) outlines that Montreal found success by
including affordable housing in the building of new residential projects. In the example of
Vancouver, the centrepiece of the strategy is its emphasis on geography balance or the need
for city-wide distribution (ACT, 2011). Richmond Hill found success in intensifying affordable
housing in the suburbs (ACT, 2011). Findings on the best placement of social housing states that
municipalities with a comprehensive housing plandemonstrate that social housing,
supportive housing, and below market housing are planned in a variety of neighbourhoods in
ways that complement the broader quality of life goals for the city (Act, 2011).

If placing social housing in a variety of neighbourhoods across the city and in areas that allow
for mixing of incomes leads to the best outcomes for residents of social housing and the host
community, does it then make sense to place a monolithic social housing unit, hosting 140
emergency beds and 210 supportive housing beds, in the community of Vanier?

Vanier is a low-income community. The average household income in the area of Vanier
immediately surrounding the location of the proposed Salvation Army facility at 333 Montreal
Road is less than $46,000, versus nearly $81,000 in the area around the current Salvation Army
location on George Street (Multiple Listing Service, 2017). Indeed, nearly 30% of North Vanier
residents have earnings in the bottom 20% of the income distribution versus roughly 15% in the
City of Ottawa as a whole (Ottawa Neighbourhood Study, 2017). Additionally, North Vanier, a
community of 2 square kilometers, already hosts 546 social-housing units, versus the city-wide
neighbourhood average of 229. North Vanier is also home to domiciliary hostels in number
almost seven times that of the City of Ottawa neighbourhood average. Further, Ward 12
which contains Vanier hosts the majority of the City of Ottawas emergency shelters.

Placing the proposed Salvation Army facility in an area that is already struggling economically
and socially does not create a mixed-income community and does not serve to spread social
housing and shelters across the city as a whole. Instead, it creates greater poverty density in a
small area. Poverty-dense areas often breed criminality as well as drug culture and street
prostitution (US Department of Housing and Urban Development, 2011). No studies show that
intensification of poverty is an effective strategy at supporting a community economically or
socially. By lumping the poverty and services for people struggling with addiction and homeless
into one area creates what The Homeless Hub calls Zones of Desperation (The Homeless Hub,
2014). This idea was reinforced by a 2008 City of Ottawa staff report and recommendations on
zoning, which states that Some social studies suggest that the over concentration of social
services leads to fewer positive impacts for both residents as well as for those seeking the social
service, the opposite of what would otherwise be expected to be positive impacts of
efficiencies of scale, when like-services are provided in proximity. (City of Ottawa, 2008)

Placing the proposed Salvation Army facility in Vanier will condemn it to being only a zone of
desperation with little hope of becoming the mixed-income community it deserves to blossom
into. This is particularly the case as the proposed Salvation Army facility at 333 Montreal Road is
likely to become the focal point of the traditional main street. Further, given that Vanier
already struggles with criminal elements, placing vulnerable clients in this neighbourhood will
leave them open to be preyed upon by drug dealers and pimps that already abound in the
neighbourhood. As such, the placement of such a large structure in a struggling community will
hurt both the community of Vanier as well as the clientele of the Salvation Army.

Large, concentrated social housing and shelter projects should not be placed in low-income
communities. Instead, as learned from the Pittsburgh example, the city should have a target for
price-diversity mix across all of its communities and have strategies in place to assure that all
communities have this mix (Mainstreets Pittsburgh, 2009). Before considering any zoning
application, the City of Ottawa would be prudent to devise its own price-diversity mix strategy
across all of its communities to ensure positive outcomes for its citizens and the city as a whole.
The Ministry of Municipal Affairs and Housing (2011) asserts that communities that provide a
variety of housing types are more socially inclusive, are better equipped to meet changing
community needs, and are better able to establish closer ties between all segments of the
community. While Vanier already has a variety of social housing and services catering to
impoverished people, it does not have the right mix of income levels to make it the appropriate
choice for this project. Indeed, the proposed Salvation Army facility at 333 Montreal Road will
only lead to a greater concentration of poverty in an already low-income community.

In sum, when asking the question Is the proposed Salvation Army facility at 333 Montreal
Road the correct location for a major social housing project?, the evidence presented above
points to the answer being a clear and resounding No. Evidence suggests that the proposed
Salvation Army facility at 333 Montreal Road will only work to deepen poverty in Vanier and
will not support an improvement in outcomes for Salvation Army clients.

3) Does the proposed Salvation Army facility at 333 Montreal Road support business growth
for a redeveloped Montreal Road, Vaniers traditional mainstreet? Will it draw in people
from outside the district or attract tourists to the area?

In 2014, City of Ottawa staff presented the most recent iteration of the Montreal Road
Secondary Development Plan. The aim of this redevelopment plan was to revitalize the
traditional mainstreet of Vanier. In the redevelopment plan, City of Ottawa staff presented a
vision for a thriving thoroughfare which reflected the most recent research and evidence of
what strategies are most successful for revitalizing struggling downtown areas.

As Smart Growth America outlines in its 2015 document, (Re)Building Downtown: A
Guidebook for Revitalization, strategies that were most successful in revitalizing the traditional
mainstreets of struggling communities included:

1. Understand Your Community: In developing a plan for revitalizing a mainstreet, it is
important for the community to ask questions such as What do you need that you dont
have?, What does your community want to become?, What is the vision for your
town?, What kind of place do you want to pass on to your grandchildren?, and What is
your unique potential moving forward? In order to answer these questions, Smart Growth
America (2015) states that the community should conduct a market study. It should also
determine goals and set a plan to achieve them. Once these have been established, the
community must then decide the type of retail options that it would like to see on its
mainstreet. Smart Growth America (2015) suggests considering a mix of options, including
entertainment, specialty retail, and local-serving retail. A mix of retail types can give a
neighbourhood critical mass, identity, and a reason for people to live there and visit.
Beyond just retail, a mix of businesses should be considered, including both export
businesses that sell goods and services to customers outside of the community and
regional-serving companies.

In the context of Montreal Road, this process of having the local culture reflected in the
revitalized traditional mainstreet has already begun. For instance, the Quarter Vanier
Business Improvement Association (QVBIA) has put forth a vision for reflecting the
communitys Franco-Ontarian roots and large Franco-Ontarian population by rebranding
Montreal Road as the French quarter, reinforced by the 2014 Montreal Road Secondary
District Plan. One wonders how a large, English, Christian-based organization such as the
proposed Salvation Army facility at 333 Montreal Road fits into a main street of a
traditionally predominantly Catholic French quarter.

2. Create an Attractive and Walkable Place: According to Smart Growth America (2015),
without a baseline atmosphere of safety, all other downtown amenities or services will
struggle. That is to say that a place must not only be safe objectively, but also feel safe
subjectively. Cleanliness is closely related, as a tidy and well-managed space is generally
associated with one that is free of crime and associated dangers.

The lived experience of the Salvation Army facility on George Street provides clear evidence
that a large emergency shelter does little to support safety objectively or a subjective
feeling of safety, with this location being among the top five locations to which Ottawa
Police are called (Trinh, 2017). Business employees next to its current location state Its
traumatic and theres not a day goes by where were not harassed, said Janet Robertson,
director of human resources [at a business adjacent to the Salvation Army] who is
responsible for health and safety. Everybody has stories of what theyve witnessed. Its
pretty disturbing stuff. That includes intravenous drug use, fights and people peeing on
cars in the parking lot. (Robertson, 2016, as cited in Willing 2016). Clearly, the placement
of a large shelter that does not blend with the mainstreet significantly detracts from it
feeling crime-free and well-managed. As such, the proposed Salvation Army facility at 333
Montreal Road can be expected to harm business investment and economic development in
the community.

3. Diversify Economic Uses: Examples of diverse economic uses of a main street include
visitors centres, pop-up shops, interim use of vacant lots, farmers markets, food trucks, art
installations, outdoor kiosks, etc.

While the Salvation Army does much to increase a density of social services within the area,
it does little to create diverse economic uses. It has already been discussed above that
creating a density of social services is not associated with positive economic and social
outcomes. In this sense, allowing the proposed Salvation Army facility at 333 Montreal Road
to be built in Vanier will likely halt or even reverse business investment and diversification
along Montreal Road.

4. Other Smart Growth America suggestions for revitalizing struggling mainstreets include (4)
Plan for Equity, (5) Improve Government Regulations and Processes, (6) Finance Projects
and (7) Establish Ongoing Place Management.

In summary, Smart Growth America (2015) asserts that downtowns will only grow with
strategic planning, which reflects the culture and aspirations of the community, is an attractive
and walkable place, and reflects diverse economic uses. These principals are reflected in both
the City of Ottawa Official Plan and the Montreal Road Secondary Development Plan. However,
all of these guiding principles for a successful mainstreet redevelopment are violated by the
Salvation Armys proposed facility for 333 Montreal Road, as a lack of community consultations
has demonstrated that the Salvation Army has no interest in understanding the community, the
evidenced increase in criminality associated with emergency shelters will harm the
attractiveness and walkability of Vaniers traditional mainstreet, and the significant size of the
facility will only further increase the concentration of social services offered along Montreal
Road and reduce the diverse economic uses.

Currently, Vanier only has the Montreal Road Secondary District Plan. However, the community
lacks any sort of Community Development Plan, despite recommendations for one in the
Ontario Planning Act and within the City of Ottawa Official Plan for collaborative Community
Development Strategies. This would be a useful first step for the City of Ottawa to take before
considering any rezoning applications along Montreal Road.

Looking at examples beyond Canadas borders, the revitalization of the City of Pittsburghs
mainstreet is held up a shining example of successful downtown redevelopment (Mainstreets
Pittsburgh, 2009). In order to undertake this successful revitalization, it was necessary to:

1. Develop a sense of community and unified purpose among participating business districts,
while encouraging opportunities for self-determination and diversified revenue (creating a
dense, service-laden area stands in stark contradiction to this diversification principle);

2. Protect the physical environment of Pittsburghs neighborhood business districts through
both historic preservation and new development;

3. Enhance the economic rejuvenation of both commerce and property;

4. Promote the unique identity and character of neighborhood business districts while
improving the overall perception of the city; and

5. Advocate for citywide policies and programs that strengthen Pittsburghs neighborhood
business districts.

If the proposed zoning application from the Salvation Army for 333 Montreal Road is approved,
it will become a key feature of a developing Montreal Road. Sadly, the evidence presented here
shows that it will not act as an anchor institution which will attract shoppers from outside the
community and has little to offer Vaniers current residents. The Salvation Army claims that
70% of its clientele currently come from the neighbourhood already. However, their application
shows that 70% of their clients come from Ward 12, which includes the Byward Market (which
is home to several large shelters), Lowertown, and Sandy Hill (the potential future site of
supervised injection services from which emergency shelter residents could greatly benefit), as
well as Vanier. Indeed, the Salvation Army has produced no evidence to suggest that the bulk of
their clientele can be found in Vanier as opposed to the Byward Market, Lowertown, and Sandy
Hill, all of which are closer to existing emergency shelters and support services. In this sense,
the proposed building does not meet the needs of Vanier residents, nearly half of which are
families with children, or their existing clientele.

While the Salvation Army states in Public Relations releases that it will serve as a community
hub, one cannot develop community hubs without beginning with community consultation.
Vanier already has a strong network of community members and service providers working to
create a community hub. Had the Salvation Army consulted with the community, this would be
known to them. Given past precedence, one wonders how the Salvation Army could possibly
become a community hub, even with a purpose-built building. Mathieu Fleury, City Councillor
to both Vanier and the Byward Market, stated in 2016 "The problem is that we can't turn
around to any community in our city and say, 'Hey, Salvation Army will build a new purpose-
built shelter, something that looks like the YMCA downtown where you'll have public access to
a pool, amenity space and so on,' because how can I ... say they're good operators of their
current shelter? I can't say that today. There's a lot of work and public confidence that needs to
be built up." This statement arose after a stabbing at the George Street Salvation Army
emergency shelter in the Byward Market led to an Ottawa Police Services safety audit, after
which the Salvation Army did not put all of the recommended safety measures in place, as
suggested, but only the easy ones (Fleury, 2016, as cited in Willing, 2016).

The Salvation Army asserts that their proposed $50 million facility at 333 Montreal Road and an
influx of staff will help to draw business into the community. However, Montreal Road is
littered already with social services, and this has not led to an influx of business investment.
Take, for example, the stunning, $14 million redesign of the Wabano Centre for Aboriginal
Health by the renowned architect Douglas Cardinal. While the Wabano Centre offers a
gorgeous architectural draw, a host of fantastic programs, and a large complement of staff, it
has done little to boost economic growth in the community. Sadly, its closest commercial
neighbours are illegal marijuana operations.

Concentrating social services in Vanier has not been a strategy that has led to economic
redevelopment. In comparison, Beechwood avenue is only 2 kilometers away. It lacks social
services along the corridor, but has thriving commerce, hosting specialty and shops and
boutiques that serve the needs of residents as well as draw in visitors from outside the
Vanier/New Edinburgh neighbourhoods. While the Salvation Army asserts that it will be part of
the economic draw, the lived experience of Montreal Road with its concentration of social
services proves contrary evidence to this unfounded assertion. Indeed, this lived experience is
supported by the overwhelming body of research in the area. In relation to tourist draw, it goes
without saying that this building will offer little of interest to tourists.

In fact, the Salvation Army, other than built form, does not keep in line with a strong economic
redevelopment strategy for a struggling downtown. This was realized in 2008 when City of
Ottawa staff recommended that The use [of shelters] is not to be permitted in the Mainstreets
designation in keeping with the Official Plan. Therefore, the use will not be permitted in the
Traditional Mainstreet and Arterial Mainstreet Zones under the existing former Ottawa and
Vanier Zoning By-laws, those streets that are zoned the equivalent of the proposed TM or AM
locations in the Comprehensive Zoning By-law will not be permitted to have a special needs
house or shelter abutting Beechwood Avenue, Montreal Road and McArthur Avenue, Rideau
and Dalhousie Streets (emphasis added) (City of Ottawa, 2008).

In summary, the answer to the questions Does the proposed Salvation Army facility at 333
Montreal Road support business growth for a redeveloped Montreal Road, Vaniers
traditional mainstreet? and Will it draw in people from outside the district or attract tourists
to the area? is a resounding No. All of the evidence from the experiences of other
jurisdictions, as well as previous conclusions reached by City of Ottawa staff, make clear that
concentrating social services in one area is detrimental to economic development and the
revitalization of mainstreets. As a result, approving the rezoning application of the proposed
Salvation Army facility at 333 Montreal Road would stand in stark contradiction the province
of Ontarios 2014 Provincial Policy Statement Under the Planning Act, the City of Ottawa
Official Plan, the 2014 Montreal Road Secondary Development Plan, the 2008 City of Ottawa
staff report entitled Report to Planning and Environment Committee re: Rideau-Vanier Ward
12 Interim Control By-Law Study and Zoning By-law Amendment, and the overwhelming body
of evidence on this issue.

4. Does the proposed Salvation Army facility at 333 Montreal Road meet the requirements
outlined by the provincial Planning Act, the City of Ottawa Official Plan, and the
Provincial Policy Statement Building Strong Communities?

According to the research previously discussed, if Montreal Road is to grow, it requires a
strategic plan based on best practices for revitalizing a downtown area which conform to
official plans and policies. The following sections outline areas of the Provincial Planning Act,
the City of Ottawa Official Plan, and the Provincial Policy Statement Building Strong
Communities pertinent to the proposed rezoning of 333 Montreal Road.

Smart Growth America (2015) asserts that downtowns will only grow with strategic planning,
which Vanier lacks despite recommendations to do so in the provincial Planning Act and within
the Official City of Ottawa Plan for Community Development Strategies. Montreal Road does
have a Secondary Redevelopment Plan, though no official Community Improvement Plan has
been created a plan which it needs in order to grow into a truly mixed-income community.

The Provincial Policy Statement Under the Planning Act (2014) states Strong communities, a
clean and healthy environment and a strong economy are inextricably linked. Long-term
prosperity, human and environmental health and social well-being should take precedence over
short-term considerations. As was discussed previously in the context of mainstreets, the long-
term prosperity of a struggling community is fostered by keeping social services in an
appropriate size and density within the community and by drawing in a variety of land uses to
draw people into the community and make it a welcoming, attractive place.

Taking again from the Regent Park example, Levin (2016) states that New civic amenities like
the pool are attracting Torontonians who would never have dared enter Regent Park just a few
years ago. It seemed like the best-kept secret,This is an example of community revitalization
done well. Sadly, this is not the vision that the Salvation Army or the City of Ottawa seems to
share for Vanier, as its planned service offering does not include children, youth, or families
that are currently resident in the community in greater proportions and in greater need than
those currently resident in the Byward Market (based on data compiled by the Multiple Listing
Service).

This is not the first time that the implications of a facility of this nature have been examined by
the City of Ottawa in the context of Ward 12 the City of Ottawa ward which contains Vanier.
In 2008, City of Ottawa staff produced a study on the potential impacts of introducing an
additional emergency shelter in Ward 12. In the 2008 study, City of Ottawa staff concluded that
there is a concern with lumping shelters, services, drop in centres and community centres
densely together. The study cited that preventing the negative externalities can be mitigated by
zoning land use to protect communities. For this reason, the 2008 City of Ottawa staff report
recommended keeping shelters off main road.

More specifically, the 2014 Provincial Policy Statement Under the Planning Act, to which the
City of Ottawa Official Plan must conform, states:

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;

As discussed above, the Salvation Army facility proposed for 333 Montreal Road will
do little to foster economic growth in the community, as stated in the 2008 City of
Ottawa staff report previously cited.

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;

The 2008 City of Ottawa staff study noted that the primary concerns with
concentrations of large shelters were the rise in drug trafficking, drug abuse and
illegal acts occurring near to the shelters, and that the origination of these issues
was perceived to be the institutional use itself. Shelter use is non-residential in
nature, and is institutional as a use. As such, it was considered to be an
intensification in terms of land use impacts that was incompatible with local
commercial uses. Creating something of this scope and mass in a traditional
mainstreet does not sustain the financial wellbeing of the mainstreet zone.

This is the crux of the issue of the placement of a structure and program of the size
proposed by the Salvation Army in the community. Undoubtedly, the City of Ottawa
needs housing and emergency shelters. However, the burden of proof rests on the
Salvation Army to demonstrate that this project is of an appropriate size and scope
to promote a range and mix of housing, employment and institutional uses. As
discussed above, the 2008 City of Ottawa staff report cites research from
sociologists that an overconcentration of services has adverse effects on people and
communities rather than positive. Does the placement of a 140-emergency shelter
coupled with 210 social housing beds work against an overconcentration of services
and create an appropriate range and mix of uses and needs? Of course not.
Montreal road is already saturated with social services. Adding another massive
institutional facility will reduce the range of uses along Montreal Road, leading to
the adverse impacts on Vaniers traditional mainstreet described in the 2008 City of
Ottawa staff report.

The argument against the concentration of social services in low-income
communities can be summed up by Glister (2017, as cited in Kirk 2017) in stating
affordable housing is targeted to poor neighbourhoods in the mistaken belief that
these areas have the greatest need. Yes, but do you want to lock people into the
geography. I say no, we have to change the targeting. Further, Levy et al. (2010)
found that mixed-income communities created improvements of mental health,
physical health, and employment outcomes for low-income residents of those
communities. It also promoted pro-social behaviour, as well as positive health and
educational outcomes for children.

These lessons a clearly relevant for Vanier, the community surrounding the
proposed Salvation Army facility at 333 Montreal Road. As per the Ottawa
Neighbourhood Study, Vanier, as a neighbourhood, already hosts 63.7 social housing
spaces per 1000 people, as opposed to the city wide average of 24.4. Indeed, this
small geographic area already is home to a total of 546 social housing units, as
compared to the city wide average of 229.4 per neighbourhood. As the evidence
shows, adding an additional 350 emergency shelter beds and supportive-housing
spaces will negatively impact the already low-income community both economically
and socially.

The Salvation Army project proposal for rezoning 333 Montreal Road states:

The proposed development of a new shelter facility to address homelessness in the
City of Ottawa is a critical public service facility within the City. It also provides
important housing options for some of the most vulnerable members of the
community. The subject property is located along a Traditional Mainstreet and
transit priority corridor within the City of Ottawa, providing transit and active
transportation options for clients and residents. The proposed development is
consistent with the PPS.

While their assertion that this proposed shelter is a critical public service, the
submission omits the burden of proof that it is of size and scale appropriate to
create a range of services and activities. The disputed point is not whether or not the
services are needed, but if this is the appropriate model, size and location given the
2014 Provincial Policy Statement Under the Planning Act. The answer is a clear No,
that this Salvation Armys proposal 333 Montreal Road is not in keeping with the
Provincial Policy Statement. Intensifying poverty by creating an institution of an
exceptionally large scale in a service-dense area, rather than promoting a diversity of
incomes in the community is not a strategy that looks into the long-term needs of
the community members as a whole.

c) avoiding development and land use patterns which may cause environmental or
public health and safety concerns;

As cited above, an overconcentration of social services and dense urban poverty
largely leads to communities that host crime and criminal elements (US Department
of Housing and Urban Development, 2009). The 2008 City of Ottawa staff report
notes that a concentration of shelters and services draws drug trafficking to the
streets adjacent to the shelters. Particularly of note is that Glenn Van Gulik, Area
Director, Public Relations and Development for the Salvation Army, has concurred
that the Salvation Army will not be offering harm reduction programs at its
proposed facility at 333 Montreal Road, meaning the Salvation Army will actively be
hosting drug users but provide no safe way of disposing of needles, allowing for drug
use and purchasing onsite or exchanging needles to protect the health of their
clientele and the broader community. Mr. Van Gulik said that, for these services, the
Salvation Army will refer clients to community partners. By inviting high-risk,
vulnerable people into their proposed facility and not fully providing for their needs
or mitigating the negative spillover of behaviours associated with drug use to the
broader community, as an institution, the Salvation Army is not taking responsibility
for the safety of these clients and the community at large. Councillor Fleury (2016)
has been on record noting that the Salvation Army has done little in the past to put
full safety measures into effect and poorly run their organizations. He attributes this
to the management being conducted at arms length from Toronto rather than
locally in Ottawa, creating delays in ensuring that repairs and other safety measures
are undertaken in a timely fashion. There is no reason to expect that this poor track
record in regard to client and community safety will change in the future, regardless
of the location and nature of the Salvation Army emergency shelter.

The proposed Salvation Army facility at 333 Montreal Road would also intensify
emergency and supportive housing in a compact form. However, not so in a way
that mitigates harm to the broader public. A 2008 City of Ottawa staff report found
that it is and the close concentration of these of various social services and their
uses that are of greatest concern to the community. Specifically, there is great
concern over the rise in drug trafficking, drug abuse, and illegal acts that occur near
shelters. In contrast, Levy et al (2010) found in their meta-analysis of research
regarding mixed-income communities that mixed-income communities led to
decreased incidence of crime in those neighbourhoods. Concentrating poverty, then,
rather than promoting mixed-income communities, runs contrary to evidence, and is
likely to only increased criminality by creating a zone of desperation. Importantly,
the neighbourhood around the site of the proposed Salvation Army facility in Vanier
has a much higher concentration of households with children than does the current
Salvation Army shelter location in the Byward Market, putting this vulnerable group
at risk.

The 2014 Provincial Policy Statement goes on to state:

1.1.2 Sufficient land shall be made available to accommodate an appropriate range and mix of
land uses to meet projected needs for a time horizon of up to 20 years. However, where an
alternate time period has been established for specific areas of the Province as a result of a
provincial planning exercise or a provincial plan, that time frame may be used for municipalities
within the area.

Under the 2014 Provincial Policy Statement under the Planning Act, the range and
mix of residential use is important. The scope and scale of the proposed Salvation
Army facility at 333 Montreal Road will create an overconcentration of a particular
activitynamely, social services and is therefore not in keeping with the
residential area or the traditional mainstreet designation. The intensity of the
program is such that it makes diversification of uses across the mainstreet difficult, if
not impossible.

The 2014 Provincial Policy Statement continues:

1.1.3.4 Appropriate development standards should be promoted which facilitate intensification,
redevelopment and compact form, while avoiding or mitigating risks to public health and safety.

See the discussion under section 1.1.1(c) for analysis on why the existing
development standards in the 2008 City of Ottawa staff report and City of Ottawa
Official Plan avoid or mitigate risks to public health and safety. Approving the
rezoning application by the Salvation Army in regard to the proposed facility at 333
Montreal Road with contradict these pre-existing policies and recommendations.

Section 1.7: Long-Term Economic Prosperity of the 2014 Provincial Policy Statement also
dictates that economic prosperity must also be respected, as outlined by the following sections:

1.7.1 Long-term economic prosperity should be supported by:

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

c) maintaining and, where possible, enhancing the vitality and viability of
downtowns and mainstreets;

g) providing opportunities for sustainable tourism development;

With reference to previously cited evidence and City of Ottawa policies and analysis
regarding the revitalization of mainstreets and treatment of traditional mainstreets,
the proposed Salvation Army facility at 333 Montreal Road stands in stark contrast
with provincial Policy Statement Section 1.7: Long-term Economic Prosperity. Indeed,
building a large multi-story housing complex which focuses on social services and
providing emergency shelter is inappropriate for the economic development of a
traditional mainstreet, as evidenced by the 2014 Provincial Policy Statement Under
the Planning Act, the City of Ottawa Official Plan, and the 2008 City of Ottawa staff
report. In contrast, rejecting the Salvation Armys application to place a shelter on
Montreal Road zoned a traditional mainstreet would allow Montreal Road to
continue the revitalization that is so badly needed.

Notably, the project proposal of the Salvation Army does not speak to how it sees
the project in fitting with Section 1.7 of the 2014 Provincial Policy Statement. For
further discussion of what is required for economic prosperity on a main street, see
the discussion of question 3 above.

Several sections of the City of Ottawa Official Plan also pertain to the placement of a large
project on a traditional mainstreet. Section 1.3: A Caring and Inclusive City of the City of Ottawa
Official Plan asserts that it is designed to promote a city of distinct, liveable communities by
creating:

A Sense of Community All communities look right and feel right. They have an identity
that defines them and fosters pride and belonging among residents

Complete Communities Ottawas communities have a variety of housing choices,
employment, parks and a wide range of services and facilities accessible by walking,
cycling and transit.

Easy Mobility Communities are easy to get around and barrier-free for the disabled.
There are wide sidewalks and recreational pathways; there is frequent, accessible
transit service.

Beauty Ottawas communities are pleasing to the eye. They are interesting, clean, and
benefit from an abundance of trees

The concern of Vanier residents is that they are not proud of being seen as a service-centered
community and feel the reason for this sentiment stems from the socioeconomic status of the
residents. The community feels as though they are being stereotyped by Jim Watson promoting
this as an ideal location for this building based on the abundance of social services that already
exist in the community. Mayor Jim Watsons assertion the Vanier is an ideal location for the
proposed Salvation Army facility due to its abundance of social services runs contrary to the
vision that the community has for itself as being a revitalized neighbourhood with a diverse
downtown which offers many types of businesses and the cultural diversity of the community.
Centering Montreal Road Vaniers traditional mainstreet on social services takes away from
the feeling of Vanier being a complete community.

This social-service focused style mainstreet also limits employment opportunities for those with
no post-secondary education. Social-service sector jobs largely require some post-secondary
education. As per the Ottawa Neighbourhood Study, Vanier North has a higher share of
residents than the City of Ottawa average who have not completed high school or have only a
high school education (Ottawa Neighbourhood Study, 2017). This number is even more severe
in Vanier South. Without centering a downtown revitalization strategy on retail and services,
opportunities for employment within ones own community are limited.

With the current commercial enterprises centered along Montreal Road being predominantly
marijuana shops, pay-day loan companies, and pawn shops, as well as a significant
concentration of social services, the residents of Vanier feel strongly stigmatized. They desire
more for their community and a more inclusive and diversified strategy that allows for greater
employment opportunities suitable for those without post-secondary education.

Further, according to Section 1.3: A Caring and Inclusive City of the City of Ottawa Official Plan:

Housing policies support increased availability of affordable housing and address the
integration of a range of housing into all neighbourhoods to meet the varied needs of all
household types including families, seniors and young people

Safety and security is addressed by policies on community design, floodplains,
contaminated sites and unstable slopes, as well as a safe transportation system.

Community design plans will be prepared for growth areas of the city using a
collaborative planning approach that directly involves residents and other stakeholders

A better-balanced transportation system, which puts more emphasis on transit, cycling
and pedestrian facilities, and improves mobility and access for all citizens, including
those who do not own a car.

The proposed Salvation Army project does not allow for the residential components to
integrate into the community. Rather, it stands alone and separates it from the community
rather than using a smaller scale that allows units to blend in and reduce stigmatizing its
inhabitants. The program also focuses on providing housing largely for men, rather than women
and families. The Ottawa Neighbourhood Study shows that Vanier has a much higher
concentration of single-parent households headed by women than the average in the City of
Ottawa as a whole. As such, the proposed Salvation Army facility at 333 Montreal Road does
not appreciate or take their needs into account in designing its programming.

Transportation issues have also been underestimated in this current project proposal. While
the project proposal did undergo a traffic study, it omitted to look into public transit stressors
in the context of the Montreal Road Secondary Development Plan. Indeed, Vanier was omitted
from the LRT plan. Therefore, Montreal Road is only serviced by one bus route (the #12). Many
of the supportive housing clients will be heavily reliant on the #12 to connect them with the
rest of the City of Ottawa for employment and other reasons. Simply adding more buses on this
route will create significant congestion as the lane reduction will clog Montreal Road, which will
already be stressed by 200 additional employees/volunteers coming into the area. Even if one
assumes the shelter residents will not use public transport or cars, there will still be 550 more
bodies (staff, volunteers, and residents combined) moving in and out of the neighbourhood on
a daily basis than is currently the case.

The Salvation Army project proposal, in relation to this section of the City of Ottawa Official
Plan, states:

This proposed development contributes to the continued creation of a liveable
community in the City of Ottawa by providing affordable housing to those most in need,
and by working with the City of Ottawa and others in support of the Housing First model
by helping to find people appropriate housing as quickly as possible and ensuring that
the appropriate supports are put in place for continued success. The range of housing
available at the facility will offer options prior to helping clients find permanent housing.

Their assertion speaks to offering a range of housing, though not to creating a diversity of
services for shopping, playing, etc. They ignore the diversity of function requirement beyond a
diversity of housing. The project proposal ignores time and again this need within a healthy,
liveable community. While their assertion of providing a range and need of housing is correct,
they do little to explain how and why a dense model of this size is the best fit for the needs of
their clients given the importance of social context to recovery from addiction and support for
mental health.

Regarding Shelter Accommodation, the City of Ottawa Official Plan states:

Where the zoning by-law permits a dwelling in areas designated General Urban Area,
Developing Community, Central Area, Mixed-Use Centre, and Village, the by-law will also
permit shelter accommodation. Shelter accommodation shall be designed in a manner
compatible with the general area. The zoning by-law may include provisions to regulate
the size and location of this use. [Amendment #76, August 04, 2010]

As cited above, the 2008 City of Ottawa staff report indicates that a mainstreet location is not
appropriate for large institutional use such as that proposed by the Salvation Army for 333
Montreal Road. As was also previously cited, research shows that clustering social services
together is not appropriate, as it leads to zones of desperation which do not allow for long-
term economic prosperity. Nor are institutions that benefit the community created without the
consultation of the community. Indeed, community consultations or even a cursory analysis of
the demographics of Vanier would have revealed that it is community of low-income
households with children that will not in any way benefit for the services to be offered at the
proposed Salvation Army facility at 333 Montreal Road. In fact, the type of institutional use
proposed by the Salvation Army for 333 Montreal Road puts those residents at significant risk,
as evidenced by the 2008 City of Ottawa staff report. Finally, placing this institution on
Montreal Road does not fit within the zoning guidelines of the City of Ottawa Official Plan.

In regard to Mainstreets, the City of Ottawa Official Plan states:

The common feature of all Mainstreets is their function as a mixed-use corridor with the
ability to provide a wide range of goods and services for neighbouring communities and
beyond. Because a high percentage of housing, employment, retail and civic functions lie
within easy reach of one another, the vitality of the area is sustained. It is the intent of
this Plan that intensification continue to focus on nodes and corridors (Mixed-Use
Centres and Mainstreets) to support the public transit system, to create an essential
community focus, to allow for minimum travel and to minimize disruption in existing
stable neighbourhoods. (emphasis added)

Adding to the concentration of existing social services along a traditional mainstreet corridor
does not create mixed-use strip, but a single purpose community. Additionally, it does not
create a variety of retail functions either. Therefore, the proposed Salvation Army facility at 333
Montreal Road does not sit within the frameworks set out by the City of Ottawa Official Plan in
regard to mainstreet designs.

The Salvation Army Project proposal envisions itself in conformity with the City of Ottawa
Official Plan by seeing it in step with Section 2.2. The Salvation Army Project proposal states:

The proposed development will intensify an underutilized property within the urban area
and in a target area identified for intensification. Although not the standard form of
residential intensification, the proposed facility provides an important range of housing
options and associated supports and helps achieve the goal of intensification within the
urban area. The development is considered a more intensive use of the property than the
existing small hotel and large surface parking area.

The project plan glosses over that this intensification is aimed directly at residential
intensification and that their proposal is primarily institutional in nature. This point is critical
because it creates an institutional land use which is non-residential and of an intensity in
terms of land use impacts that it is incompatible with local commercial uses. The 2008 City of
Ottawa staff report highlighted that this particular institutional use led to increases in drug
trafficking, drug abuse and illegal acts and proposed that appropriate zoning of size and
location of shelters could mitigate this issue. Again, the project proposal is not in keeping with
Section 2.2 of the City of Ottawa Official Plan in regard to creating residential density.

Community Design is addressed further in the City Plan in section 2.5 Building Liveable
Communities which states:

This Plan proposes that Ottawas communities be built on the basics: good housing,
employment, ample greenspace, a sense of history and culture. But it also proposes to
create more liveable communities by focusing more on community design and by
engaging in collaborative community building, particularly in and around the Mixed-Use
Centres and Mainstreets that have a great potential for growth. A focus on community
design draws attention to how buildings and the spaces around them look and function
in their setting. Since the best urban design is informed by a solid appreciation of the
place being built, the people in it, and the community around it, this approach opens the
door to creativity and dialogue. [Amendment 28, July 13, 2005] (emphasis added)

In contrast to the City of Ottawa Official Plan, the plan for the proposed Salvation Army facility
at 333 Montreal Road was created largely in secrecy. The Salvation Army has yet to announce
any public, open sessions regarding feedback for its programs and projects. In contrast, the
Regent Park redevelopment project yielded its most stunning results when its civic centers
were created in consultation with community feedback. Sadly, the plan for this Salvation Army
Centre runs contrary to the principal of collaborative community building as outlined in the City
of Ottawa Official Plan.

In its proposal, the Salvation Army speaks extensively about its designs form fitting with design
principles that fit with this principal in the City of Ottawa Official Plan. However, in their
discussion of safety, they focus on how their design creates safety within the building, but not
how risks to same safety will be mitigated in the surrounding neighbourhood.

The proposal further states that this location could easily be considered part of the urban area
given a limited frontage of the property rests on Montreal road. However, this ignores that this
frontal area will be the main access point for non-staff members of the program and therefore
could not be considered part of the urban area, as the bulk of the pedestrian traffic will be
concentrated on the mainstreet.

The proposed plan submitted by the Salvation Army for 333 Montreal Road speaks further to
5.7 Comprehensive Zoning By-law 2008-250 in addressing the density and location of shelters.
It argues that moving this shelter away from the market moves to decentralize the shelter and
does not cause an issue of shelter densities given a limited number of shelter in Vanier.
However, it ignores that concentration of social housing programs as well as the proximity of
the shelter to a halfway house operated by John Howard. While it does not increase the density
of shelters per say, it does not keep within principles of community diversification of uses.

Taking these arguments together and referencing the evidence presented previously in other
sections of this document, approval of the rezoning of the proposed Salvation Army facility
would contradict the 2014 Provincial Policy Statement Under the Planning Act and the City of
Ottawa Official Plan.

Conclusion

This paper began by asking the following questions to be considered when deciding to allow for
rezoning of 333 Montreal road to allow for the Salvation Armys proposed program:


major social housing project?

3) Does the proposed Salvation Army facility at 333 Montreal Road support business
growth for a redeveloped Montreal Road, Vaniers traditional mainstreet? Will it draw in
people from outside the district or attract tourists to the area?

4) Does the plan for the proposed Salvation Army facility at 333 Montreal Road meet
standards outlined by the provincial Planning Act, the City of Ottawa Official Plan, the
Provincial Policy Statement Building Strong Communities, and the Montreal Road
Secondary Development Plan?

This paper has answered all of these questions with a resounding No. Therefore, this
rezoning should not be granted by the City of Ottawa and any rezoning approvals could
subsequently be rejected by the Ontario Municipal Board.

The Vanier community reaction in opposition to the proposed Salvation Army facility at 333
Montreal Road has been called NIMBY (Not In My Back Yard) and dismissed quickly by residents
outside the neighbourhood. However, Sometimes, a housing proposal is just wrong for the
neighbourhood its out of scale, violates heritage character or has inadequate infrastructure or
support services (Act, 2011). Act (2011) defines NIMBY as concerns about change in the
neighbourhood, ranging from expressions about the presumed characteristics of newcomers
(often in the case of supportive or affordable housing), or a fear of current residents that new
residents to a community will change the characteristics of the existing community.

Let it be clear, then, that Vanier residents concerns about the placement of a large shelter and
social-housing program in their community will not change the communitys characteristics, but
prevent them from changing. Vanier is a neighbourhood with its own struggles. It has high
incidents of low-income, single-parent families and lacks a Community Health Centre an
institution many other neighbourhoods take for granted. In recent years, Vanier has started to
see some of this shift and change. Young people have been flocking to the neighbourhood and
investing in homes, cleaning them up, and working diligently to make Vanier a walkable,
bikeable, family-friendly community. The community is very active and engaged with the QVBIA
and other community groups, working to create art installations and community events that
breathe new life and vibrancy into this community. The community is working hand-in-hand to
become the mixed-income community that all neighbourhoods should aspire to be.

However, Vaniers revitalization as a community is young and fragile. We want desperately to
be the strong community that can invite more social housing into its fold without disrupting its
social balance. However, the already overwhelming presence of social services relative to the
rest of the City of Ottawa suggests that we are not yet strong enough. What we need is a
revitalized downtown, envisioned by the Quarter Vanier BIA to be The French Quarter. A
revitalized downtown will attract more people to our community and finally help us to achieve
the goal of becoming a mixed-income community as many others in the City of Ottawa. Give us
a chance to devise a consulted, researched plan to redevelop Montreal Road. A plan that
engages the whole community to imagine the unique and vibrant community Vanier can truly
be. Not only will this be the economically and socially responsible decision, it will also keep
within the principles of the Provincial Policy Act Building Strong, Sustainable Communities as
well as within the City of Ottawa Official Plan. By allowing rezoning to make the hallmark of
Vaniers traditional mainstreet a massive service-based structure, the City of Ottawa Planning
Committee would seal Montreal Roads fate as a zone of desperation.

When interviewed about his reaction to the Salvation Armys proposal to relocate its shelter to
Vanier, Jim Watson flippantly saying suggest another location if not Montreal Road. (Watson,
2017, as cited in Willing, 2017). My short answer to this is that it should not be placed in any
location. This model does not fit within best practices of social housing models, does not reduce
stigma to its users of supportive housing, and does not blend into the community. It would be
more within best practices for these programs to have smaller locations dispersed evenly
throughout the city. Indeed, affordable, supportive housing belongs in all our backyards.
Gigantic ones that do not serve to promote integration into the larger community do not
belong at all.

The City of Ottawas 10-year housing and homelessness plan has 3 priorities:

1. Everyone has a home - providing funding and mechanisms for constructing new housing

2. People get the supports they need - implementation of the Housing First model and
expansion of shelters for homeless families

3. Working together - coordinate city plans and departments, monitoring

The intent of the plan is to change 250 long stay shelter beds to permanent housing and reduce
average length of stay at emergency shelters. The plan speaks to the need to establish
supportive environments to break cycles of poverty and homelessness. In its project proposal,
the Salvation Army also acknowledges that Housing First is the strongest way to combat
homelessness. A facility of the kind of intensity of use as that proposed by the Salvation Army is
not in keeping with the City of Ottawas 10-year homelessness plan, as suggested by best-
practice evidence laid out in the above document.

The City of Ottawa needs to decide what kind of a city it wants to be. Does it want to be a city
that makes zoning decisions that encourage all communities have a healthy mix of resident? Or
does it want to create the kind of city that has enclaves of wealth and others of desperate
poverty? Is it willing to create a ghetto out of one neighbourhood to hasten the gentrification of
another, namely the Byward Market? In fact, one needs to ask: Would this rezoning be
considered if the proposal were for any other mainstreet in Ottawa? If the proposal for this
location is rooted in the socioeconomic fabric of this community and its mainstreet is being
considered differently than other mainstreets would be, and the imagined growth and
rejuvenation of this mainstreet is envisioned as that of a social-service hub because of the
characteristics of its community members, then it must be admitted that the decision to rezone
would be based on a prejudicial attitude toward the neighbourhood and City of Ottawa officials
would be behaving in a biased manner against the community based on its socioeconomic
status.

Treat the homeless and people at risk of homeless with respect by allowing rezoning only when
projects fit within best-practice guidelines for social services and housing delivery, when they
are within the City of Ottawas vision to eradicate chronic homelessness by 2024, and when
they allow for their host communities to flourish around them and provide the healthy,
sustainable environment that promotes the best outcomes for service users.

And, finally, Help Give Vanier a Fighting Chance.

Bibliography

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http://cmtoday.cmu.edu/artsculture_innovation/urban-revitalization-pittsburgh/

CBC News (2016). Salvation Army safety measures fall short, councillor says. Retrieved online
via http://www.cbc.ca/news/canada/ottawa/salvation-army-booth-centre-safety-changes-
1.3811467

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FoTenn (June 13, 2017). Planning Rationale Official Plan Amendment, Zoning By-law
Amendment, and Site Plan Control for 333 Montreal Road. Retrieved online via
http://webcast.ottawa.ca/plan/All_Image%20Referencing_Site%20Plan%20Application_Image
%20Reference_2017-06-20%20Planning%20Rationale%20D07-12-17-0077.PDF

Gupta, s. (2015). Vietnam, Heroin, and the Lesson in Disrupting any Addiction. CNN. Retrieved
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addiction/index.html

Affordability and Choice Today (ACT) (2009). Housing In My Backyard: A Municipal Guide for
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https://fcm.ca/Documents/tools/ACT/Housing_In_My_Backyard_A_Municipal_Guide_For_Resp
onding_To_NIMBY_EN.pdf

Kirk (2017). Mixed Income Communities give Black and Latino Youth a Leg Up. Citylab.
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Mixed-Income-Communities-for-Low-Income-Families.PDF

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Pittsburgh Mainstreets. Retrieved online, via
http://www.ura.org/business_owners/MakingtheCaseforMainstreets.pdf

Municipal Tools for Affordable Housing (2011), Ministry of Municipal Affairs and Housing.
Retrieved online via http://www.mah.gov.on.ca/AssetFactory.aspx%3Fdid%3D9270

Ottawa Neighbourhood Study (2017). Retrieved online via
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homelessness. Retrieved online via http://homelesshub.ca/blog/shape-homelessness-how-
location-social-services-affects-homelessness

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Trinh, J. (2017) Salvation Army sticks with Vanier shelter plan despite backlash. CBC Ottawa.
Retrieved online via http://www.cbc.ca/news/canada/ottawa/salvation-army-homeless-
shelter-vanier-application-1.4200470

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Willing, J., (2016). Ive lost faith in the local organization: Councillor fed up Salvation Army isnt
improving safety outside shelter. Retrieved online via http://ottawacitizen.com/news/local-
news/ive-lost-faith-in-the-local-organization-councillor-fed-up-salvation-army-isnt-improving-
safety-outside-shelter

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watson-impressed-by-proposal-to-relocate-salvation-army-shelter-to-vanier
Alternative Sites for Salvation Army Relocation

Prepared by Alternate Sites Working Group

Benjamin Gianni (chair)
Stephanie Izzard
Michael Radzichowsky
Clodie Paris

General notes:
1. The mandate of the Working Group was to identify sites that might be appropriate alternatives to the proposed 1.8-acre site at 333
Montreal Rd. Our discussion of sites was based on size, location, availability and adherence to the site selection criteria provided by the
Salvation Army (listed below).
2. The Working Group notes that social impact was not included among the Salvation Armys site selection criteria. We believe that this
is a significant oversight/omission.
3. Given the amount of public money that supports their operations, coupled with the potential impact of their proposed facility on the
community in which it is located, we believe that the Salvation Army should be held to a higher standard with respect to involving the
community in the question of site selection. The lack of transparency suggests lack of responsibility.
4. It was not the mandate of this Working Group to address what services the Salvation Army delivers, how or to whom. Alternative
delivery models were not part of this groups investigation.
5. While all of the sites identified are equivalent in size or larger than the proposed site at 333 Montreal Rd., the Working Group is neither
in favor nor opposed to dividing services between two or more sites.
6. The list of sites not intended to be exhaustive. The Working Group is aware that many more sites may be available for redevelopment
and recommends further consultation. In particular it recommends focused discussions with key representatives of the development
community and with Ottawa Community Housing (to explore the possibility of collaborating on the redevelopment of one or another
OCH sites).
7. The sites listed below are organized geographically, not by preference.
8. That said, the Working Group notes that clusters of sites appear in two areas of the city, namely 1) Coventry/St. Laurent/Ogilvy/Cyrville
and 2) Little Italy/OTrain corridor. As these areas are both well served by transit and undergoing significant transformation, our group
believes they can absorb new uses, including shelters, with minimal impact on the existing community. This is especially true of the
Coventry Corridor (between the Vanier Parkway and St. Laurent). That said, the group strongly encourages the City and the Salvation
Army not to discount sites in or adjacent to the downtown core (e.g., the Technical High School site and the Downtown YMCA).
9. The Working Group notes that a number of the sites listed fall into areas targeted for Transit-Oriented intensification. It notes that
accommodation for social services (including social housing) should have been incorporated into the designs for these nodes.
Last updated: Oct, 13, 2017 1

10. Vacant sites in various locations were intentionally excluded. Among these were: 1) sites along lower Montreal Rd. and Beechwood
Ave. in Vanier and, 2) sites along Dalhousie and Cumberland Streets in the Byward Market. It was the Working Groups opinion that
relocating the Salvation Army to these locations would either exacerbate the issue of over-concentration of shelters in the Market or
pose similar social and economic challenges as 333 Montreal Rd.
11. The Working Group acknowledges that no site is without challenges (e.g., proximity to Schools, other shelters, areas under
redevelopment, etc.).
12. The Working Group concurs that decisions about appropriate sites should be informed and supported by a social impact study that
includes in-depth consultation with the Citys Department of Housing and Social Services and the various communities involved.
Decisions should not be made solely on availability, expediency, proximity and planning rationale. Whatever the planning issues
involved, the discussion and decision-making process must be more comprehensive, inclusive, thoughtful and thorough.

Ref. # address acreage location Proximity to Ward/councilor Vacant/ notes
transit occupied?
E-1 749 Bernard 1.5 acres with East; St. Laurent St. Laurent Ward 13; T. vacant Along Coventry, just north of St.
access to adjacent Mall transitway stop Nussbaum Laurent Mall
City right-of-way
E-2 535 Coventry 3.68 acres --with East; St. Laurent St. Laurent Ward 13; T. vacant cater-corner to St. Laurent Mall
access to adjacent Mall transitway stop Nussbaum (across Coventry to Northwest)
City right-of-way
E-3 500 Coventry 8.5 acres East; St. Laurent St. Laurent Ward 13; T. vacant Large site, across Coventry, just
Mall transitway stop Nussbaum west of St. Laurent Mall
E-4 1188 and 1196 Approx. 1.7 acres East; St. Laurent St. Laurent Ward 13; T. vacant just off of Ogilvy, behind old
Michael St. Mall transitway stop Tierney Chimo Hotel.
E-5 1330 Avenue K 2.5 acres (up to 5 East; Train station Train Ward 18; Occupied but Dustbane site. Next to and
acres with adjacent transitway stop J. Cloutier owner may behind office building on
vacant lot at 280 be wiling to Tremblay. Likely slated for
Tremblay) sell. office development.
E-6 989 Montreal Rd. 1.47 acres (could be East; Montreal Rd. Bus 12 Ward 13; T. Largely
supplemented with Nussbaum vacant
vacant adjacent
land at 949
Montreal)
E-7 895 Montreal Rd. 1.1 acres East; Montreal Rd. Bus 12 Ward 13; T. vacant
Nussbaum
E-8 815 St. Laurent 17.6 acres East; St. Laurent Bus 7 Ward 13; T. Largely Rideau High School site

Blvd. Nussbaum vacant
E-9 235 McArthur 13.9 acres East; McArthur Bus 14 Ward 12; M. Largely Horizon Jeunesse School site.
Ave. (portion) Fleury vacant Pleanty of excess land.
E-10 252 McArthur 2 acres East; McArthur Bus 14 Ward 12; M. occupied Vanier Depot site; City owned.
Fleury
E-11 225 Donald St 6.2 acres East; Donald Bus 18 Ward 13; T. Largely Rideau Rockcliffe Resource
(portion) Nussbaum vacant Center site; City-owned.
E-12 1349/1353 1.8 acres East; Cyrville Cyrville Ward 11; T. Largely Wagorns Garage and Rons Car
Cyrville Rd. Transitway Tierney vacant Wash sites adjacent to
stop; Bus 42 Queensway.
E-13 1120 Cummings 2.7 acres East; St. Laurent Bus 7 Ward 11; T. occupied Ambico Ltd. Metal shop site at
Tierney Donald and Cummings. Owner
is purportedly interested in
selling.
E-14 1178 Cummings 2.8 acres East; St. Laurent St. Laurent Ward 11; T. vacant Adjacent to city right of way into
transitway Tierney which facility could expand.
stop; busses,
7. 14, 19 and
24
E-15 1098 Ogilvy 1.2 acres East; St. Laurent St. Laurent Ward 11; T. vacant Adjacent to city right of way into
transitway Tierney which facility could expand.
stop; busses, Adjacent to E-14 and E 16.
7. 14, 19 and
24
E-16 1125 Cyrville 1.8 acres East; St. Laurent St. Laurent Ward 11; T. Largely Adjacent E-14 and E-15.
transitway Tierney vacant
stop; busses,
7. 14, 19 and
24
E-17 569 Langs Rd. 1.8 Acres East: Montreal Bus 12 Ward 13; T. vacant Adjacent to Montfort Hospital.
Rd. Nussbaum Current offered for sale through
Avison Young
LI - 1 818 Gladstone 4.15 acres West; Little Italy Gladstone Ward 14; C. Occupied but Rochester/CMHC row housing
OTrain stop; McKenney slated for complex owned by OCH. SA
bus 85 & 185 redevelopme facility could be part of larger
nt redevelopment.

LI - 2 933 Gladstone 13.5 acres West; Little Italy Gladstone Ward 14; C. Vacant but in Oak St. Site (former PWGSC
OTrain stop; McKenney need of warehouse). Portion
bus 85 & 185 remediation. purportedly given to OCH.
LI - 3 175 Loretta 2.9 acres West; Little Italy Gladstone Ward 15; J. occupied Citys signalization site; against
OTrain stop; Leiper the Queensway. May be room
bus 85 & 185 to construct SA facility before
demolishing existing building.
LI - 4 300 Rochester 2.7 acres West; Little Italy Gladstone Ward 14; C. Partially Adult High School Site
OTrain stop; McKenney occupied
bus 85 & 185
LI - 5 552 Booth St. 6.5 acres West; Little Italy Gladstone Ward 14; C. Partially Portion of Booth St. Complex
OTrain stop; McKenney occupied recently acquired by Canada
bus 85 & 185 Lands Co.
LI - 6 299 Carling 3.4 acres West; Little Italy Gladstone Ward 14; C. vacant Lot on corner of Carling and
OTrain stop; McKenney Lebreton; Owned by Canada
bus 85 & 185 Lands.
LI - 7 450 Rochester St. 2.06 acres West; Little Italy Gladstone Ward 14; C. vacant Site bounded by Beech
OTrain stop; McKenney Aberdeen and Rochester.
bus 85 & 185
LI - 8 605 Bronson 1.6 acres West; Gladstone Ward 14; C. vacant Former site of Ottawa Board of
Glebe/Centretown OTrain stop; McKenney Education Offices. Space left
bus 85 & 185 after realignment of
Queensway?
BT - 1 141 Bayview Rd. 2.5 acres West: Bayview Bayview Ward 15; J. Partially Tom Brown Arena site. Arena to
Lebreton OTrain stop Leiper vacant be demolished after new
Senators arena is constructed in
Lebreton. Sufficient room to
construct SA facility before
demolishing existing building.
BT - 2 7 Bayview Rd. 16 acres West: Bayview Bayview Ward 15; J. Partially Bayview Yards site. City owned?
Lebreton OTrain stop Leiper vacant
BT - 3 250 City Centre 4.89 acres West: Bayview Bayview Ward 14; C. Partially City Center site.
Lebreton OTrain stop McKenney vacant
BT - 4 40 Goldenrod 4.9 acres West; Tunneys Tunneys Ward 15; J. vacant For sale by Canada Lands
pasture Pasture Leiper
transitway
Stop

CH - 1 1053 Carling Ave. 22.6 acres West; Civic Bus 56, 85, Ward 15; J. Partially Civic Hospital site
Hospital 101, 103 Leiper vacant
D - 1 180 Argyle Ave. 1.7 acres downtown Walkable to Ward 14; C. Already Downtown YMCA
downtown and McKenney available as a
market shelter
D - 2 440 Albert 1.8 acres downtown Walkable to Ward 14; C. Occupied Old Tech High School site
downtown and McKenney
market

Total of 31 sites (as of Aug 5)

Salvation Army site Selection Criteria: 1
Proximity to key services (clinics, pharmacies, employment and medical services, day programs, etc.);
Directly accessible by transit and by foot (ideally in no more than 30 minutes);2
Centrally located on an arterial road, in a mixed-use (commercial, business, residential) area, preferably with two access points;
Can accommodate the current and future needs and allows for flexibility;
Must include ample space for parking, client courtyards, and community space; and,
Located within an area that will utilize the services provided.

Current preferred site at 333 Montreal Rd:
1.8 acres (including space for staff parking). Presumably any site 1.8 acres or more would accommodate current and future needs).

1
Planning Rationale, June 13, 2017, Fotenn Planning and Design (accessed at
http://webcast.ottawa.ca/plan/All_Image%20Referencing_OP%20Amendment%20Application_Image%20Reference_2017-06-20%20Planning%20Rationale%20D01-01-17-
0013.PDF).
2
Not clear exactly what this means. If interpreted to mean 30 minutes on foot from current location in market, then it would correspond to a radius of approx.. 3.2 kilometers.
See image below.

Fig. 1: 30-minute radius on foot (3.2 kilometers) from current Salvation Army site in Byward Market.


Fig. 2: Alternative sites mapped to plan of central Ottawa.

On the Proposed Relocation of the Salvation Army to 333 Montreal Road

Benjamin Gianni
Chair, Alternate Sites Working Group, Vanier
Associate Professor, Azrieli School of Architecture and Urbanism, Carleton University

Im quite shocked that the planning department is unable or unwilling to weigh in on the
potential social or economic impacts of the shelter in its proposed location on our
community. Is there no requirement that a risk assessment be completed before a decision
is made? Whose mandate is it to take the social or economic impacts into account? Are we
to assume that even if council was opposed to the project that it would go ahead
regardless?
-- Vanier Resident

The issue before the Planning Committee is whether a site-specific exception should be made to permit
a shelter at 333 Montreal Road. This question has two dimensions: one concerns planning matters as
outlined in the proponents development application while the other is much broader. I would argue
that it is the purview of the Planning Committee to consider both.

The community believes that the debate about the proposed shelter is being limited to a discussion of
technical issues among planning experts. This allows proponents to claim that due diligence has been
done with respect to consultation. Indeed the law requires Official Plan Amendments to be brought to
the Planning Committee for discussion. But while such discussions are necessary, they are by no
means sufficient.

Furthermore, the community is concerned that deliberation about planning issues is being used to pre-
empt a larger and more important debate about the impact of a shelter on 333 Montreal Rd. Cynically
one might argue that the Salvation Army chose a site requiring an Official Plan Amendment in order to
narrow the nature and scope of public consultation.

Section 3.1.4 of the Official Plan states that shelters are permitted anywhere in the General Urban Area
that residential uses are allowed -- notwithstanding other provisions or proscriptions imposed by zoning
bylaws. While traditional Mainstreets typically pass through the General Urban Area, the Official Plan
treats them differently. By not permitting shelters on Traditional Mainstreets the OP might be
interpreted to be saying:
1. Shelters are incompatible with the larger goals for Traditional Mainstreets.
a. The Official Plan states that It is the intent of this Plan that intensification continue to focus
on nodes and corridors (Mixed-Use Centres and Mainstreets) to support the public transit
system, to create an essential community focus, to allow for minimum travel and to
minimize disruption in existing stable neighbourhoods.1
b. The corresponding zoning bylaw states that buildings in TM zones must recognize the
function of Business Improvement Areas as primary business or shopping areas.2 Indeed
the Vanier BIA is strongly opposed to the proposed mega-shelter.
2. That not permitting shelters on Traditional Main Streets does not constitute hardship inasmuch
as the General Urban Area comprises a surfeit of land in which to locate shelters. Indeed in
relatively short order our working group was able to identify no fewer than 32 alternate sites
that met the Salvation Armys site selection criteria.

1
City of Ottawa Official Plan, Section 3.6.3
2
City of Ottawa Zoning Bylaw, Part 10, TM - Traditional Mainstreet Zone (Sec. 197-198)
Last updated: Nov. 9, 2017, 8:15 AM

By proposing a shelter at 333 Montreal Rd. the Salvation Army is, in effect, implying, that there are no
sites in the General Urban Area that are suitable for shelters. I strongly contest this and submit our
report as evidence.3 The Salvation Army has not demonstrated that suitable sites do not exist
elsewhere. As such, due diligence has not been done.

By requesting an exception, The Salvation Army is, in effect, claiming that their proposed site at 333
Montreal Rd. is exceptional, or, in other words, is an exceptionally good site for a mega shelter. Again, I
would argue that the Salvation Army as in no way demonstrated this. As such, a site-specific exception
should not be made.

This brings us to what I consider the most important issue, namely, the limited scope of the Salvation
Armys criteria for selecting a site and the equally limited scope on which the argument for an OPA is
being made. In my professional opinion, it is both significant and inexcusable that neighborhood
impact was not included among SAs site-selection criteria. Not to consider how a facility of this scale
and this nature might affect the surrounding community is tantamount to negligence. The Planning
Committee and Council as a whole must consider this.

With respect to the range issues that the Planning Committee may consider, I bring your attention to a
related, 2004 decision regarding a site-specific exception for a shelter in Toronto. The OMB noted that it
makes decisions on the basis of the applicable planning policies, the physical layout of the property,
the built form of the structures accommodating the proposed use, the type of activity to be generated
by the use, the intensity of that activity, and whether the neighbourhood context and the use are
compatible, one to the other. In other words, the Board makes a determination as to whether the
neighbourhood is an appropriate one for the type of use, and whether the use is one which will either
not adversely impact the neighbourhood, or only do so to a minimal extent. 4

In its decision the OMB went on to note that merely classifying this use as housing or as
residential is far too categorical and simplistic, and is not of any assistance in this case. It is the
character of the use, the density of the use, the intensity of the use, the purpose of the use, and the
needs of the users, and the relationship of the use to its context, that are factors that are of assistance
in addressing the issues that have been raised.5

Given the inevitable impact on the community and the significant amount of municipal funds that will
underpin the operation of the Salvations Armys proposed mega shelter, I would argue that both the
City and the Salvation Army should be held to a higher standard with respect to community engagement
and consultation around the full range of issues and implications involved. These include location, size,
service-delivery model and community impact.

While the Vanier community supports the Salvation Armys move to a more suitable facility, there is no
evidence to support that 333 Montreal Rd. is the best of all possible alternative sites. The proposed
location is by no means exceptional -- except to the degree to which is it is inappropriate. Accordingly,
we respectfully submit that a site-specific exception for the shelter not be made.

3
Alternate Sites for the Salvation Army, Alternative Sites Working Group, Vanier, last updated Oct. 13, 2017
4
http://www.omb.gov.on.ca/e-decisions_old/pl030313_%230569.pdf, pg. 12
5
Ibid, pg. 18
Last updated: Nov. 9, 2017, 8:15 AM

When a development needs amendments to the Official Plan Section 3.1.4 , Zoning By-
law 2008-250 and
to the Montreal District Secondary Plan it is not appropriate for the site PERIOD.
The First issue I wish to present relates to Noise Level.
I found it interesting that the planning department decided that the noise levels were
satisfactory when
the sites Traffic Noise Assessment clearly states Purchasers are advised that despite
the inclusion of
noise control features in the development and within the building units, sound levels due
to increasing
roadway traffic may, on occasion, interfere with some activities of the facility occupants
as the sound
levels exceed the sound level limits of the City and the Ministry of the Environment and
Climate Change. "
As Montreal Rd is an emergency vehicle corridor, (Paramedic Station and Hospital

located on it) I found it
ODD there is no mention of EMERGENCY vehicle NOISE (Siren's) This is a concern
for me as their sirens are
between 90-120 DB and the report only indicates that noise levels will range between
34 and 67 dBA during the
daytime period(07:00-23:00) and between 27 and 59 dBA during the nighttime period
(23:00-07:00).
In comparison the 102 Bill Leathem Drive site report indicates that noise levels due to
roadway traffic
over the site will range between 60 and 68 dBA during the daytime period (07:00-23:00)
and between 53 and 60 dBA
during the nighttime period (23:00-07:00)
As both of these reports were furnished by the same firm, Gradient Wind Engineering
Inc.and their daytime and
nighttime max values are virtually identical, for the health and safety of clients and those
involved I recommend
the City of Ottawa prohibit the following uses at this location:
daycare
rooming unit and rooming house
residential care facility
shelter
My Second issue is the city has decided to refuse my request for an Archeological
Assesment 1
https://ottawa.ca/en/city-hall/planning-and-development/official-plan-and-master-
plans/official-plan/volume-1-official/section-1-introduction
1.1 - The Role of the Official Plan

D. the conservation of features of significant architectural, cultural, historical,
archaeological or
scientific interest
I , as well others feel an Archeological assesment 1 is required for this site as the cities
mapping was created over a decade ago and still does not conform to the
archaeological potential criteria currently applied by the Ontario Ministry of Tourism,
Culture and Sport. This is confirmed in reports accepted by the City
http://webcast.ottawa.ca/plan/All_Image%20Referencing_Zoning%20Bylaw%20Amend
ment%20Application_Image%20Reference_D02-02-13-
0143%20Archaeological%20Resource%20Assessment.PDF
Page 22 of the
ADAMS HERITAGE
3783 Maple Crest Court,
RR#1 Inverary, Ontario K0H 1X0
Phone (613) 353 1463 Fax (613) 353 1463
Ministry of Tourism, Culture and

Sport
Archaeology Program Unit
Programs and Services Branch
Culture Division
401 Bay Street, Suite 1700
Toronto ON M7A 0A7
ArchaeologyReports@ontario.ca
Wise Management of Resources
The Provincial Policy Statement, 2005 includes strong policy direction to protect the
provinces natural
heritage, water, agricultural, mineral, and cultural heritage and archaeological
resources. The protection
of these important resources will help ensure Ontarios long-term prosperity,
environmental health and social
well-being.
Areas of archaeological potential:
means areas with the likelihood to contain archaeological resources. Criteria for
determining archaeological
potential are established by the Province, but municipal approaches which achieve the
same objectives may
also be used. Archaeological potential is confirmed through archaeological fieldwork
undertaken in accordance
with the Ontario Heritage Act
Pestka, J.M., F. Barvencik, F.T. Bell, R.P. Marshall, E. Jopp, A.F. Schilling, A.
Bauerochse, M.
Fansa, K. Pscher and M. Amling
2010 Skeletal analysis and comparison of bog bodies from northern European peat
bogs.
Naturwissenschaften 97:393-402.
peat is one of the best environments for preserving wood

Neolithic, Bronze Age and Iron Age archaeological wooden artefacts from peat
environments in
Great Britain include handles, hilts, scabbards, hafts, sheathes, spears, shields, bows,
arrows, clubs,
watercraft, burial structures and numerous household implements (Coles et al. 1978:6-
23)
Hundreds of wooden artefacts from c.500AD in the early Vanvizdino culture were
preserved in an
oxbow peat bog in the Vychegda Basin near Lake Sindorskoye, Russia (Burov 2008:54)
several human remains have been preserved in peat environments in
Europe (Lobell and Patel 2010:22-29; Pestka et al. 2010)
Hello Erin
As per Province of Ontario Mandate , I am requesting a mandatory Archaeological

Assessment 1 for the
333 Montreal Road site as it is a known Indigenous Camping Site and later owned by
William Bradley , Clements
Bradley , Gidean Olmstead , Thomas Mackay , Thomas Keefer , Robert Cummings and
others which were major builders
of Bytown ( Ottawa )
Archaeological Potential
The City of Ottawas Archaeological Potential mapping does not indicate a small area
of archaeological potential within the 333 Montreal Road site but as stated by numerous
other
Stage 1 Archaeological Assessment's in the area that the city has accepted . this
mapping was created over a decade
ago and does not conform to the archaeological potential criteria currently applied by
the Ontario
Ministry of Tourism, Culture and Sport.
In determining archaeological potential for this property, therefore, a number of
characteristics are to be considered. In general, these conform to the basic key
archaeological site potential criteria identified by the Ontario Ministry of Tourism,
Culture and Sport and described in their primer document (MTC 1997) and
reemphasized
in the recent Standards and Guidelines for Consultant Archaeologists
(MTC 2011).
AccordingtoMTCSs2011StandardsandGuidelines
the following are characteristics that indicate archaeological potential:
C Previously identified archaeological sites.
C Water sources. It is important to distinguish types of water and
shoreline, and to distinguish natural from artificial water sources, as
these features affect site locations and types to varying degrees:
- primary water sources (lakes, rivers, streams, creeks)
- secondary water sources (intermittent streams and creeks,
springs, marshes, swamps)
- features indicating past water sources (e.g., glacial lake
shorelines indicated by the presence of raised sand or gravel
beach ridges, relic river or stream channels indicated by clear dip
or swale in the topography, shorelines of drained lakes or
marshes, cobble beaches)
- accessible or inaccessible shoreline (e.g., high bluffs, swamp or
marsh fields by the edge of a lake, sandbars stretching into
marsh).
C Elevated topography (e.g., eskers, drumlins, large knolls, plateaux)
C Pockets of well drained sandy soil, especially near areas of heavy soil or
rocky ground
C Distinctive land formations that might have been special or spiritual
places, such as waterfalls, rock outcrops, caverns, mounds, and
promontories and their bases. There may be physical indicators of their
use, such as burials, structures, offerings, rock paintings or carvings.
C Resource areas, including:
food or medicinal plants (e.g., migratory routes, spawning areas,
prairie), scarce raw materials (e.g., quartz, copper, ochre )
C Areas of early Euro Canadian settlement. These include places of early
military or pioneer settlement (e.g., pioneer homesteads, isolated cabins,
farmstead complexes), early wharf or dock complexes, pioneer churches
and early cemeteries. There may be commemorative markers of their
history, such as local, provincial, or federal monuments or heritage
parks.
C Early historical transportation routes (e.g., trails, passes, roads, railways,
portage routes)
C Property listed on a municipal register or designated under the Ontario
Heritage Act or is a federal, provincial or municipal historic landmark or
site Property that local histories or informants have identified with
possible archaeological sites, historical events, activities, or occupations.
MTCS Standards and Guidelines for
Consultant Archaeologists (2011)
Pre-Contact and Post-Contact Archaeological Sites
Based on these criteria, some archaeological potential for pre-Contact and postContact
archaeological sites is deemed to exist, since portions of the study area lie
within less than 300 metres of a former Rideau River tributary.
Although the likelihood of archaeological sites being present in the area is minute,
these areas cannot be exempted from archaeological testing and will require a Stage 1
field investigations (S & Gs 1.4.1c).
Yours Truly
Bryan Murray
Significant archaeological resources

3.3 For prohibiting any use of land and the erecting, locating or using of any class or
classes of buildings or
structures on land that is the site of a significant archaeological resource
D02-02-16-0088
Ward 12 - RIDEAU-VANIER - Mathieu Fleury
Received 2016-10-19
Updated 2016-11-30
0018%20STAGE%201%20AND%202%20ARCHAEOLOGICAL%20STUDY.PDF
STAGE 1 AND 2 ARCHAEOLOGICAL

ASSESSMENTS
OF 900 ALBERT STREET
PART LOT 38, CONCESSION 1
OTTAWA FRONT
GEOGRAPHIC TOWNSHIP OF NEPEAN
FORMER COUNTY OF CARLETON
NOW IN THE CITY OF OTTAWA, ONTARIO
Prepared by: Jeff Earl, M.Soc.Sc.

Principal
Past Recovery Archaeological Services Inc.
4534 Bolingbroke Road, R.R. #3
Maberly, Ontario K0H 2B0
Phone: 613-267-7028
E-mail: j.earl@pastrecovery.com
0040%20Archaeological%20Resource%20Assessment.PDF
STAGE 1 ARCHAEOLOGICAL ASSESSMENT
OF CHAUDIERE AND ALBERT ISLANDS
PART LOT 40, CONCESSION A
OTTAWA FRONT
GEOGRAPHIC TOWNSHIP OF NEPEAN
FORMER COUNTY OF CARLETON
NOW IN THE CITY OF OTTAWA, ONTARIO
Prepared by: Jeff Earl, M.Soc.Sc.

Principal
Past Recovery Archaeological Services
4534 Bolingbroke Road, R.R. #3
Maberly, Ontario K0H 2B0
Phone: 613-267-7028
Email: pras@pastrecovery.com
APPENDIX 2: Glossary of Archaeological Terms

Archaeology:
The study of human past by excavation of cultural material.
Archaeological Sites:
The physical remains of any building, structure, cultural feature, object, human event or
activity
which, because of the passage of time, are on or below the surface of the land or water.
Archaic:
A term used by archaeologists to designate a distinctive cultural period dating between
8000 and
1000 B.C. in eastern North America. The period is divided into Early (8000 to 6000
B.C.),
Middle (6000 to 2500 B.C.) and Late (2500 to 1000 B.C.). It is characterized by hunting,
gathering and fishing.
Artifact:
An object manufactured, modified or used by humans.
B.P.:
Before Present. Often used for archaeological dates instead of B.C. or A.D. Present is
taken to
be 1951, the date from which radiocarbon assays are calculated.
Backdirt:
The soil excavated from an archaeological site. It is usually removed by shovel or trowel
and
then screened to ensure maximum recovery of artifacts.
Chert:
A type of silica rich stone often used for making chipped stone tools. A number of chert
sources
are known from southern Ontario. These sources include outcrops and nodules.
Contact Period:
The period of initial contact between Native and European populations. In Ontario, this
generally corresponds to the seventeenth and eighteen centuries depending on the
specific area.
Cultural Resource / Heritage Resource:
Any resource (archaeological, historical, architectural, artifactual, archival) that pertains
to the
development of our cultural past.
Cultural Heritage Landscapes:
Cultural heritage landscapes are groups of features made by people. The arrangement
of features
illustrate noteworthy relationships between people and their surrounding environment.
They can
provide information necessary to preserve, interpret or reinforce the understanding of
important
historical settings and changes to past patterns of land use. Cultural landscapes include
neighbourhoods, townscapes and farmscapes.
Stage 1 Archaeological Assessment
Chaudire and Albert Islands Past Recovery Archaeological Services Inc.
175
Diagnostic:
An artifact, decorative technique or feature that is distinctive of a particular culture or
time
period.
Disturbed:
In an archaeological context, this term is used when the cultural deposit of a certain
time period
has been intruded upon by a later occupation.
Excavation:
The uncovering or extraction of cultural remains by digging.
Feature:
This term is used to designate modifications to the physical environment by human
activity.
Archaeological features include the remains of buildings or walls, storage pits, hearths,
post
moulds and artifact concentrations.
Flake:
A thin piece of stone (usually chert, chalcedony, etc.) detached during the manufacture
of a
chipped stone tool. A flake can also be modified into another artifact form such as a
scraper.
Fluted:
A lanceolate shaped projectile point with a central channel extending from the base
approximately one third of the way up the blade. One of the most diagnostic Palaeo-
Indian
artifacts.
Lithic:
Stone. Lithic artifacts would include projectile points, scrapers, ground stone adzes, gun
flints,
etc.
Lot:
The smallest provenience designation used to locate an artifact or feature.
Midden:
An archaeological term for a garbage dump.
Mitigation:
To reduce the severity of development impact on an archaeological or other heritage
resource
through preservation or excavation. The process for minimizing the adverse impacts of
an
undertaking on identified cultural heritage resources within an affected area of a
development
project.
Multicomponent:
An archaeological site which has seen repeated occupation over a period of time.
Ideally, each
occupation layer is separated by a sterile soil deposit that accumulated during a period
when the
site was not occupied. In other cases, later occupations will be directly on top of earlier
ones or
will even intrude upon them.
Stage 1 Archaeological Assessment
Chaudire and Albert Islands Past Recovery Archaeological Services Inc.
176
Operation:
The primary division of an archaeological site serving as part of the provenience
system. The
operation usually represents a culturally or geographically significant unit within the site
area.
Palaeo-Indian:
The earliest human occupation of Ontario designated by archaeologists. The period
dates
between 9000 and 8000 B.C. and is characterized by small mobile groups of hunter-
gatherers.
Profile:
The profile is the soil stratigraphy that shows up in the cross-section of an
archaeological
excavation. Profiles are important in understanding the relationship between different
occupations of a site.
Projectile Point:
A point used to tip a projectile such as an arrow, spear or harpoon. Projectile points may
be
made of stone (either chipped or ground), bone, ivory, antler or metal.
Provenience:
Place of origin. In archaeology this refers to the location where an artifact or feature was
found.
This may be a general location or a very specific horizontal and vertical point.
Salvage:
To rescue an archaeological site or heritage resource from development impact through
excavation or recording.
Stratigraphy:
The sequence of layers in an archaeological site. The stratigraphy usually includes
natural soil
deposits and cultural deposits.
Sub-operation:
A division of an operation unit in the provenience system.
Survey:
To examine the extent and nature of a potential site area. Survey may include surface
examination of ploughed or eroded areas and sub-surface testing.
Test Pit:
A small pit, usually excavated by hand, used to determine the stratigraphy and
presence of
cultural material. Test pits are often used to survey a property and are usually spaced
on a grid
system.
Woodland:
The most recent major division in the pre-Contact cultural sequence of Ontario. The
Woodland
period dates from 1000 B.C. to A.D. 1550. The period is characterized by the
introduction of
ceramics and the beginning of agriculture in southern Ontario. The period is further
divided into
Early (1000 B.C. to A.D. 0), Middle (A.D. 0 to A.D. 900) and Late (A.D. 900 to
A.D.1550).
Address (Zoning) 244 FOUNTAIN NO STUDY
Ministry of Tourism, Culture and

Sport
Archaeology Program Unit
Programs and Services Branch
Culture Division
401 Bay Street, Suite 1700
Toronto ON M7A 0A7
ArchaeologyReports@ontario.ca
Wise Management of Resources
The Provincial Policy Statement, 2005 includes strong policy direction to protect the
provinces natural
heritage, water, agricultural, mineral, and cultural heritage and archaeological
resources. The protection
of these important resources will help ensure Ontarios long-term prosperity,
environmental health and social
well-being.
Areas of archaeological potential:
means areas with the likelihood to contain archaeological resources. Criteria for
determining archaeological
potential are established by the Province, but municipal approaches which achieve the
same objectives may
also be used. Archaeological potential is confirmed through archaeological fieldwork
undertaken in accordance
with the Ontario Heritage Act
-------------------------------------------------------------------------------------------------------------------
MARCH 28 , 2017 Planning Committee
-Planning Department recomended refusal

-If appealed to the OMB it was anticipated that a 3 to 4 day hearing would result.( it is a
10 day hearing starting
Aug.13 , 2018 11:00am )
-Funds are not available within existing resources and the expense would impact
Planning, Infrastructure and
Economic Developments operating status.
-Planning Committee changed it to approve( But prohibited at this location:daycare ,

rooming unit and rooming
house , retirement home , residential care facility , shelter )
-Motion Passed 9 yeahs 1 yeah
APRIL 12 , 2017 Council
Council adopted Planning Committee recomendations

all yeahs/no neahs
http://ottwatch.ca/meetings/meeting/6976
OFFICIAL PLAN AND ZONING BY-LAW AMENDMENTS 102 BILL LEATHEM DRIVE
ACS2017-PIE-PS-0041 GLOUCESTER-SOUTH NEPEAN (22)
http://app05.ottawa.ca/sirepub/cache/2/oyjnsz1jb2rjhbpkjans32za/43465611062017120
752721.PDF
1
Report to
Rapport au:
Planning Committee / Comit de l'urbanisme
March 28, 2017 / 28 mars 2017
and Council / et au Conseil
April 12, 2017 / 12 avril 2017
Submitted on March 8, 2017
Soumis le 8 mars 2017
Submitted by
Soumis par:
Lee Ann Snedden,
Acting Director / Directrice par intrim,
Planning Services / Service de la planification
Planning, Infrastructure and Economic Development Department / Direction
gnrale de la planification, de linfrastructure et du dveloppement conomique
Contact Person / Personne ressource:
Mike Schmidt, Planner II / Urbaniste II, Development Review West / Examen des
demandes d'amnagement ouest
(613) 580-2424, 13431, Mike.Schmidt@ottawa.ca
Ward: GLOUCESTER-SOUTH
NEPEAN (22) / GLOUCESTERNEPEAN
SUD (22)
File Number: ACS2017-PIE-PS-0041
SUBJECT: Official Plan and Zoning By-law Amendments 102 Bill Leathem
Drive
OBJET: Modifications au plan officiel et au Rglement de zonage 102,
promenade Bill Leathem
REPORT RECOMMENDATIONS
1. That Planning Committee recommend Council refuse an amendment to
Zoning By-law 2008-250 and an amendment to the City of Ottawa Official
2
Plan to permit the development of a multi-purpose facility which is
proposed to include place of worship, place of assembly and community
centre uses in the Ottawa Airport Operating Influence Zone.
http://app05.ottawa.ca/sirepub/agdocs.aspx?doctype=agenda&itemid=360186
Vote Records (Unofficial Results)

No Action Motion To: DIRECTION TO STAFF: Todays places of worship have
changed immeasurably. In my community
alone from the Ottawa Torah Centre, to Sequoia, to Cedarview Alliance, to South
Nepean Mosque to Salvation Army....all leaders of these places came to me with a
vision for community space. All aforementioned examples are vibrant communities
within Barrhaven as are others across this City. Yes there is a celebration of their faith
but the vast majority of time, 7 days a week, these large community centres are just
that. So my direction to staff is that they study where these larger places of worship and
places of assembly should be placed in the future and that staff prepare a motion for
Council at its next meeting outlining how this will be done.
Passed Motion To: WHEREAS Recommendation 1 of Staff Report ACS2017-PIE-PS-
0041 recommends the refusal of
amendments to Zoning By-law 2008-250 and the City of Ottawa Official Plan to permit
the development of a
multi-purpose facility which is proposed to include place of worship, place of assembly
and community centre uses
in the Ottawa Airport Operating Influence Zone; and WHEREAS having heard the
submissions in support of the
matter; THEREFORE BE IT RESOLVED that Recommendation 1 of Staff Report
ACS2017-PIE-PS-0041 be amended by replacing
the word refuse with the word approve; and BE IT FURTHER RESOLVED THAT the
proposed site-specific amendments
shall be subject to the following conditions: 1. That the only noise-sensitive land uses
permitted at this
location shall be those defined exclusively as place of assembly, place of worship and
community centre; 2.
That the above noise-sensitive land uses shall only be permitted where the Owner has
provided a noise study to
the satisfaction of the General Manager, Planning, Infrastructure and Economic
Development. It is understood
that the noise mitigation measures recommended in the noise study shall be
implemented to the satisfaction of
the General Manager, Planning, Infrastructure and Economic Development; 3. That
the following uses are
prohibited at this location: daycare rooming unit and rooming house retirement
home
residential care facility shelter 4. That an appropriate covenant be placed
on title
reflecting the fact that the property in question is within the Ottawa Airport Operating
Influence Zone.
(Councillor / Conseiller) R. Chiarelli Yes
(Councillor / Conseiller) S. Blais Yes
(Councillor / Conseillre) J. Harder Yes
(Councillor / Conseiller) J. Cloutier No
(Councillor / Conseiller) R. Brockington Yes
(Councillor / Conseiller) S. Qadri Yes
(Councillor / Conseiller) T. Tierney Yes
(Councillor / Conseiller) J. Leiper Yes
(Councillor / Conseiller) A. Hubley Yes
(Councillor / Conseiller) T. Nussbaum Yes
OTTAWA CITY COUNCIL
Wednesday, 12 April 2017

10:00 a.m.
Andrew S. Haydon Hall, 110 Laurier Avenue West
AGENDA 48
13.
OFFICIAL PLAN AND ZONING BY-LAW AMENDMENTS 102 BILL LEATHEM DRIVE
COMMITTEE MEETING INFORMATION
Delegations: Two delegations.
Debate: The Committee spent two hours and 10 minutes on this item.
Vote: Planning Committee CARRIED this item, on a division of 9 yeas and 1
nay, with an amendment
to replace the staff recommendation.
Position of Ward Councillor: Councillor Qaqish is not a voting member of the Planning
Committee but spoke at
Committee in support of the application
Position of Advisory Committee(s): None
COMMITTEE RECOMMENDATIONS, AS AMENDED

That Council approve:
1. an amendment to Zoning By-law 2008-250 and an amendment to the City of
Ottawa Official Plan to permit
the development of a multi-purpose facility which is proposed to include place of
worship, place of assembly and
community centre uses in the Ottawa Airport Operating Influence Zone;
2. that the proposed site-specific amendments shall be subject to the following
conditions:
a. that the only noise-sensitive land uses permitted at this location shall be those
defined exclusively
as place of assembly, place of worship and community centre;
b. that the above noise-sensitive land uses shall only be permitted where the
Owner has provided a noise
study to the satisfaction of the General Manager, Planning, Infrastructure and
Economic Development. It is
understood that the noise mitigation measures recommended in the noise study shall be
implemented to the
satisfaction of the General Manager, Planning, Infrastructure and Economic
Development;
c. that the following uses are prohibited at this location:
daycare
rooming unit and rooming house
retirement home
residential care facility
shelter
d. that an appropriate covenant be placed on title reflecting the fact that the
property in question is
within the Ottawa Airport Operating Influence Zone.
http://ottwatch.ca/meetings/file/440871
http://app05.ottawa.ca/sirepub/agdocs.aspx?doctype=agenda&itemid=360187
attachments
20170911_094847
20170912_205537
20170921_125601
My name is Gillian Kirkland and I am a citizen of Ottawa and a resident of Vanier. I welcome
the opportunity to address the planning committee on issues related to the zoning of
Montreal road.
Montreal road is the main street of our community. The main street of a community is like
the heart of a body. It is the centre to which the life blood of the community flows and
where each of the parts can interact with the whole. In a healthy community, it is where
neighbours reconnect and do business.
But Vanier's heart is sick. It is overburdened by pawn shops and money changers, along with
a bingo hall and strip club. This creates an environment that most of the residents seek to
avoid. As a consequence, it has become a sort of dead zone where criminal activity of every
kind can flourish.
To help the people in need who are already part of our community, and to whom many of us
have shown great compassion, we need to be enabled to create an environment that offers
hope for a better future, a future that includes small-scale supportive housing, not a mega-
shelter.
Please allow me to quote from the Mental Health Commission of Canadas 2016 final report
entitled At Home/Chez Soi. It states:
Housing First rapidly ends homelessness. Across all cities, HF

participants obtained housing and
retained their housing at a much higher rate than the treatment
as usual (TAU) group. In the last six
months of the study, 62 per cent of HF participants were
housed all of the time, 22 per cent some of
the time, and 16 per cent none of the time; whereas 31 per cent
of TAU participants were housed all
of the time, 23 per cent some of the time, and 46 per cent none
of the time.
Je suis reconnaissante davoir cette occasion de discuter dun zonage plus appropri pour le
chemin Montreal.
Premirement, nous avons besoin d'interdire d'autres prteurs sur gage ou usuriers d'ouvrir
leurs portes sur notre rue principal car nous avons la distinction d'avoir la plus haute
concentration de ces commerces dans tout le pays.
(https://www.ottawacommunitynews.com/news-story/6305902-acorn-wants-tighter-
control-over-where-payday-loan-outlets-operate/)
Deuximement, nous avons besoin de nous assurer que des entreprises telles que la salle de
bingo et le bar strip tease ne puissent pas transmettre leurs licences de futures
propritaires.
Troisimement, nous avons besoin d'encourager l'tablissement d'entreprises bnfiques

pour le cartier travers un plan d'amlioration communautaire (comunity improvement
plan). D'ailleurs l'vnement le plus positif ces dernires semaines est l'ouverture d'un
magasin de bagels cuit four boit sur le chemin Montral.
Finalement il nous faut investir dans des lieux de rassemblement communautaire ou nous
pouvons mieux nous connatre et btir ensemble la communaut que nous souhaitons tous.
Some have suggested that this public consultation is a democratic farce, and that the
decision of this committee has already been made. Be that as it may, the people of Vanier
will not stand by silently as our rights are trampled once again for the sake of a misguided
Band-Aid solution to a complex problem.
Bigger is not better, my friends.
The frustration you hear expressed today is not new. In fact it has been building for decades.
While Hintonburg was getting a new aquatic complex, we were left to our own devices to
deal with the contaminated soil in our yards; when the glebe was getting a modernized
Landsdowne Park, we were picking up syringes in our children's playgrounds; and as Orleans
witnesses the construction of its very own light rail station, we are here, fighting against a
mega-shelter being foisted upon us in the heart of our community.
With all due respect, Madam Chair and committee members, we are not second class
citizens; we are not a convenient little dumping ground for all of the citys problems; and we
are certainly not interested in returning to office those who continue to let us down time
and again.
Montreal Road is our main street and the heart of our community, and what that heart
needs to regain its strength and its dignity is nowhere to be found in a mega-shelter.
Thank you.
JeanCloutier
Monpouseetmoinesommespasdesspcialistesdudomainedesservicessociaux,ni
delurbanismenidequestionsdezonage.Noussommestoutsimplementdesrsidents
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etpasailleursnonplus.
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rsidents.Quandjeregarderai,parmafentre,jeveuxvoirdesgensquivontautravail,
desjeunesquivontlcole,desgensquipromnentleurchienetquinoussaluent
gentiment.Jeveuxvoirlaviesimpleetheureusedesgensdemonquartier.
JeanCloutier
From: Jared Gordon
Sent: Tuesday, November 14, 2017 4:18 PM
To: Ramirez, Lucy
Subject: I want the Salvation Army Shelter to Move to Montreal Rd.
Hi Lucy,
I was told that I could write in regarding the proposed move of the Salvation Army Shelter.
I know a lot of people are angry and against it coming to Montreal rd. but I am in support of it
moving to Vanier.
I live in Vanier, on and while there are challenges that will need to be
overcome I think there is no reason it cannot be moved to the proposed location besides the
classic not in my backyard argument. It is far enough from the downtown to alleviate a lot of
traffic but still close enough to access resources there and the 12 Bus goes right down Montreal
rd.
I used to live in Lowertown and was in the Byward Market quite often at that time. One is often
tripping over people living in the various shelter. It was also dangerous for my friends who
worked at the Menchies and other stores that closed at 10 or 11pm and had to walk through the
Market passed the various shelters.
I think the Market is shouldering more than its fair share of the programs and shelters and it is
time for Vanier to help support those with Addictions and homelessness.
Thank you for hearing my concerns.
Jared Andrew
From: O"Connell, Erin
To: Ramirez, Lucy
Cc: Duffenais, Melody
Subject: FW: Plan d"amnagement de l"Arme du salut
Date: Wednesday, November 15, 2017 7:51:25 AM
FYI
From: Marek Bilinski

Sent: Tuesday, November 14, 2017 12:48 PM
To: O'Connell, Erin <Erin.O'Connell@Ottawa.ca>
Subject: Plan d'amnagement de l'Arme du salut
Bonjour madame,
Je suis un rsidant du quartier Castle Heights, juste au sud du quartier vis par les plans
de l'Arme du salut d'y amnager ses nouvelles installations. Je m'oppose ces plans. Ce
refuge propos n'a pas sa place dans ce quartier, et srement pas sur le chemin de
Montral. Si le plan d'amnagement est modifi pour une aussi << grosse >> exception,
cela mettra en doute la fiabilit au plan d'amnagement de la ville pour l'avenir.
Il est impensable, mon avis, que le conseil accepte de modifier son plan d'urbanisme
pour un projet qui est aussi mal adapt au quartier et qui risque d'affecter ngativement la
vie communautaire de plusieurs lorsque si peu peuvent possiblement en profiter.
Merci.
Marek
From: Mariette Lachance
To: Ramirez, Lucy
Subject: Opposition au projet de construction de l"Arme du Salut au 333 chemin de Montral -
Date: Tuesday, November 14, 2017 5:56:51 PM
Madame,
Je tiens signifier au Comit d'urbanisme mon opposition au projet de construction de l'Arme du

Salut au 333 chemin de Montral qui est prsentement l'tude.
Je veux d'abord clarifier que mon opposition n'est pas contre les utilisateurs des services de
l'Arme du Salut. Ces services sont ncessaires et je les supporte entirement. Par contre, le
modle propos par l'Arme du Salut pour leur venir en aide est contreproductif. Il va l'encontre
de plusieurs tudes qui ont t faites qui dmontrent que ce modle de mga refuge est dpass
ce que l'Arme du Salut refuse de reconnatre. De plus, l'Arme du Salut n'a jamais vraiment t
l'coute des proccupations des rsidents et refuse de tenir compte de l'impact social et
scuritaire que ce projet aurait sur la communaut du quartier Vanier.
Je suis une fire rsidente de Vanier depuis plus de 30 ans. Les efforts qui ont t dploys par
la communaut, le milieu des affaires, la ville ainsi que par les services dj installs dans le
quartier de Vanier pour amliorer la vitalit du quartier vont tre srieusement affaiblies par la
propositon de l'Arme du Salut.
Je vous remercie l'avance et je vous prie de transmettre mes commentaires aux membres du
Comit de l'urbanisme qui tudie prsentement la demande drogation.
Mariette Lachance
Philippe Denault
Presentation to Planning Committee, City of Ottawa
November 15, 2017
Salvation Army Development Application, 333 Montreal road
[SLIDE 1] - INTRODUCTION
Good afternoon. Thank you for this opportunity to present my

comments. I'm here to speak on behalf of my family.
My focus today will be twofold:

1) The rationale for a site-specific exception to the Official
Plan;
2) Safety impacts on the community.
[SLIDE 2] - Rationale for Site Specific Exception
The proposed amendment to the Official Plan is site-specific.
As you know, administrative decision-making is governed by

rules and principles of administrative law.
One of them is whether or not the administrative body has the

legal authority to make the decision.
In this case, I would like to recommend that you examine

carefully your authority to make the proposed site specific
amendment. I also suggest that you get an external legal advice
for that.
The authority to make distinctions between persons - or

administrative discrimination - is necessarily implied in
municipal planning law. Still, it has to be justified... Implied
authority to discriminate is not absolute and must be justified.
As to this application, the justification would be the
complementarity of shelter use to other community service
uses, and their proximity.
That said, City staff admitted in their report (p. 14) that zoning
and policy tools are often reviewed when triggered by site
specific application. Shelter use would not be permitted on a
traditional main street because such application didnt exist in
2008.
Therefore, I'm asking, why not taking this opportunity to adopt

a more general policy regarding shelters on main streets?
For instance, what if another shelter would like to build its

facility on Montreal Road? or any other traditional main street in
Ottawa? The same justification could apply to that shelter.
// The other important issue with respect to the application and

city review concerns public safety.
City staff concluded that, in this case, only the design built is
relevant to public safety, and that the facility has been
designed in a manner to mitigate land useimpacts, i.e.
impacts of a shelter.
In my view, because safety has not been addressed more

broadly by the applicant, the design built fails to mitigate land
use with respect to its impacts on public safety.
[SLIDE 3] - IMPACTS ON PUBLIC SAFETY
Based on the applicable law and policy, it is very clear that

impacts on public safety should have been considered for this
application.
((Firstly, under the Planning Act, the Official Plan should
manage and direct the effects on the social environnement.))
((Secondly, the Provincial Policy Statement is very clear that land

use patterns - in this case the concentration of shelter and
residential care services - that may cause safety concerns
should be avoided.))
((Art 1.1 of the OP is also very clear that the City of Ottawa
shall have regardto the protection of public health and
safety.))
The Crime Prevention through Environmental Design review -

or CPTED review - submitted by the applicant is the only
document providing details on the safety features in the
proposed facility.
If you look at it carefully, you will notice that all the safety
features are offering protection for staff or clients only.
There will be fencing around the installation to prevent

unauthorized access, protection from outside influence,
separation of uses within the facility, etc.
Let's keep in mind, however, that the proposed facility is not a

jail. The clients will be free to leave, in particular from the
emergency shelter.
Also, the Salvation Army won't offer harm reduction programs

on their site. Clients with addiction will have to leave the
facility. A lot of them may be confused and might be hit by a
truck walking out on Montreal Road.
So, I claim that impacts of land use on public safety has not
been considered properly and the mitigation of these impacts is
minimal.
Their approach - in a vaccum - is totally inadequate. This

facility should not be conceived as an island. In this case,
interaction of land use with main street and Vanier will be
disastrous.
In my view, it is completely irresponsible NOT to examine the

impacts on this residential and commercial neighbourhood
As noted by Councillor Fleury, law enforcement and safety

issues are is very demanding around a shelter. In this case, the
spillover effect of land use should be a significant concern.
It is not good planning to leave public safety for consideration

for the future or to hand it over to the police.
On this slide, I wanted to illustrate the physical context of the

proposed facility.
As you can see, Montreal road and the proposed location is

surrounded by hundred of residential and family homes.
Clients will leave the premises by taking one or the other
direction of Montreal road.
There are three parks with play structures very close to the
facility (arrows)
There are multiple empty spots that homeless may also occupy
in the vicinity.
Montreal road, where Vanier residents go for shopping, will

become a corridor for the shelter clients who want to reach
downtown.
In other words, land use in this case implies numerous risks not
only for seniors, kids, shoppers or drivers, but also for clients
themselves.
As you can see here, our neighborhood is already impacted by

crime rates above the Ottawa average.
In terms of crime prevention, there is no valid rationale to

permit a facility of that magnitude, especially without carrying
out a proper safety impact assessment.
Under your legal duty of care, as decision-maker, you must

decline the application.
THE SALVATION ARMY PROPOSAL BREAKING THE RULES TO BREAK THE COMMUNITY
CITY OF OTTAWA ZONING IMPLICATIONS OF THE SALVATION ARMY SHELTER PROPOSAL
AT 333 MONTREAL ROAD.
Vanier Zoning and By-Laws Committee1
TABLE OF CONTENTS
Executive Summary ............................................................................................................................................... 2

Salvation Army Planning Rationale ........................................................................................................................ 3
Implications under the Planning Act & City of Ottawa Official Plan (2003) ............................................................ 3
A. The Orderly Development of Safe and Healthy Communities ........................................................................4
B. The Adequate Provision of a Full Range of Housing ........................................................................................6
C. The Protection of the Financial and Economic Well-Being of Communities. ..................................................8
Implications under the City Zoning By-laws ......................................................................................................... 10
A. Restrictions on Main Streets .........................................................................................................................10
B. Restrictions in Placements ............................................................................................................................14
C. Separation Distance Between Shelters .........................................................................................................16
D. Maximum Four Shelters in Ward 12 .............................................................................................................18
Case Law .............................................................................................................................................................. 20
Summary of Proposal Breeches of City Policies and By-Laws ............................................................................... 21
Conclusion ........................................................................................................................................................... 21
ANNEX A: Planning Act: 2014 Provincial Policy Statement ................................................................................ 22
ANNEX B: City of Ottawa Official Plan ................................................................................................................. 23
ANNEX C: Zoning By-law 2008-250 Consolidation ............................................................................................... 24
ANNEX D: City of Ottawa Reports ........................................................................................................................ 25
ANNEX E: Low Income Support Services and Housing Options in Vanier .............................................................. 26
ANNEX F: Graphic Representation of the Shelters in Vanier ................................................................................ 27
ANNEX G: Vanier Zoning and By-Laws Committee ............................................................................................... 29
ANNEX H: Media & Communications Lines .......................................................................................................... 30
About the author: ................................................................................................................................................ 31
1
The Vanier Zoning and By-Laws Committee Chair is Peter Kucherepa, Barrister & Solicitor. Members listed in Annex G. The author rendered
this report under his own volition. The report reflects personal research and does not reflect the interests, positions or policies of his
employer(s), any level of government nor organizations to which the Chair or any members are affiliated, or not. Mr. Kucherepa can be
reached at . The author acknowledges the support from community organizations and individuals, including Councillor
Mathieu Fleury for support and information.
CITY OF OTTAWA ZONING IMPLICATIONS OF THE SALVATION ARMY SHELTER PROPOSAL PAGE 2
Executive Summary
The Salvation Army proposal to locate a mega shelter at 333 Montreal Road is in conflict with laws and
policy principles outlined in the Ottawa Official Plan, city planning reports on shelters, and the city
zoning by-laws. As a consequence, it is recommended that the City of Ottawa not accept the planning
rationale provided nor provide non-confirming rights for this development to occur at the proposed site.
First, the proposal violates the City of Ottawa Official Plan as the shelter accommodation is not
designed in a manner compatible with the general area. If the shelter proposal violates key tenets of
the plan, including the Montreal Road District Secondary Plan, and jeopardizes economic diversity and
development in Vanier. This provides a compelling community objection to the proposed development
Second, the proposal violates all shelter zoning regulations in the city. The proposal is seeking an
exception to the rule that shelters are not permitted on Traditional Mainstreets. The reasons outlined in
the Salvation Army proposal only benefit the proposal itself, not the main street community.
Furthermore, given the existence of other shelters in Ward 12, abiding by the city definition of shelter
the proposal exceeds both the maximum number of shelters and the shelter minimum distance rules.
The applicants proposal is in direct and blatant violation of the city shelter rules and community
planning principles. As such, the City of Ottawa should not provide a positive recommendation to the
Salvation Army proposal.
A memorable maxim of Lord Denning, perhaps the greatest English judge of the century, is that where
there is a rule there is a remedy; the most equitable remedy in this scenario is a denial of the
application, and not permitting exceptions to the rules. Any decision to the contrary provides a clear
cause of action for appeal to the Ontario Municipal Board.
Salvation Army Planning Rationale
The Salvation Army is proposing to build one of the largest shelter facilities in Canada at 333 Montreal
Road.2 The planning rationale for the proposal includes the construction of a new 9,600 square metre
facility that will offer temporary residential accommodations including short term emergency
accommodation for those who are homeless.3 This proposal includes 140 emergency shelter beds and
210 beds for a variety of uses, including addiction programs and longer term social housing.4 Of
these 210 beds, 38 are considered overflow if the 140 emergency shelter beds prove insufficient to
meet demand.5 In all, this 350 bed facility is seven times larger than the average shelter size in Canada,
creating, in effect an unprecedented super shelter. 6
The applicant acknowledges that the proposed development includes a shelter but caveats that it
consists of innovative services and holistic approach that go beyond the traditional definition of a
shelter.7 However, as the facility includes a shelter the facility, as a whole, attains the clear legal
definition of a shelter. 8
The applicant further seeks a single zoning exception for this development, that is the rule that does
implicitly permit shelters may be located on Traditional Mainstreets in accordance with City of Ottawa
Zoning By-law Policy 4 of Section 3.1. 9
Implications under the Planning Act & City of Ottawa Official Plan (2003)
The Planning Act10 policy interpretation note outlines a fiduciary responsibility for the City of Ottawa to
undertake planning considerations that ensure strong and healthy communities. 11
The Ottawa Official Plan outlines overall land use policies to achieve healthy, sustainable, inclusive
communities while retaining and enhancing downtown cores so as to achieve a vibrant yet safe
downtown - one which is economically and socially healthy.12 The Plan provides guidance to the City of
Ottawa to ensure that development projects and policy decisions have a generally positive effect on the
communities in which they impact. This means that policy decisions must enable the sustainable socio-
cultural and economic fulfillment of the concerned communities while further ensuring sustainability.13
2
City of Ottawa. Salvation Army New Facility Development Application - Montreal Road http://ottawa.ca/en/city-hall/public-
engagement/planning-and-infrastructure/salvation-army-new-facility-development-application-montreal-road
3
Salvation Army Proposal (Planning Rationale) 333 Montreal Road. June 13, 2017. [Salvation Army Proposal] See.
http://webcast.ottawa.ca/plan/All_Image%20Referencing_Site%20Plan%20Application_Image%20Reference_2017-06-
20%20Planning%20Rationale%20D07-12-17-0077.PDF
4
Ibid.
5
Ibid.
6
The National Shelter Study reports that the average size of a homeless shelter in Ontario constitutes 51 beds. See: Aaron Segaert,
Homelessness Partnering Strategy: The National Shelter Study: Emergency Shelter Use in Canada 2005-2009. Homelessness Partnering
Secretariat. Human Resources and Skills Development Canada 2012. It is also larger than the Montfort hospital
http://homelesshub.ca/sites/default/files/Homelessness%20Partnering%20Secretariat%202013%20Segaert_0.pdf
7
Supra, Salvation Army Proposal
8
Supra. Ottawa Official Plan. See section entitled Separation distance between shelters for a clear legal definition of a shelter in accordance
with city of Ottawa by-laws.
9
Supra. Salvation Army Proposal, P. 3, P.22
10
Planning Act, R.S.O. 1990, c. P.13 https://www.ontario.ca/laws/statute/90p13
11
Provincial Policy Statement Under the Planning Act. 2014. [Planning Act Guidelines] Part V. Ministry of Municipal Affairs and Housing
Provincial Planning Policy Branch. http://www.mah.gov.on.ca/AssetFactory.aspx?did=10463
12
City of Ottawa. Report to Planning and Environment Committee and Council 22 May 2008 Submitted by: Nancy Schepers, Deputy City
Manager, Planning, Transit and the Environment Urbanisme [City Report, 2008]. Ref N: ACS2008-PTE-PLA-0011 Source :
http://ottawa.ca/calendar/ottawa/citycouncil/ec/2008/06-10/ACS2008-PTE-PLA-0011.htm
13
The Official Plan is one of the most important tools a City has to demonstrate a commitment to sustainability. This plan has sustainability as
its primary goal where sustainable development is defined as development that meets the needs of the present generation without
compromising the ability of future generations to meet their own needs.
The plan further includes a policy interpretation note by city of Ottawa officials (2008) (City Report),
concerning policies regarding shelter locations within the city.14
A. The Orderly Development of Safe and Healthy Communities
Municipal Policy & Principles
The Planning Act guidelines outline that the City of Ottawa must avoid
development and land use patterns which cause public health and
According to a City Report,
safety concerns.15 the proposed site is likely to
increase drug trafficking,
The Guiding Principles of the Official Ottawa Plan, present that the drug abuse, and illegal acts
object of the plan is to provide the orderly development of safe and near shelters. A proposed
healthy communities.16 A fundamental policy objective of the act is mega shelter will only
that a clean and healthy environment and a strong economy are increase this problem while
inextricably linked to strong communities. 17 making existing shelters
less effective, resulting in
higher enforcement and
Regarding community safety, the City Report notes that a
social costs to the city.
concentration of shelters increases drug trafficking, drug abuse, and
illegal acts as they occur adjacent to the shelters.18 The report further
provides that a concentration of negative impacts, worsens the health
and safety situations of both the homeless and at-risk, as well as
increases safety concerns of the residents, particularly in communal areas, such as streets, sidewalks,
stores, parks and schools. 19
Salvation Army Proposal
The Salvation Army proposal acknowledges the issue of public safety of shelters.20 However, it attributes
the safety risk to a perceived over-concentration of social services within Ward 12 and, more
particularly, the current distribution of shelters, drop-in centres, and residential care facilities within the
ward.21 As such, it attempts, ineffectively, to argue, that building the facility at the proposed site at 333
Montreal Road would reduce negative safety impacts to the community. The proposal would introduce
350 men, many with mental health and addiction problems, into the centre of a residential community.
The proposal further admits that the facility provides no security off-site; beyond police involvement no
processes are suggested to ensure the safety of the community22. No security is outlined be provided
for Montreal Road frontage.
Concerning community health, the proposal further implies that an additional shelter in Ward 12 will
result in greater community health, specifically, highlighting that it will provide housing and support for
some of the most vulnerable members of the community.23
14
Ibid.
15
Supra, Planning Act Guidelines. Part V. P.6. See also The Role of the Official Plan. http://ottawa.ca/en/node/1009710#1-1-role-official-plan
16
Ottawa Official City Plan. Section 1 - http://ottawa.ca/en/node/1009710
17
Supra, Planning Act Guidelines
18
Supra, City of Ottawa Report, 2008
19
Ibid.
20
Supra, Salvation Army Proposal. P. 26.
21
Ibid.
22
See Salvation Army Information Site www.333montrealroad.ca. FAQ section.
23
Ibid.
Analysis & Implications
The Salvation Army proposal would not advance health and safety in Vanier. It deviates from the policy
objectives of public health and safety of the Vanier Community under both the Planning Act and the City
Official Plan.
The proposal would very likely increase crime levels in an area that already a higher crime rate per
capita than most other communities in the city. The introduction of a very large number of high-risk,
vulnerable people into the proposed location would undoubtedly increase the risk of spill over into
the broader Vanier community. This would increase issues such as prostitution, vagrancy, drug
trafficking and use, personal and property crime, petty crime, pan handling, as troubled people commit
crimes to finance their addictions and life-style. All of this would be compounded by the sheer size of
the super shelter facility proposal.
It is respectfully submitted that it is not a concentration of shelters that correlates to high crime areas,
but the existence of shelters in sensitive economic areas, which results in higher crime. The proposed
site is adjacent to a plethora of pay-day loan centers, pawn shops and marijuana dispensaries,
proliferating crime and reducing community health and wellness.24 Further, the proposed site is on a
Mainstreet, thereby increasing passing pedestrian engagement in crime related activities. According to
City of Ottawa Police crime trends, the overall crime rate of Ward 12 Rideau-Vanier has increased 11% in
2015-16.25
The proposal will also negatively affect pre-existing community support services in Vanier. A
proliferation of low income persons in an already economically sensitive area would negatively affect
the rehabilitation prospects of people already in existing shelter facilities. There are 25 low income /
affordable housing facilities that serve 386 residents in Vanier to address social challenges (see Annex
E). Exposing these 386 residents to additional risk factors of drug availability and addiction influences,
money laundering opportunities (via payday loan centers), and crime facilitators is not constructive to
on-going rehabilitation services.
In fact, a 2006 study by the City of Ottawa provides that studies exist which indicate that at-risk
populations are able to function more effectively and integrate more successfully into their communities
when they are housed in smaller units in dispersed areas, rather than concentrated into large buildings
in a limited number of neighborhoods. 26 It further provides that the risk of relapse into addictive and
other difficult behaviors is reduced when clients are not grouped together in large numbers.27 As such,
the proposed site actually reduces the capacity for the Salvation Army to achieve its mandate and
further negatively affects other nearby shelters and support services in achieving their objectives.
In summary, the Salvation Army proposal did not consider the impact of a mega shelter on community
safety. Furthermore, the Salvation Army proposal erred in holding that an addition of a mega-shelter, in
an area which already contains a proliferation of shelters and support services, would not contribute to
24
Peter Kucherepa. Municipal Policy Options to Address the Proliferation of Payday Loans and other Predatory Lenders in Ottawa. 2016. The
paper provides that a concentration of payday loan centers increases the propensity of local crime.
https://www.dropbox.com/s/kxboph19g6bzt8z/Pay%20day%20Loan%20Paper%20V15.pdf?dl=0
25
Ottawa Police 2015 - 2016 Crime Trends Ward 12 - Rideau-Vanier https://www.ottawapolice.ca/en/annual-
report/resources/Crime_Stats/Ward_12-Rideau-Vanier.pdf
26
City of Ottawa Planning and Environment Committee. Regulation of Special Needs Housing in Rideau-Vanier. 28 Aug. 2006. Ref N: ACS2003-
CCS-PEC-0011 [Shelter Separation Distance Report] http://ottawa.ca/calendar/ottawa/citycouncil/pec/2006/09-12/ACS2006-CCS-PEC-
0011.htm
27
Ibid.
the orderly development of a safe and healthy community. This

project would drastically increase costs for community social
services, by-law enforcement, security and policing.
Vanier has double the social
and affordable housing
Recommendation
options than other areas of
Ottawa. A mega shelter will
It is recommended that the Salvation Army not be permitted to only further ghettoize the
proceed with the project of siting a shelter at 333 Montreal Road community.
because their doing so would negatively affect security and
safety and would negatively affect the social well-being of the
community.
B. The Adequate Provision of a Full Range of Housing
Under the Planning Act guidelines, the City of Ottawa must consider the well-being of the municipality,
in accommodating an appropriate range and mix of residential and institutional spaces to meet long
term needs.28
The Official Plan further outlines an objective to ensure a wide range of affordable housing into all
neighborhoods to meet the varied needs of the community housing policies support increased
availability of affordable housing and address the integration of a range of housing into all
neighbourhoods to meet the varied needs of all household types including families, seniors and young
people.29
This principle contains two main policy objectives: first to ensure an equitable distribution of shelters
across the city of Ottawa, reducing a proliferation in low income areas, and second to ensure that any
development has a positive impact upon the needs of individual communities.
A 2006 City of Ottawa Study found that Ward 12 contains the highest concentration of homeless
shelters, the most Ottawa Community Housing Centers and the most confirmed rooming houses with
the lowest average income.30 In fact, the report adds Rideau-Vanier has an excessive concentration of
special needs housing, rooming houses (both legal and illegal), halfway houses, soup kitchens, shelter
accommodations which in turn exacerbates a host of social problems.31
According to the City Report, a proliferation of shelters lowers health and safety of both the homeless
and those at risk, undermining the reformation objectives of individual pre-existing shelters.32 The
policy objective of reducing the number of shelters in Ward 12 is to permit a more equitable distribution
of shelters, group homes, community health and resource centers, and residential care facilities.33
According to the City Report, a concentration of social services leads to fewer positive impacts for both
residents as well as for those seeking the social service.34
28
Supra, Planning Act Guidelines. Part V. P.6
29
Ibid. See also See also The Role of the Official Plan. http://ottawa.ca/en/node/1009710#1-1-role-official-plan
30
Supra, Shelter Separation Distance Report
31
Ibid.
32
33
Ibid.
34
Ibid.
As the proposed site is on Montreal Road, the border of Vanier North and Vanier South, the following
table provides comparative charts of housing options in Vanier (North and South) as compared to the
remainder of the city.35
Vanier Vanier City

Table 1: OTTAWA NEIGHBOURHOOD STUDY
North South Average
HOUSING Number of social and affordable
546 501 229.4
housing units
Number of social and affordable
63.7 67.6 24.4
housing units per 1000 people
Number of domiciliary hostels 2 0 0.3
Number of domiciliary hostels per
0.2 0 0
1000 residents
Number of Rooming Houses 3 0 1.4
Number of Rooming Houses per 1000
0.3 0 0.1
residents
INCOME Percent of total population living in
22.1 25.8 11.6
low income
Percent of population aged 18-64
23.6 24.5 11.6
living in low income
OWNERS Percent of owner households 40 29.1 67.3
Percent of tenant households 59.9 71 32.7
MOTHER Percent English 46.1 38.2 62.4
TONGUE Percent French 36.9 40.6 14.2
Vanier, as a whole (both North and South), contains nearly double the city average in number of social
housing availabilities, almost three times the number of affordable housing unit, three times more
rooming houses, and double the tenants, than the city averages. Furthermore, the percent of low
income residents is double the city average. As such, Vanier contains a disproportionate amount of
affordable city housing options.
The following above statistics on pre-existing housing conditions demonstrates that any additional low-
income housing or shelter options in Vanier will further derogate Vanier from attaining city averages on
affordable housing options.
The Salvation Army Proposal provides detailed information of emergency housing solutions, including
emergency accommodation, state-of-the-art housing facilities, day programs, and services to serve the
most vulnerable families and individuals in our community.36
The proposal does not address the concentration of low income housing in the targeted community of
Vanier. The Salvation Army proposal would concentrate low income residential facilities in Vanier, not
attain a diversification of affordable housing options that support community needs. The Salvation Army
proposal clearly contradicts the policy objectives of the Planning Act and Ottawa City Plan as regards
diversity of affordable housing options in Vanier.
35
Ottawa Neighbourhood Study. Vanier North and Vanier South. http://neighbourhoodstudy.ca/vanier-north/ and
http://neighbourhoodstudy.ca/vanier-south/
36
Supra, Salvation Army Proposal. P.22
The Salvation Army proposal does not pursue a strategy aimed at a variety of housing, but the opposite.
It concentrates low income housing options in one community that already exceeds city low income
housing averages. It is evident that the proposal will concentrate low income housing options (i.e.
shelters), clearly deviating from the policy objectives of the 2008 City Report. This will result in negative
impacts on Vanier, not fitting with the needs of the community. A concentration of social services
undermines constructive social development planning and good use principles for social services. An
undue concentration creates a ghettoization of low income services creating negative impacts for
the Vanier community.
Limiting the diversification of housing in Vanier reduces the overall quality of housing stock in Vanier. A
concentration of low income housing options creates a subpar housing stock, limits mature renters,
condominium development and the castrates gradual improvement of the community.
In summary, the Salvation Army proposal does not meet the city housing policy objectives of
diversification and, as a result, low income housing options will not be dispersed across Ottawa, but
rather be concentrated in Vanier. The proposal will not attain community integration principles and
negatively affects the Vanier housing stock hampering long term development.
Recommendation
It is recommended that the Salvation Army not be permitted to proceed with the site selected at 333
Montreal Road as the proposal would not serve the Vanier communitys needs but rather deepen the
concentration of temporary shelter housing in Vanier, thereby ghettoizing the neighborhood and very
negatively affecting long-term housing development.
C. The Protection of the Financial and Economic Well-Being of Communities.
The Ministry of Municipal Affairs and Housing (2011) handbook provides the policy rationale that
housing is one of the most fundamental of human needs, a key driver of shaping the economic and
social sustainability of communities.37 In fact, any municipal housing policy must be relevant to local
circumstances and support economic prosperity.38 Following the Planning Act guidelines, the city must
promote efficient development and land use patterns which sustain the financial well-being of the
Province and municipalities over the long term.39
The Ottawa Official plan further includes an economic strategy to ensure a strong, growing and
diversifying economy while also reflecting the specific needs of the community and the qualities that
make the neighborhoods special in considering change of land use. 40 The City Report provides that the
object of zoning shelters is to regulate land use to mitigate negative impacts, worsening the health and
safety of both the homeless and at-risk, as well as increased safety concerns amongst the residents,
particularly in communal areas, such as streets, sidewalks, stores, parks and schools including loitering
near residential neighborhoods.41
37
Municipal Tools for Affordable Housing (Handbook). Ministry of Municipal Affairs and Housing. Provincial Planning Policy Branch.
Government of Ontario. 2011. http://www.mah.gov.on.ca/AssetFactory.aspx%3Fdid%3D9270
38
Ibid.
39
Supra, Planning Act Guidelines. Part V. P.6. See also The Role of the Official Plan. http://ottawa.ca/en/node/1009710#1-1-role-official-plan
40
Ibid.
41
The Montreal Road District Secondary Plan provides that decisions should be made that compliment and
improve upon the positive qualities of the existing character of the District.42
The proposed development highlights a state-of-the-art facility which would not be a mega-facility but
rather an important community hub that would respond to a broad range of needs of low income
clientele.43
The Salvation Army proposal would undercut efforts to pursue economic development while further not
ensuring the special needs of Vanier are met. The Salvation Army proposed
plan of a shelter at 333 Montreal Road clearly violates key economic
developmental objectives of the City of Ottawa Official Plan (2003) and the
Planning Act. A mega shelter in Vanier
will negatively affect the
The proposed shelter would undercut on-going efforts to diversify the socio-economic
economy, and reduce crime, including prostitution, vagrancy, property and development of the
personal crime and loitering.44 This would deter property investment Vanier community
generally especially higher value investment and would be a disincentive including housing stock,
for mature renters and for young families, two groups who take advantage commercial investment
of Vaniers low real estate-costs and its reasonable proximity to downtown. and economic
The proposed shelter site would add to the pre-existing high volume of development.
shelters and social service providers already located in Vanier, negatively
impacting socio-economic advancement and community development.
The proposed shelter would further have a negative effect on the general economic development of
Vanier. This would reduce meaningful economic investment into a transitioning commercial area.
Quarter Vanier BIA is concerned that the proposed development is not an appropriate anchor business
for Montreal Road.45 Low end business options (e.g., payday loan centers) would be the norm, which
would harm Vanier and deter local visitation and tourism.
In summary, the proposed site plan does not consider the unique and special needs of the Vanier
community in economic and social development. Furthermore, the proposal does not improve upon the
positive qualities of Vanier economic development, but exacerbates poverty and crime. This
development would clearly violate the principles of both the provincial policies and city plans for the
economic development of Vanier.
Recommendation
It recommended that the Salvation Army proposal not be permitted to proceed with the site selected at
333 Montreal Road would not contribute to the financial and economic well-being of the community.
42
Montreal Road District Secondary Plan. http://ottawa.ca/en/city-hall/planning-and-development/official-plan-and-master-plans/official-
plan/volume-2a-secondary-plans/montreal-road-district-secondary-plan
43
44
This includes efforts to reduce the proliferation of payday loan centers, as authored by Peter Kucherepa, Barrister & Solicitor.
https://www.dropbox.com/s/kxboph19g6bzt8z/Pay%20day%20Loan%20Paper%20V15.pdf?dl=0
45
Michelle Nash Baker. Vanier BIA not happy with Salvation Army's plans to move to Vanier Jun. 23, 2017. Ottawa Community News.
https://www.ottawacommunitynews.com/news-story/7388449-vanier-bia-not-happy-with-salvation-army-s-plans-to-move-to-vanier/. See also
public letter from Quartier Vanier BIA available at http://vanierbia.com/wp-content/uploads/2013/09/Final-w-Letterhead-Salvation-Army-
QVBIA-Statement-July-10.pdf
The planning rationale does not consider the impact of the proposed development on the provinces
planning and housing objectives or the City of Ottawa Official plan: nor does it appropriately consider
the economic development objectives of the community.
In conclusion, the Salvation proposed project development at 333 Montreal Road clearly violates
primary policy objectives outlined in the Planning Act and the Official Plan, and as such, should not be
permitted at the proposed site.
Implications under the City Zoning By-laws

In 2008, the City of Ottawa updated its zoning bylaws, entitled, City of Ottawa Zoning By-law (2008). It is
an objective, rules based approach that addresses the relocation and movement of shelters in the city. 46
The bylaw update was based on a study undertaken by the City entitled: Rideau-Vanier Ward 12
Interim Control By-Law Study and Zoning By-Law Amendment (City Report) adopted by the Planning
and Environment Committee.47 The City Report serves as an interpretive note regarding the legal and
policy considerations in addressing the placement, management and proliferation of shelters in Ward 12
in compliance with the City Plan. The report provides the guiding principles on effective site placements
of shelters in the city.
The by-laws and City Report, read together, contain several restrictions on placement of shelters in
Ottawa.
A. Restrictions on Main Streets
The interpretive note for the Planning Act provides that long term economic prosperity should be
maintained and, where possible, should enhance the vitality and viability of downtowns and
Mainstreets.48
According to the City of Ottawa Official Plan, shelter accommodation shall be designed in a manner
compatible with the general area.49 The socio-economic policy of a Traditional Mainstreet Zone (TMZ) is
to encourage diverse economic development.50 The policy purpose of a TMZ is to recognize primary
business or shopping areas, as provided and defined by Business Improvement Areas.
Section 3.6.3 of the City of Ottawa Official Plan states that all Mainstreets are intended to function as
mixed-use corridors with the ability to provide a complete range of goods and services for neighbouring
communities and beyond.51 A wide range of uses are permitted within the Mainstreets designation
including retail and service commercial uses, offices, residential and institutional uses. A mix of uses is
encouraged, either within the same building or side by side in individual buildings. 52
46
City of Ottawa Zoning By-laws. Section 134 Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_05_en.pdf
47
City of Ottawa. Report to Planning and Environment Committee and Council 22 May 2008 Submitted by: Nancy Schepers, Deputy City
Manager, Planning, Transit and the Environment Urbanisme [City of Ottawa Report, 2008]. Ref N: ACS2008-PTE-PLA-0011 Source :
http://ottawa.ca/calendar/ottawa/citycouncil/ec/2008/06-10/ACS2008-PTE-PLA-0011.htm
48
Provincial Policy Statement Under the Planning Act. 2014. Ministry of Municipal Affairs and Housing Provincial Planning Policy Branch.
http://www.mah.gov.on.ca/AssetFactory.aspx?did=10463. P.19
49
Ottawa Official Plan. Section 3 - Designations and Land Use http://ottawa.ca/en/node/1009706
50
Don Butler, Ottawa Citizen "We are trying to make the corridors graduate into true urban avenues, where they become the focal points for
the neighbourhood, not dividers. You can have your daily needs served on the avenue. That's the model.", January 1, 2017,
51
Supra, Salvation Army Proposal P.15
52
Ibid.
The City of Ottawa Report, 2008 specifically prohibits shelters along those streets in Ward 12, as well as
all streets city-wide, that are designated Mainstreet in the Official Plan.53 The report clearly provides
that the emplacement of shelters is not permitted in the Traditional Mainstreet and Arterial Mainstreet
Zones under the existing former Ottawa and Vanier Zoning By-laws. The proposed site road, Montreal
Road, attains the definition of a TMZ by the City of Ottawa.
The Montreal Road District Secondary Plan outlines key policy objectives for the development of
Montreal Road. 54 The main goal of the plan is to foster development and redevelopment which
compliments and improves upon the positive qualities of the existing charters of the District.55 The plan
includes that buildings fronting Montreal Road will have a maximum height of six stories.56
Vanier is a unique French Quarter community demonstrating special characteristics and having special
needs. According to Table 1 (supra), Vanier contains twice the level of mother tongue French speakers
than the remainder of Ottawa. This has resulted in all commercial and provincial services (i.e. Montfort
hospital) providing French language services. Further, any development and redevelopment should
include building, site design and streetscaping elements which acknowledge the history of the French
Quarter.57
Lastly, Vanier holds a higher level of First Nations population than elsewhere in the city. As a
consequence, any major social development project must address the interests and needs of this
vulnerable population.
The proposed location is in direct violation of by-law requirements and as a result the Salvation Army is
seeking an Official Plan Amendment, an exception to the rule. 58 The proposal provides the following
justification for non-compliance exception:
1. Mainstreet use: The proposed site is only 14.96 metres on the Mainstreet and as such the de
mimimus usage is not consequential to the application.59
2. Shelter scope: The Salvation Army proposal is mixed use so it is not only a shelter and as such
will add to the diversity of the TMZ of Montreal Road. 60
3. Height requirements: The proposal acknowledges the building heights maximum of six (6)
storeys, with a minimum building height requirement of two (2) storeys, but also notes greater
building heights may be considered in accordance with the city policies.61
53
City of Ottawa Report, 2008. The use [of shelters] is not to be permitted in the Mainstreets designation in keeping with the Official Plan.
Therefore, the use will not be permitted in the Traditional Mainstreet and Arterial Mainstreet Zones under the existing former Ottawa and
Vanier Zoning By-laws, those streets that are zoned the equivalent of the proposed TM or AM locations in the Comprehensive Zoning By-law
will not be permitted to have a special needs house or shelter abutting Beechwood Avenue, Montreal Road and McArthur Avenue, Rideau
and Dalhousie Streets.
54
55
Ibid.
56
Ibid.
57
Ibid.
58
Supra, Salvation Army Proposal
59
Ibid. P.16
60
Ibid. P. 15
61
Ibid.
4. Mainstreet benefits: The proposal argues that a Traditional Mainstreet is most beneficial for a
shelter location given increased activity and visibility, accessibility by pedestrians, and their
proximity to transit and other associated services.62
5. Cultural adaption: The proposal will accommodate the location in Vanier under the Montreal
Secondary Plan as it will include setbacks, building heights and development and
redevelopment in this area will include building, site design, and streetscaping elements that
acknowledge this history.63
The Salvation Army proposal fails to adequate address the policy implications of its development,
misleading the public on the actual implications of its proposal to the city by-laws.
1. Mainstreet use: Notwithstanding the limited amount of frontage, the Salvation Army proposal
undertakes a significant frontage of Montreal Road, as the design excludes the existing Salvation
Army Thrift Store. These buildings, taken together, by the same owner, provide a significant
portion of Montreal Road in comparison to other retailers.
2. Shelter scope: The Salvation Army proposal is effectively moving a shelter location from
downtown to Vanier, and then increasing the shelter size to mega shelter. The proposal does
not effectively diversify services to the point of redefining the main purpose of the application,
which is providing (and increasing) shelter services. Furthermore, the proposal does not take
into consideration the pre-existing plethora of shelter and support services in the TMZ area of
Montreal Road and elsewhere in Vanier.64 Thus, the new shelter does not add to or complement
diversity in Vanier, as the region already holds a disproportionate level of support services as
compared to other areas of the City of Ottawa (see Annex E).
3. Height requirements: The plan may be in compliance with the height requirements, however, a
visual inspection of the plans further notes the building may be eight (8) storeys tall in some
places, requiring a full analysis of the building objectives, both short term and long term, as
height adjustments were implied in the proposal.
4. Mainstreet benefits: The Salvation Army justification on the exception sought is based upon the
direct benefits of the proposed shelter, but does not serve the policy objectives of Traditional
Mainstreet planning.
First, the proposed development is not commercial in nature and is incompatible with
permissible planning uses on a Mainstreet. The proposed development does not fit with the
commercial planning objectives of Montreal Road in particular. The Vanier Community is
seeking diverse economic investment, reducing the proliferation of low-end establishments
catering to vulnerable people. Vanier needs commercial or non-commercial entities that pursue
positive socio-economic impacts to the community. This is reflected by the planning and
development objectives of the Quartier Vanier Business Improvement Association. The Vanier
Business Improvement Area has outlined its opposition to the shelter as it is not for a business
or commercial purpose which is congruent with the commercial development objectives of
62
Ibid.
63
Ibid. P. 19-21
64
See Infra.
Montreal Road.65
Second, the proposal would exacerbate socio-economic concerns outlined in the City Report,
including personal and property crime and loitering in an area of pedestrian traffic and public
transportation, negatively affecting the core benefits of a Mainstreet environment.
Third, the proposal would likely increase traffic and parking problems and burden public
transportation.
The proposed location will increase the volume of emergency vehicles attending
emergencies at the proposed location, up to two vehicles per day.66 This will increase local
disturbance at a rate far higher than expected in a residential area. And it will impede
destination and transit traffic at the entrance to the site, a main arterial road.
The proposed location will receive three trucks vehicles per hour for deliveries in the
morning peak hours. The commercial zone purpose as a truck delivery service on Ste. Anne
Street, Montfort Street and Granville Street will have significant impacts on the residential
community, especially the children and the elderly.67
Under the Montreal Road Redevelopment Plan, Montreal Road will undergo reductions of
parking spaces and bus stops.68 To accommodate the proposed shelter location, parking
spaces would likely further be reduced on Montfort Street to permit trucks to turn at the
intersection of Montreal Road and Grandville St. and the intersection of Montfort St. and
Ste-Anne St.
Twenty-seven spaces would be reserved for employee parking while 62 spaces are actually
needed.69 The 27 spaces include 3 spaces for the outreach vans and ambulance and for 13
for retail visitors.70 Four of these spaces may be unavailable when the facility is receiving
deliveries.
The proposed mega shelter would place additional stresses and challenges on the existing
and planned infrastructure of Montreal Road, undercutting forecasted benefits.
5. Cultural adaptation. Further, the proposed development does not meet the requirements of
the Montreal Secondary Plan which requires that developments compliments and improves
upon the positive qualities of the existing characteristics of the District. Excluding setbacks, the
development application does not provide specifics of any building, site design and
streetscaping elements which acknowledge the history of the French Quarter. Furthermore, the
proposed development does not offer services in French, a key aspect of the culture and
language of the community (see Table 1).
65
Michelle Nash Baker. Vanier BIA not happy with Salvation Army's plans to move to Vanier Jun. 23, 2017. Ottawa Community News.
https://www.ottawacommunitynews.com/news-story/7388449-vanier-bia-not-happy-with-salvation-army-s-plans-to-move-to-vanier/
66
Parsons. Transportation Overview of 333 Montreal Road. [Transportation Study] P.4
http://webcast.ottawa.ca/plan/All_Image%20Referencing_OP%20Amendment%20Application_Image%20Reference_2017-06-
20%20Transportation%20Oveview%20D01-01-17-0013.PDF
67
Ibid.
68
Montreal Road Transportation Planning and Functional Design Study. Public Open House. March 9, 2017.
https://documents.ottawa.ca/sites/documents.ottawa.ca/files/montreal_road_pohboards_en.pdf Montreal Road - reduction of available
parking after the upgrade of the road in 2018 from 173 to 148 - a reduction of 25 spots.
69
Supra, Salvation Army Proposal. P.10 The proposal only includes 10 parking spaces for the Thrift Store.
70
Ibid.
Furthermore, the proposal does not address the specific needs of the First Nations population in
Vanier.
Recommendation
The proposed non-conforming/compliance amendment by the applicant to permit a shelter on Montreal

Road as a Mainstreet should not be granted by the City of Ottawa. The proposal is in clear violation of
the Mainstreet restriction outlined both in the by-law and the City Report. The Salvation Army proposal
emphasizes positive impacts of the proposed shelter to itself, but negates the positive impact of policy
objectives of the Montreal Road development plan. Further, the proposal requires additional
consideration regarding height requirements, which are somewhat fluid in the proposal. The proposal
does not reflect community culture or serve the francophone or First Nations community. It does not
entail a positive commercial impact to the French Quartier community as a whole (as many service
providers pre-exist). Any amendment to Mainstreet policy must have a positive impact on the economic
development to the community. The proposed application exception does not attain these or other
positive tests and therefore must not be permitted.
B. Restrictions in Placements
The Ottawa Official Plan provides that where the zoning by-law permits a dwelling in areas designated
General Urban Area, Developing Community, Central Area, Mixed-Use Centre, and Village, the bylaw will
also permit shelter accommodation. Shelter accommodation shall be designed in a manner compatible
with the general area. The zoning by-law may include provisions to regulate the size and location of this
use.71
Further, Section 134 of the Zoning By-law Part 5 Residential Provisions provides that where located
within a Minor Institutional Zone, a shelter must be separated from any lot zoned R1, R2, R3 and R4 and
the separation must be a distance of 30 metres from each property line of the lot on which the shelter is
located and the Residentially-zoned lot.72
The City Report restricts shelters in only commercial zones (that are non-Mainstreet and non-Local
Commercial) mixed used and institutional zones.73 This means the shelters that are institutional in
nature should not be placed in residential zones. Further, the report provides, prohibiting residential
care facilities and shelters in all Local Commercial Zones throughout the city as the intensity that is not
compatible with the nature of local commercial uses.74
The Salvation Army Proposal provides that the location, at the intersection of a commercial and
residential zone, would increase housing options and intensification of an urban area, although not the
standard forms of residential intensification.75
71
City of Ottawa. Official Plan Volume 1 Section 3. Designations and Land Use. http://ottawa.ca/en/node/1009706
72
City of Ottawa Zoning By-laws. 134. Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_05_en.pdf
73
Supra. City Report.
74
Supra. City Report.
75
Supra, Salvation Army Proposal. P. 12-13
The proposed development would also be based on eight (8) design principles that include creating
spaces that facilitate community interaction, controlling access, providing secure and private outdoor
spaces for clients, and preserving the privacy of surrounding residents.76 The outdoor terraces are
designed to be secure, private, and internal to the site to avoid noise and privacy impacts on the
surrounding residential development.77 The proposal also provides that noise, traffic, parking, outdoor
amenity areas, massing, and loading and servicing on adjacent properties have been mitigated as noted
above through the internalization of many of these items, as well as the use of landscape elements.78
The Salvation Army proposal violates restrictions in commercial placements. The proposed site is further
located in a Local Commercial zone, not compatible with the nature of local commercial uses and
creating a conflict with the intention of the City Report. These area-specific zoning exceptions will result
in a high concentration of social services provided in a very small area, in a residentially-zoned
neighborhood, which entails land use conflicts between these different classifications of land uses.
The Salvation Army proposal requires that the proposed shelter be located in a local commercial zone
where the intensity is not compatible with the nature of the shelter use. Further, the proposal requires a
residential zone adjacent to Montreal Road, be used as a commercial zone purpose. This is significant as
the proposed site will be undertaking activities (i.e. trucking, noise, and traffic) associated with industrial
zones causing significant impacts to quality of life in a residential zone, including substantially increased
traffic disturbance.79 This further raises significant concerns regarding children safety in a commercial
area. The zoning conflict will further limit new residential development in the rear yards of low density
housing along Ste. Anne St. and Grandville St, negatively affecting local residential housing stock.
The report fails to provide the separation distance grades from residential property lines as the
proposed shelter will be border residentially-zoned lots.80
Recommendation
The Salvation Army planning zone application should not proceed on the proposed commercial site as it
is incompatible with the local commercial uses. Second, further investigation and consideration should
be given to the use and application of side streets which will be subject to commercial deliveries in a
residential neighbourhood.
76
Ibid. P. 13-14
77
Ibid.
78
Ibid. P. 19
79
In fact, the Roadway Traffic Noise Assessment of the proposed site recommended certain conditions be included in the Purchase and Sale
Agreement and certain materials to be used to mitigate sound issues.
http://webcast.ottawa.ca/plan/All_Image%20Referencing_Zoning%20Bylaw%20Amendment%20Application_Image%20Reference_2017-06-
20%20Traffic%20Noise%20Assessment%20D02-02-17-0062.PDF
80
City of Ottawa Zoning By-laws. Section 134. Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_05_en.pdf
C. Separation Distance Between Shelters
Under the City of Ottawa by-laws, a shelter is defined as the following:
Shelter means an establishment providing temporary accommodation to individuals who are in

immediate need of emergency accommodation and food, and may include ancillary health care,
counselling and social support services. (refuge) .81
The zoning by-law further provides a clear 500 metres minimum separation area between shelters.
Where it is a permitted use in a zone, in addition to the provisions of the zone in which it is
located, a shelter must be separated from any other lot containing a shelter, a distance of 500
metres from each property line of the lot on which the shelter is located. 82
Any facility that attains this definition of a shelter cannot, under the by-laws, be located within 500
metres of another shelter meeting the same definition. 83 This would include shelters that have been
in existence since 2008 under a legal non-conforming exception.
The policy objective of the above restrictions on shelters is to permit a more equitable distribution of
shelters, group homes, community health and resource centers, and residential care facilities across the
City of Ottawa.
The Salvation Army proposal says that the closest nearby shelter is the St. Marys Home shelter at 780
de lEglise Street, approximately 800 metres from the subject property, and as such in compliance with
municipal by law separation distances.84
The closest shelter to the subject property is the St. Marys Home shelter at 780 de lglise Street,
approximately 800 metres from the subject property. St. Marys Home is a specialized social
service agency that provides programs and services to young pregnant women, young moms and
dad, and their infants and young children.85
This statement provides evidence that the Salvation Army acknowledges there are shelters that provides
differencing services to another clientele, but still attain the legal definition of shelter.
The city definition of shelter contains three key aspects for a facility to attain the legal definition. First,
the patron must be in immediate need of shelter and food. This requires a facility to offer
accommodation on an immediate basis, without notice or reservation. Second, the facility must be a
refuge, and may provide other services such as ancillary health care, counselling and social support
services. This means the faculty may provide a service in addition to shelter itself, that service may be
81
City of Ottawa Zoning By-law Definitions Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_01_en.pdf
82
City of Ottawa Zoning By-laws. Section 134. Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_05_en.pdf
83
On Twitter, Mayor of Ottawa referred to the Chrysalis House in Kanata and the Carrington Community Health Centers as shelters consistent
with this definition. https://mobile.twitter.com/JimWatsonOttawa/status/880125494729093120?p=v
84
Supra, Salvation Army Report. P.24
85
Ibid.
held on a wide variety of social services. Third, and implicit with the definition is that the duration is
short term and free of charge. The facility offers accommodation on a short-term basis during the
emergency period. Further, that rent is not charged, so the short-term resident is provided
accommodation on a pro bono basis.86
Following the City of Ottawa definition of shelter a shelter is a facility that provides on-demand
short-term (i.e. less than one month) free accommodation with optional accompanying support
services. 87
According to a geographic assessment of the proposed site at 333 Montreal Road, there are three
facilities that attain the legal definition of shelter with a 500-metre distance of the proposed site plan
(see Annex F). 88
1. House of Welcome (Billy Buffets) (243 Granville St). This is a 12-bed facility serving men with alcohol
or drug problems, many arriving straight from a detoxification center, and are as such homeless or
without immediate shelter.89 This attains the definition of a shelter in accordance with the city by-
laws as it offers lodging on demand without notice for a short period and exceeds the definition of a
group home.90
2. Ottawa Inn Hotel (215 Montreal Rd.) This is a hotel used as an overflow homeless temporary shelter.
Hotels have been recognized by the city has functioning shelters. In 2006, the City classified these
temporary shelters as shelters in assessing capacity being used in the city. 91 This implies that the
Ottawa Inn Hotel is considered a shelter prior to the re-definition in 2008. The 2008 re-definition
did not restrict the application of temporary shelters, and following the by-law definition post 2008,
remains in compliance with the new definition.92
3. Maison Fraternite (300 Olmstead St). This male youth rehabilitation center contains five beds for
short term immediate accommodation, including counselling and nourishment, on a pro bono basis.93
As the facility is multi use, it cannot be legally classified as a group home meaning it attains the
definition of a shelter.94
86
This would mean there are no residential or rental contracts between the patron and the facility.
87
This further follows the definition of shelter used by the Salvation Army in identifying the St. Marys Home shelter. The Salvation Army may
be only identifying shelters that are funded by the city. This is a policy definition. However, there are other facilities that attain the bylaw
definition of shelter but do not receive city funding but from other public or private sources. The bylaws do not restrict shelter to only
faciliites that only receive city funding.
88
Shelters that are pre-existing prior to the 2008 bylaw amendments are grandfathered to be legally compliant to this restriction
89
See description at http://www.ementalhealth.ca/index.php?m=record&ID=9610.
90
Note that this is not defined as a Group home under the City by-laws as a group home is defined as a supervised residential use building
with three to ten persons. This facility contains twelve people, exceeding the group home definition. The City report provides shelter is also
special needs houses with no resident cap.
91
Health, Recreation and Social Services Committee Report. Emergency Shelter Standards and Review Framework. 9 Nov. 2005. Ref
N: ACS2005-CPS-HOU-0014 http://ottawa.ca/calendar/ottawa/citycouncil/hrssc/2005/11-17/ACS2005-CPS-HOU-0014.htm. The new land use
term shelter should be created in the former Ottawa and Vanier Zoning By-laws, reflecting the new Comprehensive Zoning By-law term. This
term permits ancillary health care, counselling and social support services within the principal shelter use
92
The new definition only removed the number of beds and further defined a group home from three to ten persons.
93
Maison Fraternite. Youth Services. http://www.maisonfraternite.ca/nos-services/centre-pour-adolescents/
94
According to the By-law definitions, group home means a supervised residential use building in which three to ten persons, exclusive of
their dependents and of any staff, live as a group in a single household living arrangement, and where residents require support or supervision
on a daily basis, but excludes correctional facilities and shelters. (foyer de groupe) (By-law 2014-94) Under the interpretation note, the whole of
the building must be occupied as a group home.
Implications
The proposed site of the Salvation Army shelter at 333 Montreal Road must not be within 500 metres of
any other shelter located within 500 metres of the planned site. However, using the legal definition of
shelter, the Salvation Army proposed location is within 500 meters of three other shelters in Vanier.
Recommendation
It recommended that the Salvation Army proposal not be permitted to proceed with the site selected at
333 Montreal Road as it is in clear violation of the separation distance between other functioning
shelters and that no non-compliance exceptions be granted as the community is serviced by a plethora
of pre-existing social service providers.
D. Maximum Four Shelters in Ward 12
The City Report limits the number of shelters in Ward 12 to four. The report clarifies that this means
that no new shelters will be permitted anywhere in Ward 12. The policy rationale is as follows:
The City agrees with stakeholders, including the shelter operators, that there is an over
concentration of shelters and services within Ward 12. Indeed, some shelter operators expressed
concern with the relocation of Operation Go Home across the street from a homeless mens
shelter, citing concerns with the visibility and negative impact of illegal trade outside the shelter
that might be experienced by the very youth at the highest risk of becoming homeless
themselves. Some social studies suggest that the over concentration of social services leads to
fewer positive impacts for both residents as well as for those seeking the social service, the
opposite of what would otherwise be expected to be positive impacts of efficiencies of scale,
when like services- are provided in proximity.95
This means that no new shelter will be permitted in Ward 12 until three remain.96 In fact, the City Report
forecasted that a shelter presently located in Ward 12 may consider re-location at a future date.
In addition, the four-shelter maximum will create non-compliance in the short-term, given the
small fifth hybrid group home/shelter in Ward 12. This means, that over the long term, some
shelters may need to redevelop and may relocate by looking elsewhere in the downtown or
greater urban area, within the realm of the widened permission to locate in a variety of non-
residential zones.97
The report does not list the existing shelters by name, however a list of major shelters was provided in a
2005 city report outlining emergency shelter capacity.98 This report identified eleven (11) shelter
95
Supra, City of Ottawa Report, 2008.
96
Ibid.
97
Ibid.
98
Health, Recreation and Social Services Committee Report. Emergency Shelter Standards and Review Framework. 9 Nov. 2005. Ref
N: ACS2005-CPS-HOU-0014 [Ottawa Shelter Standards Report, 2005] http://ottawa.ca/calendar/ottawa/citycouncil/hrssc/2005/11-
17/ACS2005-CPS-HOU-0014.htm
facilities in the city of Ottawa. From the shelters listed five (5) are located in Ward 12 Rideau-Vanier (i.e.
Shepherds of Good Hope (2 shelters),99 The Salvation Army, the Mission, and Youth Services Bureau).
This study acknowledged, along with the 2008 City Report, that there are already five existing shelters in
Ward 12, meaning any re-location of a shelter would void the existing legal non-compliance status and
create an illegal non-compliance application.
The Salvation Army proposal is to re-locate an existing shelter at 171 George Street in the ByWard
Market to 333 Montreal Road, thereby maintaining the permitted number of shelters at four (4) within
the Ward. 100 The proposal provides that the policy rationale of a minimum of four is to lower
concentration of shelters in the ByWard market.
The larger shelter facilities in Ottawa include: Shepherds of Good Hope (Mens shelter and Womens
shelter), the Salvation Army, the Mission and the additional Youth Services Bureau. This report has listed
shelters, supra, within a 500 metre separation distance of the proposed site in Ward 12.
The following facilities further attain the legal definition of a shelter located in Ward 12:101
1. St. Josephs Women Shelter. This is a daytime shelter for homeless women providing
nourishments and support for women in need.102
2. Evelyn Horne Young Womens Shelter. This is a 30-bed emergency shelter bed facility for women
16-20 years old who require immediate short term safe housing.103
3. La Maison damiti: This is a 30-bed emergency shelter for francophone women who are victims of
domestic abuse.104
4. La Prsence. This is a 12-bed short term stay shelter for francophone women of domestic
violence.105
5. Maison Fraternit. This is a temporary weekend shelter for women who suffer from drug and
alcohol abuse.106
6. Maison Sophia Reception House. This is a temporary shelter (3-4 weeks) for refugee claimants.107
7. Oshki Kizis Lodge: This is a 21-bed facility for First Nations persons.108
A list of legal non-compliance shelters in Ward 12 is provided in Annex F.
99
Shepherds of Good Hope contains two facility locations. A shelter for men at 230 Murray St.
and a Transitional Emergency Shelter located at 256 King Edward Ave. See http://www.shepherdsofgoodhope.com/shelter-programs/
100
101
Note: Due to the sensitivity of women shelter, the location will only be provided in a confidential request
102
St. Josephs Women Shelter is a day shelter for homeless women that provide shelter and nutrition.
http://stjoeswomenscentre.org/b/about-us
103
Evelyn Young Womens Shelter. http://www.ysb.ca/index.php?page=young-women-s-shelter&hl=eng
104
La Maison damiti http://maisondamitie.ca/jai-besoin-daide/questions-frequentes/
105
La Presence https://ottawa.cioc.ca/record/OCR1664
106
Maison Fraternite womens shelter. http://www.maisonfraternite.ca/nos-services/residence-pour-femmes/
107
Maison Sophia Reception House. http://cciottawa.ca/about-us/contact-us/
108
Oshki Kizis Lodge. http://www.minlodge.com/
Following the legal definition of shelter, Ward 12 has exceeded four shelters, even with the removal of
the Salvation Army proposed facility. This is further acknowledged by the Salvation Army proposal that
lists another smaller shelter in an abutting Ward.109 As Ward 12 contains more than four legally non-
compliant shelters, recognized by the City of Ottawa,110 the Salvation Army proposal cannot be located
in Ward 12 in accordance with the by-laws.
Recommendation
Legally, the Salvation Army proposal must be rejected as there are already four legally compliant
shelters, plus additional facilities that attain the legal definition of shelter in Ward 12.
In conclusion, the Salvation proposed project development at 333 Montreal Road clearly violates the
city by-laws concerning site placement of shelters on a Mainstreet, residential zoning requirements,
separation distances and shelter numerical limits in Ward 12.
Case Law
In 2010, the Ontario Municipal Board (OMB) reviewed a shelter location submission under subsection
34(19) of the Planning Act, under the City of Kitchener by-laws.111 The appeal concerned the City of
Kitchener seeking to place a shelter outside of an area holding high concertation of people on social
assistance (i.e. 20% of the population).112 The City sought a shelter development in an area to reduce the
over-concentration of single person, low income households, residential care facilities and
social/supportive housing in accordance with city reports.113
In its ruling, the Board accepted the Citys rules and rationale of decentralizing institutions and fostering
a neighborhood mix as fully supported by provincial policy and the citys official plan.114 The Board
accepted the rationale to distribute such facilities throughout other parts of the city effectively
decentralizing institutional facilities.
This case demonstrates that the OMB may uphold city planning rules, including the separation distance
requirements, maximum shelter limits and associated reports by the city, on the policy rationale to
equally distribute shelters in in accordance with city plans, by-laws, reports and the Planning Act.
109
Supra, Salvation Army Report. P.24
110
Supra, Ottawa Shelter Standards Report, 2005. City of Ottawa Report, 2008
111
Ontario Municipal Board. January 14, 2010. OMB File No. R050129 [OMB Kitchener Case]
112
Ibid.
113
Ibid.
114
Ibid.
Summary of Proposal Breeches of City Policies and By-Laws

Ottawa Official Plan
The proposed development will empirically increase
Development of safe and healthy communities. crime and limit the capacity of existing service providers
to effectively reform citizens at risk.
The proposal concentrates low income housing in
Adequate provision of a full range of housing. Vanier, an area presently under a disproportionately
high level of low income housing.
The protection of the financial and economic well- The proposal will have an adverse effect on local
being of communities. economic development in an at risk community.
City Zoning By-Laws
The proposal does not attain the policy rationale of
Restrictions on Mainstreets. providing a net benefit to a Traditional Mainstreet
Zone.
The proposal creates quality of life challenge in mixing
Restrictions in placements. industrial use in a residential and commercial
environment.
The proposal does not take into consideration existing
Separation distance between shelters. shelter facilities in Vanier exceeding the minimum
distance requirements between shelters.
The proposal does not take into consideration existing
Maximum four shelters in Ward 12. shelter facilities in Vanier and it exceeds the maximum
number of shelters permitted in Ward 12.
Conclusion
The Salvation Army proposal requires Official Plan and zoning amendments to proceed. However, the
proposal fails in addressing key attributes of the Official Plan (or affiliated city reports) under the
provincial Planning Act. It also fails in providing convincing arguments to seek amendments under the
current zoning laws.
These factual and legal considerations demonstrate that insufficient consideration, policy due diligence
and consultation were undertaken for the proposed site plan to ensure coherence with the Ottawa
Official Plan. First, the proposal fails to ensure healthy and safe communities when it is knowingly
increasing risk of crime, prostitution and vagrancy. Second, the proposal ghettoizes Vanier with
additional low income housing, being willfully blind of the current disproportional low income housing
stock. Third, the proposal is ignorant of the economic impacts of the current socio-cultural sensitivities
of the Vanier community.
Furthermore, the Salvation Army Proposal fails to address the policy rationale for zoning requirements
in the City of Ottawa. First, the proposal seeks an exception to the rule forbidding shelters on the
Traditional Mainstreet of Montreal Road, but its rationale fails to provide any benefits to the
community. Second, the proposal imposes an industrial activity in a residential zone, inconsistent with
previous recommendations of city officials. Third, the proposal fails the shelter minimum distance test
and maximum placements in the Ward 12 by-law requirements.
We appeal to the City of Ottawa officials to give these concerns the upmost serious consideration.
Any action by the City of Ottawa to pursue this development knowingly and purposefully violating
existing planning and zoning rules, creates a clear and legal cause of action for appeal to the Ontario
Municipal Board.
ANNEX A: Planning Act: 2014 Provincial Policy Statement 115
1.1 Managing and Directing Land Use to Achieve Efficient and Resilient Development and Land Use
Patterns
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, cemetreies and long-term care homes),
recreation, park and open space, and other uses to meet long-term needs;
1.1.2 Sufficient land shall be made available to accommodate an appropriate range and mix of land uses
to meet projected needs for a time horizon of up to 20 years. However, where an alternate time period
has been established for specific areas of the Province as a result of a provincial planning exercise or a
provincial plan, that time frame may be used for municipalities within the area.
1.1.3.4 Appropriate development standards should be promoted which facilitate intensification,

redevelopment and compact form, while avoiding or mitigating risks to public health and safety.
Section 1.7: Long-Term Economic Prosperity of the 2014 Provincial Policy Statement also dictates that
economic prosperity must also be respected, as outlined by the following sections:
1.7 Long-Term Economic Prosperity
1.7.1 Long-term economic prosperity should be supported by:
a) promoting opportunities for economic development and community investment-readiness;
c) maintaining and, where possible, enhancing the vitality and viability of downtowns and
mainstreets;
g) providing opportunities for sustainable tourism development;
115
Provincial Policy Statement Under the Planning Act. 2014. [Planning Act Guidelines] Part V. Ministry of Municipal Affairs and Housing
Provincial Planning Policy Branch. http://www.mah.gov.on.ca/AssetFactory.aspx?did=10463
ANNEX B: City of Ottawa Official Plan
Section 1.3 - The Ottawa 20/20 Process and the Guiding Principles116
Objectives under the Planning Act: the orderly development of safe and healthy communities.
Economic Strategy Building on the success and momentum of the Economic Generators Initiative, the
Economic Strategy establishes policies to continue growing a strong and diverse economy. It includes
plans for key Ottawa business markets: the export sector, the local market and the rural sector.
A Caring and Inclusive City - Housing policies support increased availability of affordable housing and
address the integration of a range of housing into all neighbourhoods to meet the varied needs of all
household types including families, seniors and young people.
A City of Distinct, Liveable Communities

Community design plans provide specific criteria for areas identified for intensification and ensure
planning policies respond to the specific needs and opportunities of those communities.
The qualities that make neighbourhoods special and contribute to their identity are valued in any
consideration of land-use change.
Section 3 - Designations and Land Uses117
3.1 - Generally Permitted Uses

Shelter Accommodation Where the zoning by-law permits a dwelling in areas designated General
Urban Area, Developing Community, Central Area, Mixed-Use Centre, and Village, the by-law will also
permit shelter accommodation. Shelter accommodation shall be designed in a manner compatible with
the general area. The zoning by-law may include provisions to regulate the size and location of this use.
[Amendment #76, August 04, 2010]
Montreal Road District Secondary Plan118

[Amendment #127, January 22, 2014]
1.1.1. The Main Goals for the District are to:
Foster development and redevelopment along the Traditional Mainstreets and Arterial Mainstreet
which complements and improves upon the positive qualities of the existing character of the District.
116
Ottawa Official City Plan. Section 1 - http://ottawa.ca/en/node/1009710
117
Ibid. Section 3 - http://ottawa.ca/en/node/1009706
118
ANNEX C: Zoning By-law 2008-250 Consolidation
Definitions (sec. 54) 119
Residential care facility means an establishment providing supervised or supportive in-house care for those who
need assistance with daily living, that may also provide on-going medical or nursing care or counselling and social
support services and which may include services such as medical, counselling, and personal services. NOTE: Under
the interpretation note, this includes nursing homes, a complex for handicapped persons and homes for the aged.
Group home means a supervised residential use building in which three to ten persons, exclusive of their
dependants and of any staff, live as a group in a single household living arrangement, and where residents require
support or supervision on a daily basis, but excludes correctional facilities and shelters. (foyer de groupe) (By-law
2014-94) NOTE: Under the interpretation note, the whole of the building must be occupied as a group home.
Shelter means an establishment providing temporary accommodation to individuals who are in immediate need of
emergency accommodation and food, and may include ancillary health care, counselling and social support
services. (refuge)
120
Section 3 - Designations and Land Use
Shelter Accommodation
4. Where the zoning by-law permits a dwelling in areas designated General Urban Area, Developing Community,
Central Area, Mixed-Use Centre, and Village, the by-law will also permit shelter accommodation. Shelter
accommodation shall be designed in a manner compatible with the general area. The zoning by-law may include
provisions to regulate the size and location of this use. [Amendment #76, August 04, 2010]
Part 5 Residential Provisions (Sections 120-141)

121
Section 134
Where it is a permitted use in a zone, in addition to the provisions of the zone in which it is located, a shelter must
be separated from any other lot containing a shelter, a distance of 500 metres from each property line of the lot
on which the shelter is located.
(2) Despite subsection (1), the minimum required separation distance need not extend across a highway, grade-
separated arterial roadway, railway yard, Rideau or Ottawa Rivers, or Rideau Canal, or any other major barrier to
pedestrian or vehicular movement, and in such cases is deemed to be fulfilled by the distance between that barrier
and the affected property line or lines of the lot containing the shelter.
(3) Where located within a Minor Institutional Zone, a shelter must be separated from any lot zoned R1, R2, R3
and R4, a distance of 30 metres from each property line of the lot on which the shelter is located and the
Residentially-zoned lot.
(4) Section 122 applies.
(5) Despite anything to the contrary, a maximum of four shelters are permitted in Ward 12 as shown on Schedule
5. (By-law 2008-341).
119
City of Ottawa Zoning By-law Definitions Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_01_en.pdf
120
City of Ottawa Official Plan Volume 1 Section 3. Designations and Land Use. http://ottawa.ca/en/node/1009706
121
City of Ottawa Zoning By-laws. 134 Source: http://documents.ottawa.ca/sites/documents.ottawa.ca/files/documents/pt_05_en.pdf
ANNEX D: City of Ottawa Reports
Salvation Army Planning Rationale (2017)

http://webcast.ottawa.ca/plan/All_Image%20Referencing_OP%20Amendment%20Application_Image%
20Reference_2017-06-20%20Planning%20Rationale%20D01-01-17-0013.PDF
OTTAWA CITY COUNCIL 25 JUNE 2008

RIDEAU-VANIER WARD 12 INTERIM CONTROL BY-LAW STUDY AND ZONING BY-LAW AMENDMENT
Full Council: http://ottawa.ca/calendar/ottawa/citycouncil/occ/2008/06-25/englishfinalagenda39.htm
Council Approved Zoning Amendment Report:

http://ottawa.ca/calendar/ottawa/citycouncil/occ/2008/06-25/pec/02-ACS2008-PTE-PLA-0011.htm
Planning and Environment Committee - 22 May 2008

RIDEAU-VANIER WARD12 INTERIM CONTROL BY-LAW STUDY AND ZONING BY-LAW AMENDMENT
Full Report: http://ottawa.ca/calendar/ottawa/citycouncil/occ/2008/06-25/pec/02-ACS2008-PTE-PLA-
0011.htm
Planning and Environment Committee - 17 September 2007

EXTENSION OF INTERIM CONTROL-WARD 12 RIDEAU VANIER PROHIBITION OF GROUP HOMES AND
SHELTERS Interim Control By-Law 2006-452
http://www.ottawa.ca/calendar/ottawa/citycouncil/occ/2007/11-14/pec/ACS2007-PTE-POL-
0055%20ENGLISH
Planning and Environment Committee - 28 August 2006

REGULATION OF SPECIAL NEEDS HOUSING IN RIDEAU-VANIER
http://ottawa.ca/calendar/ottawa/citycouncil/pec/2006/09-12/ACS2006-CCS-PEC-0011.htm
Health, Recreation and Social Services Committee Report. 9 Nov. 2005

EMERGENCY SHELTER STANDARDS AND REVIEW FRAMEWORK
http://ottawa.ca/calendar/ottawa/citycouncil/hrssc/2005/11-17/ACS2005-CPS-HOU-0014.htm
ANNEX E: Low Income Support Services and Housing Options in Vanier
Supportive Housing Family & Community Services Addiction Treatment Centers

Vanier
261 Montreal Ontario Addiction
Action Housing Community 290 Dupuis St 263 Montreal Road
Road - Office Treatment Centres
Services Centre
259 Ste Anne
John Howard
Ave Ottawa
Society of Partage Vanier 161, av Marier Recovery Ottawa
322 Gardener 11 Selkirk St
Ottawa
St
Multifaith 206 Onyx 242 Cantin Street 105,
265 Montreal
Housing -404 McArthur Community Maison Fraternit rue Laval
Road E, Ste 4
Initiative Ave. - Office Services 300, rue Olmstead
Les Services daccs et 338
311 McArthur
Inuit Non-Profit Heartwood 404 McArthur daiguillage en Montreal Rd, Ste 101
Ave, Ste 102 -
Housing house Ave toxicomanie dOttawa
Office
(SAATO)
Gignul Non 404 McArthur Our Lady of Assumption 317 Cody Avenue
Hopewell
Profit Housing Ave Church
Ottawa Ottawa and Soldiers Helping Soldier 265 Montreal Road
404 McArthur
Community Gatineau ACO
Ave
Housing (OCH) RN
EBO Financial
Housing and Residential Care for 300 Olmstead
Education First Nations
People with Mental Illness: St
Centre
Precision Health
Group - Maison Marie- 235 Ste Anne Wabano Centre for
9 Stevens Ave 299 Montreal Rd
Edgewood Care Louise Ave N, Apt 1 Aboriginal Health
Centre
Association pour
Chez Mre 264 Olmstead
l'intgration 235 Donald St Kagita Mikam 456 McArthur Avenue
Bruyre St
sociale d'Ottawa
Domiciliary Hostels and Long Catholic Family Ottawa Inuit Children's
310 Olmstead 230 McArthur Ave
Term Care Homes Service Ottawa Centre
Centre d'accueil 275 Perrier 780 de l'glise
St. Mary's Home Tungasuvvingat Inuit 297 Savard Avenue
Champlain Ave St
Duford Tel-Aide 300 Olmstead
151 Duford St. Francophone Services
Residence Outaouais St
Mon Plaisir 88 Marquette Centre Francophone de 270 marier ave
Youth
Residence Ave Vanier
Maison Accueil- 424 Montreal Boys and Girls 430 McArthur Centre Pauline Charron 164 Jeanne Mance St
Sagesse Road Club Ave
Centre Psychosocial 150 Montreal Rd
Number of low income/affordable housing sites in Vanier - 25

Number of residents in low income housing - 386
ANNEX F: Graphic Representation of the Shelters in Vanier
The following map outlines shelters within a 500 metre radius of the proposed development site.
The following map provides a 500 metre distance radius of existing shelters limiting additional shelter
development within this zone.
List of Shelters in Ward 12
Name Location
1 Billy Buffet House of Welcome 243 Granville St.
Evelyn Horne Young Womens (note: will be provided privately to ensure

2
Shelter projection of location)
40 Cobourg St.
3 La Maison damiti
2 Mark St
(note: will be provided privately to ensure
4 La Prsence
projection of location)
Shelter for Women - 105 Laval St.
5 Maison Fraternit
Shelter for Youth - 300 Olmstead St.
6 Maison Sophia Reception House 204 Boteler Ave.
7 the Mission 35 Waller St.
8 Ottawa Inn Hotel 215 Montreal Rd.
9 Oshki Kizis Lodge 240 Charlotte St.
Shelter for Men - 230 Murray St.

10 Shepherds of Good Hope Transitional Emergency Shelter - 256 King
Edward Ave
11 St. Josephs Women Shelter 151 Laurier Ave E
12 Youth Services Bureau 147 Besserer St

ANNEX G: Vanier Zoning and By-Laws Committee
First Last Email

Peter Kucherepa peter@kucherepa.ca
Benjamin Gianni benjamin_gianni@carleton.ca
Louise Lapointe laplouster@gmail.com
Shuo shuo@vmstat.org
Ingrid Fish ingridfish8789@gmail.com
Chris Greenshields greenshieldsfamily@yahoo.ca
Alex Martel alex@martel-law.com
Rolland Cright rolland.cright@gmail.com
Julie Sogree Julie.Soogree@forces.gc.ca
Suzan Proulx sproulx@placelafontaine.com
Louise Lapointe laplouster@gmail.com
Adam Drackley adam.drackley@gmail.com
Additional Vanier Teams
Team A- Site Selection Criteria for the site- Neal McCarten and Samantha Strath
Team B- City of Ottawa Social Services policies and objectives- Lauren Touchant
Team C- Review of available private and government lands- Benjamin Gianni
Team D- Focus on services for the community- Catherine Labossiere
Team E- Elements of design for the proposal- Benjamin Gianni
Team F- Innovation and best practices in the sector and opportunities to improve the service offering-
David McCarron
Team G- Engagement in the community and City- Drew Dobson
Team H- Focus on Zoning Review- Peter Kucherepa, Benjamin Gianni and Louise Lapointe
Team I- Fundraising- TBD
Team J- Social impact in Vanier- Louise Levesque
ANNEX H: Media & Communications Lines
Key Messages:
The Salvation Army proposal to re-locate and construct a mega shelter at 333 Montreal Road, in Vanier, Ottawa,
Ontario, is breaking all the provincial and municipal rules and policies regarding shelter locations.
The proposed location at 333 Montreal Road does not meet the legal and policy objectives regarding shelter locations
outlined by the City of Ottawa. The violations are so egregious it demonstrates that the proposed site cannot be
considered appropriate or fitting for a mega shelter location.
The Salvation Army proposal raises concern that they did not take into proper consideration provincial laws, city by-laws
or policies regarding shelter locations. Meaning their submission is simply based on an argument of convenience, which
should raise significant concerns to the City of Ottawa.
Summary of Analysis:
The Salvation Army is proposing one of Canadas largest shelters at 333 Montreal Road. They have provided a
Context submission to the City of Ottawa seeking authority to build this new facility in Vanier.
The proposed development site does not follow the policy objectives of the Ottawa Official Plan:
The proposed development does not pursue the city objective of safe and healthy communities. The
proposed development will imperially increase crime (i.e. drugs, violence, loitering) and limit the capacity of
Counter
existing service providers in Vanier to effectively reform citizens at risk.
Ottawa
Official The proposed development concentrates low income housing in Vanier, already at disproportionate levels of
Plan low income housing, going against the city wide plan and provincial planning objectives to diversity how
income housing across all areas. This will further negatively affect housing stock in the City of Ottawa.
The proposed development lacks any economic or positive impact to Vanier, a sensitive and at risk economic
recovery area of the city.
The proposed development site clearly violates the Ottawa zoning bylaws regarding shelter developments:
The city restricts shelters from being within 500 metres of each other. There are three shelters, recognized by
the city, within 500 metres of the proposed site.
The city restricts no more than four shelters in Ward 12. There are 12 shelters in Ward 12, including 5 large
shelters. These shelters are in legal-non-compliance status, meaning they can operate but if they move out
Counter
Ottawa they cannot relocate in Ward 12. As such, it is illegal for the Salvation Army to re-locate a shelter in Ward 12.
Zoning By- The proposed location of 333 Montreal Road is on a city Mainstreet. City bylaws restrict shelters to be created
Laws on Mainstreets due to the negative externalities to the community. The Salvation Army proposal provides
that its clients will benefit from the location, but at the direct cost to the Main street community, including
negatively affecting commercial development, parking, traffic and noise.
The city further restricts shelters in a commercial and residential area. The location of 333 Montreal Road is
on a commercial and abutting residential area, which will result in significant negative impacts to the direct
commercial and residential area.
The City of Ottawa and Vanier community cannot support a proposal that breeches all shelter location rules and
Solution polices set forth by the city. This demonstrates that the site of 333 Montreal Road is not a good fit under law or
city policy, creating a clear cause of action to the Ontario Municipal Board.
About the author:
This report was authored by Peter Kucherepa HBA. J.D. M.Cert. CITP, Barrister & Solicitor, Sr. Policy Advisor and
Community Advocate. This document was assisted by the Vanier Zoning and By-Laws Committee, community
leaders and the Office of Mathieu Fleury. Peter Kucherepa holds a strong track record of community advocacy
having authored a report on the proliferation of payday loan centers in Vanier effectively changing the laws of
Ontario and city by-laws to re-develop Montreal Road. Peter Kucherepa was nominated for a Samara Political
Citizen Award for this accomplishment. This paper is his own opinion and supported by the Vanier community. It
does not reflect the opinions of his employer(s) or any level of government. He can be reached for comment at
Good morning Madame Chair. Thank you for the
opportunity to present to planning committee on this matter.
My name is Rosemary Leach and Ive lived in Vanier for four

and a half years. There are any number of ways to
characterize Vanier: eclectic, diverse, colourful, edgey,
rough, poor, complex. The list goes on. One word that is
never used to describe Vanier is exclusive.
Vanier does not shun shelters nor shy away from the people
who use them. On the contrary, with a large number of
shelters already in this area, they are part of the fabric of our
community. What we do oppose however is a shelter of
the scale and magnitude proposed for 333 Montreal Rd.
adjacent to a mature neighbourhood and along a designated
Traditional Main Street.
A main street strives to be a place of business and social

interaction that is pedestrian friendly. In planning terms a
Traditional Main Street is intended to accommodate a broad
range of uses including retail, commercial, office, residential
and institutional. With the Salvation Armys abstinence
policy and its minimal harm reduction strategies, the
shelters clients who use drugs and alcohol may find
themselves spilling onto Vaniers Traditional Main street.
This could encourage even more predatory drug dealers and
pay day loan stores to the area (2 police audits in 2016
around the Booth Centre on George St. confirm this activity
at that location). This is not a recipe for recovery let alone
economic redevelopment along one of Vaniers traditional
main streets.
An amendment to the official plan for a Traditional Main

Street should be rejected if it will hurt the chances for
economic growth along a Traditional Main Street. With this
in mind, I urge you to turn down this application. It will kill
Montreals Rd.s chances of ever becoming a traditional
main street. Vanier needs an influx of viable businesses
not more pot shops and pay day loan stores. A handful of
promising shops have popped up over the past few years
but there has been a distinct chill since the announcement of
the Salvation Armys proposed shelter for 333 Montreal
Road. This proposal is not only scaring away investors and
business owners but also families who would move here and
patronize those businesses. It doesnt make sense to
amend the official plan to pave the way for an institution that
will hobble Vaniers chances for economic development with
a traditional main street at its core.
Trading the problems that exist on George St. and

redoubling them on Montreal Road is not an answer to the
issue of homelessness in Ottawa. Shelters of this scale do
not belong on any main street - not in Westboro, not in the
market, not in the Glebe, not in Barrhaven -- and certainly
not in Vanier. Moreover, the proposed site is just metres
from the Wabano Aboriginal Health Centre which delivers
health care to the largest pocket of aboriginal people, an
already vulnerable group, in the city. Aboriginal women and
young children go there for their health care. As the Inquiry
into Murdered and Missing Indigenous Women stumbles
along, the thought of placing 350 'at risk' men in close
proximity to this facility is a ticking time bomb. In the era of
reconciliation it would be unconscionable to situate this
facility here.
This is not an easy question and there are no easy answers.

However, problems that are already hindering Montreal
Roads revitalization should not be amplified because an
amendment is made to the official plan to place a shelter that
does not fit with planning policy objectives is put there.
Surely there are more fitting places in smaller parcels to
deliver these services away from a main street.
Ottawa follows a 3 Rs motto. Its time to think about a

different set of Rs for Vanier . . . Revitalization, economic
Redevelopment and certainly as we sit on unceded
Algonquin territory, Reconciliation.
Thank you for your time.

Transcript of my presentation to the Planning Committee on 14 Nov 17.
(I was speaker #26.)
My name is Stephen Willcock and I have lived for 27 years ,

Vanier. My wife and I fell in love with the little house at first sight. Turns
out we have great neighbours, the location is convenient for work, and our
property would surely gain in value.
Early on, however, I discovered that was the rendezvous for
a group of dealers and sex trade workers. Every morning at 6 am, the
prostitute would meet the pusher and the exchange would take place. This
in full view from our living room window. We worked with our neighbours
and the police services to eliminate that problem.
Since then, our family has participated in many community initiatives, all
of which have had quality of life of ourselves and our neighbours in mind:
planting trees (the best use of land, in my opinion), the Annual Rideau
River Cleanup, my was involved with the campaign to save Montfort
Hospital. We recently took part in Councillor Fleurys walkabouts through
our streets and along Montreal Road where we discussed the incredible
possibilities of Quartier Vaniers main street: cafes with live music, funky
boutiques, maybe even a gallery?
How could we best use this land in our part of town?
Maybe a multinational company could set up its headquarters something,
anything that would be a shot in the arm to the economic life at our end of
Montreal Road.
Then, out of the blue, came Sally Ann and the monolith that concerns us
today. The shock of this proposal delivered, by the way, as a decision
already made represents to our community a setback.
Though presented to us by the Salvation Army as an economic boon, their
proposal will dominate a residential neighbourhood of low to lower
middle income families and the only economic boon would be realized
only by purveyors of cigarettes, alcohol, drugs and sexual services
Please refer to Andrew Lumsdens the first presenter today survey
detailing the spending proclivities of the current clients at the
Booth Street facility.
The Salvation Army has also presented us with their vision, replete with
illustrations of the outside courtyards to be enjoyed by well, no one
much, really; the images are of their much smaller facility in Oregon.
Oregon enjoys a temperate climate those much-touted courtyards that are
supposed to provide gathering places for the clients wont work here in the
North for over half the year.
Poor planning for land use.
What works in Oregon or Kitchissippi isnt necessarily a proper fit vor

Vanier the dark underbelly of which has been described by those who
have spoken before me. What the Salvation Army plans to do in our
community is to plant directly into our midst a client base for the very
elements we have been trying to eliminate.
My wife and I often delivered our donations to the Army store and every
time I would look at the shabby asphalt of a large unused parking lot and
think what a great palce for a park trees, cobblestones, an outdoor skating
rink
Ok, call me a dreamer but Im not the only one.
Vanier has been struggling toward community self-realization and this

proposed use for the property at 333 Montreal Road will set us back
perhaps permantly.
Vanier is proud but desperate, we need enterprises that will uplift us, not
depress us further. No one asked the people of Vanier to contribute to this
decision to build a megshelter on this site; instead we were treated to a
million dollar public relations effort and an application to use our land in a
fashion that ignores the needs of residents. Indeed, all the documents the
Army has submitted in their application look only inwards to the safety,
security and convenience of their own clientele (who, by the way, werent
consulted either).
My family, neighbours and myself are united in our desire to continue
improving the quality of life and culture in the Quartier Vanier.
This proposal for the use of the land at 33 Montreal Road constitutes a
direct threat to our way of life today and our hopes for tomorrow.
PART II
SOCIAL IMPACT ON SENIORS
AND FRANCOPHONES
GENERATED IN RESPONSE TO THE SALVATION ARMYS PROPOSED
RELOCATION TO
333 MONTREAL ROAD
NOVEMBER 8, 2017,
PREPARED BY LOUISE LEVESQUE, SUZANNE LPINE, JANE SOUTH AND DEBORAH BYRNES
Page | 1
Table of Contents
SOCIAL IMPACT ON SENIORS..............................................................................................................................2
SOCIAL IMPACT ON FRANCOPHONES .............................................................................................................9
CONCLUSION ........................................................................................................................................................... 12
Page | 1
SOCIAL IMPACT ON SENIORS
Demographics
According to Statistics Canada, seniors are a rapidly growing population throughout
Ottawa and across Canada. In a report named A Portrait of Ottawa Older Adults:
Demographic and Socio-Economic Characteristics1 the City of Ottawas projects that
the number of seniors in Ottawa will more than double by 2031.
In 2014, there were 2,725 seniors living in Vanier. Of these, 8.6 per cent of seniors in
Vanier were aged 80 and over, compared to 3.7 per cent citywide. That is more than 50
per cent more than the average. Altogether, seniors make up about 27.6 per cent of
Vaniers population, compared with 13.2 per cent city-wide (2014: Jean-Franois
Parent).
Age of Residents
Ottawa
Variable Vanier
Average
# Seniors overall in Vanier 2725 1130.6
% Seniors overall in Vanier 27.6 13.2
% aged 80 years and over overall 8.6 3.7
1http://ottawa.ca/calendar/ottawa/citycouncil/cpsc/2011/08-18/07%20-
%20Document%203%20-%20Demographic%20and%20Socio-
Economic%20Characteristics%20EN.pdf
2
Seniors living in Vanier experience greater poverty than seniors in other areas of
Ottawa. While seniors incomes have been increasing on a national level and the
percentage of seniors with low incomes have declined, almost 80 per cent of Vanier
seniors remain low-income (Vaniers Migration History ReportDec 20142).
Seniors Living in Low Income (after taxes)
Variable Vanier Average
% of population aged 65+ living in low income 16.7 6.1
Family Composition of Vaniers Senior Population
1. The Safety of Vaniers Senior Population
Seniors in Vanier are also three times more likely to live alone than seniors living in
other parts of the city (85.2 per cent in Vanier vs. 26 per cent city-wide) or to live with
their family members (2014: Jean-Franois Parent). Seniors living alone are also more
likely to be isolated.
Walking is a very important factor in seniors lives. This fact is recognized by the City of
Ottawa, the Province of Ontario and the Federal Government. The ability to walk
everywhere has a positive impact on seniors physical, psychological ad mental well-
being, which in turn enables them to continue living in their current home and familiar
community for as long as possible. This is also why they prefer to continue living in
Vanier. (Journal of Urbanism: International Research on Place making and Urban
Sustainability; Volume 9, 2016Issue 1, by Paula Negron-Poblete, p. 1)3.
For many seniors, walking is a significant exercise that has a positive impact for their
physical, psychological and mental well-being. In Vanier, many senior residents prefer to
walk to the services available in their community and in adjacent neighbourhoods (drug
store, grocery store, Canada Post service depot, restaurants, hairdressing salons,
medical centres, physiotherapy services, community plays, financial institutions, church,
community services centres, the Centre Pauline Charron, etc.) than drive or use public
transportation.
file:///C:/Users/A/Downloads/Rapport%20de%20recherche%20_%2020%20janvier%202015.pdf
3 http://www.tandfonline.com/doi/pdf/10.1080/17549175.2014.990916
Page | 3
For example, this nun from the Soeurs Filles de la Sagesse retirement home, located at
434 Montreal Rd, regularly walks a 1 km distance to the Jean Coutu drug store, at 262
Montreal Road.
Accessibility to public transportation on Montreal Road also makes it ideal for seniors
wanting to travel within Vanier or to other neighbourhoods, including the Rideau
Centre. Given that the homeless often wind up living amid transportation
infrastructure: bush shelters even moving buses4, seniors safety is of particular
concern because they will have to compete for space and/or be harassed by the
homeless men.
The arrival of the proposed Salvation Army megaproject will increase the incidence of
panhandling in Vanier. Many seniors living in the vicinity of the proposed Salvation Army
project have said that if the SA is allowed to build at 333 Montreal Road, they will
refrain from walking for fear of their safety on the sidewalk, in residential and public
entrance ways, bus shelters and at bus stops, which in turn will be detrimental to the
physical and mental well-being.
Je commence tout juste sortir par moi-mme suite au dcs de mon

mari. Me voyez-vous petite et fragile comme je suis me faire accoster par
un itinrant ivre ou drogu sur le trottoir! Si lArme du Salut btit son
mga abri, je vais tre oblige de payer un taxi ou demander mes voisins
de mamener partout au lieu de marcher. Jaurai beaucoup trop peur de
me faire attaquer. (Translation: Im just beginning to go out by myself
4 https://www.citylab.com/solutions/2013/02/why-homelessness-transportation-issue/4577/
4
since the death of my husband. Small and fragile as I am, do you see me
accosted by a drunk of drugged homeless people? If the Salvation Army
builds its mega-project, I will inescapably have to pay a taxi or ask one of
my neighbours to bring everywhere instead of walking. I will be much too
afraid of being attacked.)
Marie Bourgeois, an 80-year resident living across 333 Montreal Road
2. The Duplication of Services

The senior citizens in Vanier already benefit from a very wide array of services in the
community, provided by more than 40 plus social service institutions. The Vanier
Community Services Centre (VCSC) works closely with seniors and partners of both
linguistic communities in order to develop a range of activities and services which
counter isolation, increase the residents knowledge by connecting them to useful
resources and encourage community involvement or participation.
For its part, the Centre Pauline Charron, (10 min. walk from SA proposed site) helps
seniors and young retirees improve their mental and physical health regardless of race,
beliefs or means. Participating in the activities offered by the Centre Pauline Charron
allows seniors to maintain their autonomy, prevent isolation, increase their knowledge,
develop new talents and maintain good physical form. Furthermore, the Richelieu
Community Centre and faith-based organizations provide services to seniors. The
Salvation Army Centre would compete with these services more than complement
them. It is, furthermore, hard to imagine most seniors walking the gauntlet of vagrants,
panhandlers and drug dealers to access Salvation Army community-oriented services.
3. The Destruction of a Historical Religious Site

Although the Salvation Army says that they will have enough beds to house all the
homeless men, the organization does not record their clients and non-clients who are
not given access to their shelter because of overcrowding, intoxication or drug abuse.
They will simply close the gate. As a result, those not given shelter will be forced to
find alternate places to live and sleep, namely on the street, in the doorways of
businesses after closing hours, behind buildings, on public benches, in bus shelters, in
building hallways, in abandoned buildings, etc.
One alternative place for the homeless to live and sleep would likely be the Notre-Dame
Page | 5
de Lourdes Grotto, which is located a mere 500 metres from the proposed site. The
grotto is a historical religious site which has been hosting pilgrimages from across
Canada since 1888 and is primarily maintained by volunteers. It is a place where people,
particularly seniors and women, pray in a quiet natural setting at all hours of the day or
night.
If the Salvation Army is allowed to build its megaproject, this shrine will find itself on the
front line of this issue merely because of its seating capacity and seclusion, instead of its
intended use. The overflow of SA clients unable to find shelter will seek refuge at the
grotto. The same applies to Notre-Dame cemetery. Parishioners and clergy alike are
fearful that both sites will have to be barricaded at all times instead of being open to the
public.
4. Financial Loss
For senior property owners, the Salvation Army shelter at 333 Montreal Road will
have significant financial consequences. Many seniors in Vanier have lived in the
community for decades, creating a strong sense of history, identity and pride. For those
seniors, property values is doubly important as it represents an insurance on their
future well-being.
For example, the revenues from the future sale of those seniors property will
determine whether or not they will be able to afford going into a retirement home or a
long-term care facility. REMAX and Royal LePage brokers have already informed some
property owners in the vicinity of 333 Montreal Road that if the Salvation Army is
6
allowed to build its mega-project, their (the senior homeowners) property values will
decrease between $20,000 and $40,000, depending on whether they are able to sell
before or after the shelter is built. This represents a significant loss for seniors who have
worked all their lives diligently to ensure that they are appropriately cared for their last
years.
Nous voulons cueillir le fruit de tous ces efforts et jouir de notre milieu toujours en
devenir.
Albert Potvin
5. Quality of Life
Seniors quality of life will also be affected if the Salvation Army is allowed to build its
currently proposed megaproject. In an article published by the Bronx Times, John
Bonizio, chairman of a neighbourhood merchants association, states that Properties in
communities with shelters are considered less desirable.5
Another concern expressed by Vanier senior residents is the emotional and

physical toll the proposed Salvation Army project is having on them. Dr. Michelle
Dossett, internal and integrative medicine specialist at the Benson-Henry Institute for
Mind Body Medicine, points out that for older adults stress affects them differently.
Since the announcement, many Vanier seniors have expressed experiencing high
levels of stress.
As Kelly Wilson put it We are not just worried about the 350 beds; its the 3,600 people
coming to Vanier to access the Salvation Armys social services hub that they are very
concerned about! Others, including Grard Bourdeau, an 87-year-old Vanier
condominium owner across the street from the proposed site, are particularly
concerned about the increase in noise and violence by the SA patrons, resulting in a
greater need of police, ambulances and fire trucks. Vanier commercial and residential
owners as well as the City of Ottawa would have to build fences throughout the
community to protect its citizens, businesses and properties from such things as
stabbings, assaults, bitter fights, murders, etc.
5 http://www.bxtimes.com/stories/2009/39/doc4abd0c1cc71ee107480486.html
Page | 7
The Salvation Army have indicated that security for the proposed shelter will be
provided by a private security firm and cameras. However, based on other Salvation
Army shelters across North America, things will get bad and they (the security) will have
to ask the Ottawa police to provide constant security outside the compound to provide
the security needed.
Linstallation des services de lArme du Salut amnera une

augmentation de la circulation (les visites bruyantes et
frquentes des policiers, des pompiers et des ambulanciers)
cause par le nombre ditinrants. Soir et matin, il y aurait un
achalandage dau moins 150 clients qui viendront pour du
logement.
Grard Bourdeau
Some Vanier seniors are already questioning if they should put their property up for sale
now or wait until after the City of Ottawa Planning Committees and the Ontario
Municipal Boards decision. Others are angry that they were not consulted at the onset
of the Salvation Armys intent to relocate to Vanier. Some condo owners across the
street have already put their unit up for sale in fear of being invaded by people with
severe mental issues. Nearby seniors may own the best house, but if located on a bad
street, which the Salvation Army project will make Montreal Road, loss of their long-
term investment will have a dramatic effect on their future well-being.
8
SOCIAL IMPACT ON FRANCOPHONES
Our main argument in presenting you the social impact on Francophones of the
proposed Salvation Army project is in the preservation of the French Quarter of
Vanier.
The 1990s saw the creation of the French Quarter (quartier Franais), a section of
Montreal Road, that brought together a group of stores, offices, and specialty
businesses that display their Francophone character through the architecture of the
buildings, signage, and services offered in French. See Gilbert, 1999.
In 2004, the Assemble Francophone & Comit Interagences of the Social Planning
Council of Ottawa reported that Francophones live predominantly in the eastern wards
of Ottawa. The report also recognized that a large percentage of Francophone
households in Vanier are low-income households.
Page | 9
In 2014, the Vanier Community Association and Vanier Business Improvement
Association recognized Montreal Road as the French Quarter of Vanier. Furthermore,
A Brief History of Quartier Vanier6, states that, when amalgamated to the City of
Ottawa, the City recognized Vanier as a neighbourhood that has kept its unique and
distinct identity thanks to the many French-speaking people living there.
The Business Improvement Association of Vanier, along with the residents, worked hard
to enact change in Vanier, while keeping its historical markings. We thought of the idea
of re-branding each of our main roads while trying to keep everyone happy. We ended
by naming Montreal Road as the French Quarter. (Source:
http://ottawacitizen.com/news/local-news/the-changing-face-of-vanier-what-a-
difference-a-decade-makes) (Ottawa Citizen, 2015)
Vanier residents were told at the open house that some Salvation Armys services would
be offered in French but not all. This is unacceptable given that, according to the SA, the
majority of their clients are Francophones coming from Vanier.
This is not the first time that Francophone rights are ignored. In 2015, francophone
families were also caught by surprise at the closing of the Beausoleil Child Care Centre, a
francophone daycare service in Lowertown that catered largely to low-income families.
Lebreton Flats was also a French community ravaged by so-called progress.
The SAs megaproject is viewed by Vanier residents as another means of destroying this
Francophone community just as were the Lowertown and Lebreton flat takeovers.
Francophone went through a similar fight with the Montfort Hospital. In that case, the
6 http://www.museoparc.ca/circuitvanier/a-brief-history-of-quartier-vanier/
10
lawyer had pleaded and won the case to save the hospital on the basis that it was the
discrimination of a minority population according to the charter of human rights by a
majority population because it threatened the social cohesion of the Francophone
community.
The large-scale project not only undermines two principles of the Montreal Road District
Secondary Plan, which guarantees accessibility to public spaces and the protection, and
promotion of Vanier as the French Quarter, it goes against the small French stores that
work with and promote the French culture. The 333 Montreal Road enclave could house
3 to 4-story buildings with apartments, which are either rented or owned, on the top
levels. Not to compete with the Beechwood Market, the shops, located on the ground
floor, would combine the traditions of a neighbourhood storefronts with unique and
limited baked goods, cheeses, tableware, cafs, home-made pizza, ornaments, jewelry,
artwork, bicycle parking, etc.. They show two large windows at street level with an
inside space of 160 square metres on the ground floor.
Page | 11
CONCLUSION
Homeless people have a mandated right to shelter, which means that every man,
woman, and child is eligible to have a place to live. To fulfill its legal obligation, then, the
city must build low income to serve the need.
The report of the Social Impact Group describes the effects that the proposed 350-bed
Salvation Army (SA) project, on Montreal Rd. and its 3,600 people coming to Vanier to
access a social services hub will affect different groups of residents within this
community. Vaniers children, families, women, the elderly and the Francophones, just
to name a few, are disproportionately at risk for adverse health and security outcomes
caused by the project compared with of other areas of Ottawa because of the low socio-
economic indicators that already exist.
The scope and scale of the proposed SA project will make it unmanageable given that
those who consume will be returned to the street, thus compromising the fragility and
sustainability of this community.
The members of the Social Impact Group have presented several arguments why the
Salvation Army should not be allowed to building its mega shelter at 333 Montreal
Road, as well as some redevelopment options.
As residents of the Vanier, we respectfully but firmly request that the project approval
be deferred pending a Social Impact Assessment, which has yet to be done by the city.
Accepting the Salvation Armys proposal at this time would have a destructive long-term
spillover impact for our community for generations to come.
In closing, the Salvation Army is the first of the shelters in Ward 12 to be relocated. The
Mission and the Shepherd of Good Hope are also looking to move to other locations. It
is therefore imperative that the Planning Committee and City Council foster the
decentralization of shelters and related social services to various areas of Ottawa as to
avoid other mega shelters in other wards.
12
From: David Lewis
Sent: Tuesday, November 14, 2017 9:40 AM
To: O'Connell, Erin <Erin.O'Connell@Ottawa.ca>
Subject: Proposed Salvation Army Development ou
Erin 0Connell
Planner File Lead
Planning Services
City of Ottawa
Dear Ms. OConnell,
I am writing in support of the proposal to develop a multi-purpose Salvation Army

facility on Montreal Road and to move existing Salvation Army operations on George St.
to the new facility.
I witness on regular basis the result of inadequate space in the existing

building -- namely the tragedy of vulnerable adults wandering aimlessly and exposed on
the street outside the building. They have nowhere even to sit down, much less to
receive services for housing support, employment, life skills, addiction treatment, food
bank, clothing hampers, medical and dental care, and family services that only the
proposed new facility can provide. And the design of the new facility, with its interior
courtyard and terraces, will greatly reduce the interference of those who prey on these
vulnerable people, interference I see with my own eyes.
For the good of these good people and those who will inevitably follow them, I implore
you to please support the Salvation Armys proposal.
Yours sincerely,
David Lewis Ph.D.

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Opening new doors,

Position paper opposing the Salvation Army

Re: The Salvation Army plan to develop a new multi-purpose

File No: D01-01-17-0013, D02-02-17-0062, D07-12-17-0077

Dear Councillor Harder,

With specific reference to the Planning Committee

We are concerned about the Salvation Armys plan for a new,

tended to serve vulnerable individuals who are homeless in

Aside from the proposed 140 emergency shelter beds, it is our

2 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

20 beds for addiction stabilization (a pre-requisite to the

PROPOSED SHELTER DEVELOPMENT IN VANIER 3 | Page

With specific reference to the City of Ottawas 10 Year

At SHCHC, we take pride in our Vision to make the City of Ot-

It is within this context that SHCHC wishes to comment on the

4 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

The worlds largest study on Housing First was conducted

PROPOSED SHELTER DEVELOPMENT IN VANIER 5 | Page

non-profit sector, philanthropic bodies and the general com-

With growing research, it can be seen that homelessness

6 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

We believe that we can and should take the measures need-

We believe that the City Planning Committee, as well as City

PROPOSED SHELTER DEVELOPMENT IN VANIER 7 | Page

proven path to success. With a significant reduction in scope

- Edward Speicher, Board Vice-Chair of the

CC: Councillor David Chernushenko, Capital Ward

8 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

PROPOSED SHELTER DEVELOPMENT IN VANIER 9 | Page

10 | Page POSITION PAPER OPPOSING THE SALVATION ARMY

Mission To lead and innovate in person-centred primary

PROPOSED SHELTER DEVELOPMENT IN VANIER 11 | Page

Re: Planning Committee, November 14, Agenda item 3:

Chad Rollins, President

Cc: Mona Fortier, Member of Parliament

Last updated: Oct, 13, 2017 1

Last updated: Oct, 13, 2017 2

Last updated: Oct, 13, 2017 3

Last updated: Oct, 13, 2017 4

Last updated: Oct, 13, 2017 5

Last updated: Oct, 13, 2017 6

Last updated: Oct, 13, 2017 7

Last updated: Nov. 9, 2017, 8:15 AM

Last updated: Nov. 9, 2017, 8:15 AM

The First issue I wish to present relates to Noise Level.

As Montreal Rd is an emergency vehicle corridor, (Paramedic Station and Hospital

1.1 - The Role of the Official Plan

Ministry of Tourism, Culture and

Wise Management of Resources

peat is one of the best environments for preserving wood

As per Province of Ontario Mandate , I am requesting a mandatory Archaeological

Significant archaeological resources

STAGE 1 AND 2 ARCHAEOLOGICAL

Prepared by: Jeff Earl, M.Soc.Sc.

Prepared by: Jeff Earl, M.Soc.Sc.

APPENDIX 2: Glossary of Archaeological Terms

Address (Zoning) 244 FOUNTAIN NO STUDY

Ministry of Tourism, Culture and

Wise Management of Resources

-Planning Department recomended refusal

-Planning Committee changed it to approve( But prohibited at this location:daycare ,

APRIL 12 , 2017 Council

Council adopted Planning Committee recomendations

Vote Records (Unofficial Results)