LeBreton Flats Master Concept Plan 1

LeBreton Flats
MASTER CONCEPT PLAN

National Capital Commission
202–40 Elgin Street, Ottawa, Canada, K1P 1C7
LeBreton Flats Master Concept Plan
XXX-X-XXX-XXXXX-X
Email: info@ncc-ccn.ca | Fax: 613-239-5063
Telephone: 613-239-5000 | Toll-free: 1-800-465-1867
TTY: 613-239-5090 | Toll-free TTY: 1-866-661-3530
Unless otherwise noted, all imagery is the property of the National Capital Commission.
Unless otherwise noted, the photographs in this document illustrate existing conditions.
To reduce environmental impacts, a limited number of printed reports have been produced. In lieu
of additional printed copies, a PDF version of this plan can be downloaded at www.ncc-ccn.gc.ca
2021-04-15_v18.3_EN
iv | NATIONAL CAPITAL COMMISSION

Foreword
I’m very pleased to present the Master Concept I’d like to acknowledge the incredible effort the
Plan for the redevelopment of LeBreton Flats. This NCC’s Building LeBreton team has made on
plan will guide the development of the site as the this project in a short period of time. The Board
National Capital Commission (NCC) begins the of Directors has moved expeditiously with the
project’s implementation. development of the new Master Concept Plan,
and it is thanks to the hard work of our staff, the
If I had to distill the plan’s seven guiding principles
cooperation of our partners, and the contribution of
to articulate what our planning team has achieved, I
thousands of citizens who participated in our public
would focus on three crucial objectives.
engagement and consultations that we are able to
First, we aspire to the creation of exciting, Capital- present this plan.
building attractions and activities that capture
Finally, given that we recognize that the project is
the imagination of residents of the Capital and the
located on the unceded territory of the Algonquin
millions who visit us every year.
Nation, the Algonquin Nation will be a key partner
Second, these attractions and activities will throughout the life of the project. The NCC is
complement a vibrant, liveable, mixed-use working closely with the Nation to both make sure
community that includes diverse housing in all that the project is respectful of and highlights
dimensions (type, size, affordability) that is a Algonquin Anishinabe culture and to ensure that
showcase of sustainability in terms of its low-carbon the Nation sees concrete and significant benefits
footprint and focus on active mobility, and that from the project in the form of jobs, training,
demonstrates design excellence. contracts, financial participation as well as through
And third, the site will be enriched by fantastic, land to be set aside to be developed by the Nation.
open, public green spaces that act both as We offer it as a vision and a guide for a site that has
destinations in their own right and as connections a vital role to play for the future of both the city of
between elements of the site and the waterways in Ottawa and Canada’s Capital.
and around it, such as the Ottawa River and the
aqueducts.
Tobi Nussbaum
Chief Executive Officer
National Capital Commission
LEBRETON FLATS MASTER CONCEPT PLAN | v

LeBreton Flats Master Concept Plan
Ottawa River
*Alternative
site option
Figure 1 | LeBreton Flats Master Concept Plan. This concept plan is for illustrative purposes only, and
is subject to change. Refer to Appendix B for the full alternative site option plan.
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Executive Summary
The LeBreton Flats Master Concept Plan is a foundational
document that sets out a bold and compelling vision for the
Development Targets
Building LeBreton project. The Plan addresses the remarkable Once fully developed, LeBreton Flats will be both a destination
opportunity to reinvigorate Ottawa’s LeBreton Flats, drawing out the experience and a complete community, meaning that residents will
neighbourhood’s unmistakable potential and transforming it into a be able to meet all their daily needs within walking distance of where
dynamic Capital destination. they live. In order to achieve this objective, the following targets are
intended to guide long-term development at LeBreton Flats to ensure
The plan will guide development over the next 35 years. Setting a bold
that an appropriate mix of land uses is provided:
carbon-neutral standard, it weaves together mixed-use urban streets
and expansive open spaces to produce a purposeful, vibrant, and well- + 29-hectare total plan area (71.7 acres)
connected contribution to Ottawa’s urban landscape. The plan sets out
+ 12.5 hectares (30.9 acres) of parks and open
a framework that will guide the National Capital Commission (NCC),
spaces (43 percent of total plan area)
in partnership with the Algonquin Nation and other collaborators, in
giving shape and life to LeBreton Flats.. + 520,000 square metres (5.6 million square feet) of gross floor area
Guiding Principles + 430,000 square metres (4.6 million square feet) of residential space
Seven guiding principles give shape to the Master Concept Plan and + 65,000 square metres (700,000 square feet) of office space
provide direction as it embarks on its task to create a destination for + 25,000 square metres (270,000 square feet) of retail space
all, and a place for Ottawans to call home:
+ 4,000 dwelling units
+ Enhance the Capital experience
+ 7,500 new residents
+ Build community
+ 3,750 jobs, post-construction
+ Create connections
+ Value nature
+ Foster sustainability and innovation
+ Honour the past
+ Make it happen
LEBRETON FLATS MASTER CONCEPT PLAN | vii

Key Experiences
Foundational to the plan’s success is the idea of incorporating and
celebrating the distinct identities of LeBreton Flats as part of the
Capital, a place to visit and a place to live. Together, these identities
create the following three key experiences that are reflected
throughout the Master Concept Plan.
Capital Experience
LeBreton Flats will continue to have a symbolic and iconic role in
Canada’s Capital as a gateway and entry point to Parliament Hill and
Ottawa’s downtown core. National institutions, monuments and event
spaces will continue to punctuate this Capital realm along the Ottawa
River, reflecting the importance of this area as the seat of government,
the unceded territory of the Algonquin Nation and a place of
inspiration for all Canadians.
Destination Experience
A vibrant, urban experience along two heritage aqueducts will link
to a destination park and riverfront, establishing a thriving cultural
activity hub that attracts residents and visitors alike.
Civic Experience
Existing neighbourhoods will be knit together with a reborn
residential community and amenities in a walkable mixed-use district.
The Civic Experience will support community connections at the local
scale, and create a place that anyone can call home.
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LeBreton Flats Master Concept Plan: Experiences
Ottawa River
Capital Experience
Civic Experience
Figure 2 | LeBreton Flats Master Concept Plan: Experiences. Refer to

Appendix B for the full alternative site option experiences.
LEBRETON FLATS MASTER CONCEPT PLAN | ix

Aqueduct District Albert District
Flats District Park District
Figure 3 | Master Concept Plan Districts. This concept plan is for illustrative purposes only and is
subject to change. Refer to Appendix B for the full alternative site option plan.
Four Districts
In this plan, four unique districts create a Capital destination and The Albert District
thriving mixed-use community that will celebrate liveability and A mixed-use main street neighbourhood anchored by the future
placemaking year-round. library to the east and a potential event centre or major facility to the
The Aqueduct District west, the Albert District provides space for homes and offices, as well as
shops and services along Albert Street.
A vibrant cultural hub and entertainment district spilling out onto
public space along the two aqueducts, part of the historic Ottawa The Park District
Waterworks Complex. The Park District combines the community’s industrial heritage with
The Flats District its defining natural elements, creating a unique park and public realm
experience that will draw visitors from near and far to the western end
A predominantly residential community defined by intimate,
of the community.
pedestrian-oriented streets and a variety of housing types.
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Supporting Strategies
The Master Concept Plan’s four districts are brought to life by a
compilation of supporting strategies. Each strategy adds purpose,
clarity and detail based on an understanding of the project’s assets,
issues and opportunities.
Parks and Public Realm Strategy

Anchors the master concept plan, and provides a foundational
structure for the neighbourhood.
Mobility Strategy
Expands on the public realm strategy by focusing on how people move
and interact.
Land Use Strategy

Choreographs the use throughout the built form, assembling diverse Housing and Affordability Strategy
activities into a functional and vital mix.
Brings forward critical goals for inclusivity and accessibility across all
Built Form Strategy housing types in the plan.
Describes the configuration of built form to purposefully produce Algonquin Nation Partnership Strategy
experience, accommodate growth, and capture views and sunlight.
Ensures that the Algonquin Nation is treated as a true partner in the
Sustainability Strategy planning and development of the project.
Provides a practical and future-focused lens on innovations that allow
the concept to reduce its environmental impact and become a more Performance and Implementation
resilient place.
The Building LeBreton project will be grounded in a strategic
Culture and Heritage Strategy implementation approach supported by market feasibility. The NCC is
committed to collaboration with partners to support timely progress
Ensures that culture and heritage opportunities are integrated to
that will generate social, environmental and economic returns
honour the area’s heritage, represent the Capital’s diversity and
through project completion and beyond.
showcase its creativity.
The implementation approach includes phased strategies for public
and private development, and a reporting framework that outlines
ongoing targets and key milestones.
LEBRETON FLATS MASTER CONCEPT PLAN | xi

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1 Introduction 1 4 Achieving the Vision 102
1.1 Constraint and Opportunity 3 4.1 Implementation Overview 105
1.2 Guiding Principles 4 4.2 Measuring Progress 109
1.3 History 5 4.3 Enhance the Capital Experience 110
1.4 Development Targets 7 4.4 Build Community 112
4.5 Create Connections 114
4.6 Value Nature 116
2 Master Concept 8
4.7 Foster Sustainability and Innovation 118
2.1 Master Concept Overview 11
4.8 Honour the Past 120
2.2 Aqueduct District 15
4.9 Make It Happen 122
2.3 The Flats District 21
2.4 Albert District 25
2.5 Park District 29 5 Appendices 124
A Policy Context 127
B Alternative Site Options 135
3 Strategies 34
C June 2019 Consultation Report 158
3.1 Parks and Public Realm Strategy 39
D November 2019 Consultation Report 160
3.2 Mobility Strategy 45
3.3 Land Use Strategy 67
3.4 Built Form Strategy 73
3.5 Sustainability Strategy 85
3.6 Culture and Heritage Strategy 91
3.7 Housing and Affordability Strategy 97
3.8 Algonquin Nation Partnership Strategy 101
LEBRETON FLATS MASTER CONCEPT PLAN | xiii

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1 Introduction
LEBRETON FLATS MASTER CONCEPT PLAN | 1
Gatineau
Parliament Hill
rd
le va
B ou
t io n
d era
nf e
Co
Ottawa River
Canadian
War Museum
ar y
u nd
a Bo
A re
re
Co
LeBreton Flats
Master Concept Plan
Area Gatineau
LeBreton
Flats
Ottawa
Figure 4 | Located along the Ottawa River within the city’s core area, LeBreton
Flats enjoys close proximity to downtown Ottawa and Confederation
Boulevard. It is an 18-minute walk from Parliament Hill.
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1.1 Constraint and Opportunity
LeBreton Flats is a neighbourhood on the bank of the Ottawa submits itself with humility and confidence. It lays the groundwork
River, southwest of Ottawa’s downtown core. The 29-hectare site, for LeBreton Flats to become an enduring and highly valued place
owned by the National Capital Commission (NCC), has a history befitting our nation’s capital.
characterized by episodes of sweeping change, disaster, expansions
of road and rail, and broad attempts at renewal. These episodes have
A Community-based Plan
left enduring marks on the area, forming real and perceived barriers The vision is built on input and priorities sourced in the community.
to redevelopment. Now, these challenges are outweighed by a strong Early in the process, the public helped drive the project’s guiding
public desire to see LeBreton Flats improved in a smart and ambitious principles, balancing environmental, social and economic outcomes.
manner—to see the area grow into its undeniable potential. Throughout the development of the Master Concept Plan, the public’s
input was further ingrained as drafts were released, vetted and
Ottawa’s light rail transit (LRT) system established two stations at
revised. Insights and perspectives from the public have been critical
LeBreton Flats in 2019, and a new central library is set to open at
in ensuring that the plan is both visionary and feasible, and these
LeBreton Flats in 2024. This plan steps into tremendous momentum.
perspectives will continue to inform the neighbourhood’s growth as it
A Cohesive New Vision, Grounded in History pursues the vision.
Following the cancellation of the LeBreton Flats Redevelopment Partnering with the Host Nation
Project in 2019, the NCC saw the opportunity to establish a renewed,
LeBreton Flats is located on the unceded territory of the Algonquin
cohesive vision for the site that prioritized the desires and interest
Nation. The Algonquin Anishinabe people have called the Ottawa
of the public. The resulting Master Concept Plan outlined in this
Valley home for over 8,000 years and the NCC considers the
document establishes LeBreton Flats as a place of pride for all
Algonquin Nation a key partner in the planning and development of
Canadians and a sustainable community for local residents. It is a
the project.
place that anyone can call home. Importantly, the new vision for
LeBreton Flats focuses on a compact urban form that prioritizes active Making Progress
transportation and transit, creating a complete, sustainable and This Master Concept Plan sets the stage for future work. Ongoing
vibrant community. implementation planning, including further technical studies and
This new vision is anchored by an understanding of what came strategic phasing, will be developed throughout the life of the plan.
before—layers of trade, transport, habitation, industry and This work will focus on “making it happen,” a response to the public’s
community. The plan draws on art, architecture, infrastructure and explicit desire to see material progress. Commercial, institutional,
interpretive elements to help keep these important histories alive. and residential development will be carefully and realistically phased
The vision also recognizes that LeBreton Flats has been subjected alongside beautiful parks and public realm features. With purpose and
to tremendous upheaval, expropriation and renewal as a result of patience, Ottawa will breathe life back into LeBreton Flats.
previous ambitions. It is into this lineage that the Master Concept Plan

1.2 Guiding Principles
The following seven guiding principles were developed through will continue to give shape to LeBreton Flats as it grows and evolves.
public consultation early in the planning process. Together, they set Chapter 4: Achieving the Vision, provides a summary of how the
out the highest level of intention for the Master Concept Plan, and Master Concept Plan responds to these principles.
Enhance the Capital Experience Foster Sustainability and Innovation

Reflect the national significance of LeBreton Flats by creating an ambitious Embed a culture of excellence throughout the life cycle of the project, and
new Capital destination that celebrates Canada. provide opportunities for innovation in design and sustainability. Build in
climate mitigation and resiliency measures to aim to achieve a zero-carbon
community.
Build Community Honour the Past

Create an inclusive place where anyone can live, work and play. Provide for Honour and interpret the role LeBreton Flats has played as a place of
facilities, services and public spaces that are active, lively and flexible, and significance for the Algonquin Nation and in the development of the
that contribute to community health and well-being. Capital, and connect this story to the site’s future. Recognize the lasting
effects of important milestones such as the community’s expropriation.
Create Connections Make It Happen

Connect people and place by creating interactive public spaces and linking Ground the vision in a strategic implementation approach supported by
to amenities and surrounding communities. Build on access to the O-Train market feasibility. Consult with the public and collaborate with partners to
and establish active transportation networks using a Vision Zero approach. support timely progress and generate social, environmental
and economic returns.
Value Nature
Prioritize the importance of the environment through design that restores,
enhances and protects the natural features of the site, and provides
greater accessibility to waterways. Utilize green infrastructure, promote
biodiversity and create new green spaces.

As far back as 9,000 years ago, the
Algonquin Nation lived throughout the
1.3 History
region, moving seasonally according to
annual cycles. Archaeological evidence LeBreton Flats is located on the unceded territory of the Algonquin
shows that this region was a lively trade Nation. Directly connected to the Ottawa River (the Kitchissippi) and
hub some 6,000 years ago. Current its tributaries, LeBreton Flats is part of a large homeland that contains
place names reflect the names that the a complex network of travel routes and sites that stretched through
Anishinabe peoples gave to locations for eastern North America. It has seen habitation, conflict and celebration
meeting and exchanges, such as Ottawa for 9,000 years.
(the road that walks) and Kitchissippi LeBreton Flats was first surveyed in 1794. “Lot 40,” as the Flats was
(great river). Obstacles to navigation identified, was purchased in 1809 by R. Randall, who later ceded it to
led to settlements at portage heads. his lawyers in lieu of payment. The 99th Regiment of Foot arrived at
One of the mightier obstacles was LeBreton Flats in 1818 and, after several weeks, moved to the site of
the Chaudières Falls (Akikodjiwan or the new town of Richmond. Lot 40 was purchased by John LeBreton in
Kîshkâbikedjiwan), a place of ceremony, 1820.
as witnessed by Samuel de Champlain in
For decades, the livelihoods of residents in the Flats and beyond were
the early 1600s. (The Plan for Canada’s
connected to the transportation and power potential of the Ottawa
Capital, 2017–2067)
River. Early timber trade and electric power generation infrastructure
stretched across the Ottawa River bridging between islands along
what is now Booth Street. For the next 150 years, LeBreton Flats would
remain central to the social, economic and industrial development of
Ottawa and Canada’s Capital Region.
In 1900, the Hull-Ottawa fire swept through the area, severely
damaging LeBreton Flats. In the following years, the residential Figure 5 | Lett Street in historic LeBreton Flats.
and industrial community was rebuilt. Layers of industry, railway
development, public works, bridges and residential construction— In 1962, pursuing the modernist vision set out in the 1950 Gréber
clustered around local sources of hydroelectric power—created a Plan, the NCC cleared much of LeBreton Flats. The plan to use the
dynamic landscape that was distinct from other places in the Capital. site as a federal office campus was never fully realized, however, and
Prominent individuals and families associated with LeBreton the site became emblematic of the era’s troubled renewal endeavours.
Flats from this time include Thomas Ahearn, John R. Booth, In subsequent years, efforts were undertaken to determine a suitable
Ezra Butler Eddy, the Bronsons and the Pinheys, all of whom left future for this important site. In the 1970s, the Canada Mortgage and
important legacies that transformed Ottawa into a modern city and a Housing Corporation planned the area for housing. However, only one
distinguished national capital. demonstration project was constructed, south of Albert Street.

In 1989, the NCC, the former Regional Municipality of Ottawa-
Carleton, and the City of Ottawa launched a new joint planning
process. This process led to a land agreement that consolidated land
ownership under the NCC and culminated in the 1997 LeBreton Flats
Plan. The 1997 plan still forms the policy basis that applies to the site
today. Other progress at LeBreton Flats during this time included
the realignment of the Ottawa River Parkway (now the Sir John A.
Macdonald Parkway), the construction of the Canadian War Museum,
and the initiation of residential development at LeBreton Flats, east of
Booth Street.
In 2014, motivated to enhance the attractiveness of the Capital and
bring civic life back to LeBreton Flats, the NCC launched a competitive
process seeking a development proposal for the entire site. With the
cancellation of that process in 2019, the NCC chose to lead a new
approach that would establish a comprehensive vision for LeBreton
Flats, re-establishing the area as a Capital destination and a vibrant
community. That new vision finds its expression in the Master
Concept Plan, described in more detail in the following chapters.
Figure 6 | LeBreton Flats demolition and clearance.

1.4 Development Targets
Once fully developed, LeBreton Flats will be both a + Office/Loft/Hotel Space
destination experience and a complete community, 65,000 square metres* (700,000
meaning that residents will be able to meet all square feet) of office space
their daily needs within walking distance of where
+ Retail Space
they live. In order to achieve this objective, the
25,000 square metres* (270,000
following targets are intended to guide long-term
square feet) of retail space
development at LeBreton Flats to ensure that an
appropriate mix of land uses is provided. + Dwelling Units
Of the 29-hectare (71.7-acre) total plan area: 4,000 dwelling units
+ Park Space + Population

12.5 hectares (30.9 acres) of parks and open 7,500 estimated new residents
spaces (43 percent of total plan area)
+ Employment
+ Total Floor Area 3,750 jobs post-construction
520,000 square metres (5.6 million
square feet) of gross floor area
+ Residential Space
430,000 square metres* (4.6 million *Residential, Office/Loft/Hotel and Retail measurements
square feet) of residential space are gross and do not include non-leasible/saleable areas.
Figure 7 | Historical LeBreton Flats rail yards.

2 Master Concept
LeBreton Flats Master Concept
Ottawa River
*Alternative
site option
Figure 8 | LeBreton Flats Master Concept. This Concept is for illustrative purposes only and is
subject to change. Refer to Appendix B for the full alternative site option plan.

2.1 Master Concept Overview
The Master Concept for LeBreton Flats is a cohesive vision for a At the highest level, the Capital Experience flows along the Ottawa
new Capital destination. It envisions a pedestrian-friendly place River, drawing together institutions, views and connections to
surrounded by lively and active parks and plazas. A variety of housing nature. The Civic Experience provides a core urban precinct, weaving
options will be supported by retail and employment opportunities, LeBreton Flats into the surrounding city fabric, and offering flexibility
capitalizing on direct access to the area’s two LRT stations. and diversity. Finally, the Destination Experience slices boldly across
the scheme, reaching toward Confederation Boulevard to the east, it
carries along the historic aqueducts and culminates in the major park
2.1.1 Experiences
spaces to the west.
Foundational to the plan’s success is the idea of incorporating and
celebrating the distinct identities of LeBreton Flats as part of the 2.1.2 Districts
Capital: a place to visit and a place to live. Together, these identities
create three key experiences that are reflected throughout the Master Intended to guide development over the next 35 years, the Master
Concept Plan. Concept Plan lays a framework for how the public and private sector
will work together to rebuild LeBreton Flats. The plan is structured
Capital Experience to enable the implementation of the public realm and buildings in
LeBreton Flats will continue to have a symbolic and iconic role in phases, ensuring that LeBreton Flats is a complete and connected
Canada’s Capital as a gateway and entry point to Parliament Hill and community as it continues to build out and evolve.
Ottawa’s downtown core. National institutions, monuments and event Four districts bring the Capital, Destination and Civic Experiences to
spaces will continue to punctuate this Capital realm along the Ottawa life, and each district brings a unique contribution to the plan’s overall
River, reflecting the importance of this area as the seat of government, identity. The four districts work together to make LeBreton Flats a
the unceded territory of the Algonquin Nation and a place of thriving cultural hub and diverse community grounded in a sense of
inspiration for all Canadians. history and place:
Civic Experience + Aqueduct District
Existing neighbourhoods will be knit together with a reborn
+ Flats District
residential community and amenities in a walkable mixed-use district.
The Civic Experience will support community connections at the local + Albert District
scale, and create a place that anyone can call home.
+ Park District
The form, character and composition of these districts are described in
A vibrant, urban experience along two heritage aqueducts will link
greater detail in the following section.
to a destination park and riverfront, establishing a thriving cultural
activity hub that attracts both residents and visitors.

LeBreton Flats Master Concept Plan: Experiences
Capital Experience
Civic Experience
Figure 9 | LeBreton Flats Master Concept Plan: Experiences. Refer to

Appendix B for the full alternative site option experiences.

LeBreton Flats Master Concept: Districts
Ottawa River
Aqueduct District
Flats District
Albert District
Park District
Figure 10 | The four main districts of LeBreton Flats include the Flats District, Aqueduct District, Albert District
and Parks District. Refer to Appendix B for the full alternative site option districts diagram.

A
A. Green roofs D. Heritage aqueduct Figure 11 | View from the

B. Mass timber lofts E. Grand staircase grand stairs
C. Creative spaces

2.2 Aqueduct District
The Aqueduct District is the core of LeBreton Flats, providing a vibrant a. Waterways
cultural hub and destination at the heart of the neighbourhood. Two aqueduct waterways will anchor and frame this district,
Organized along the linear space framed by two rehabilitated creating a unique public realm that celebrates the historic
aqueducts, the district creates a dynamic corridor, rich in public Ottawa Waterworks Complex, which continues to play a crucial
space and pedestrian experience. On the east end, a grand staircase role in the city’s infrastructure. The waterworks complex is a key
elegantly negotiates the grade change, creating an iconic landmark feature of this area, through its connection to the Ottawa River.
and destination. The west end of the district is anchored by LeBreton
b. South Aqueduct
Place—a signature piece of community architecture that meets the
The site’s waterworks system is protected by heritage designation
link from Preston and provides a base camp for the Park experience.
under the Ontario Heritage Act. In partnership with the City, the
The Aqueduct is a unique expression that draws out the best of
south aqueduct will be preserved and enhanced to celebrate its
LeBreton’s history and makes a strong and innovative statement
heritage.
about its future. The district will be characterized by the following key
elements.

c. Rehabilitation h. Vibrant Street Edges
The northern aqueduct is currently buried, and presents an The buildings will offer opportunities for small-scale boutique
opportunity for rehabilitation and interpretation that will retail, lively cafés and restaurants on the ground floor, which take
enhance and respect its active role in the city’s waterworks advantage of both interior and exterior space. Upper levels will be
system. The potential to uncover this aqueduct, or to provide a creative flexible spaces that could welcome anything from artists’
new linear water amenity above its alignment, should be further studios to offices.
explored with the City of Ottawa.
i. Permeability
d. Urban Promenade Consideration will be given to permeability for pedestrians
The space surrounding both aqueducts will be designed as an through the buildings by introducing passageways that connect
urban public realm that prioritizes pedestrians, while offering the public spaces along the two aqueducts.
space for patios, seating, public art, trees and plantings, and
j. LeBreton Place
programming.
The west end of the Aqueduct District is anchored by LeBreton
e. Grand Staircase Place, a signature opportunity site for an entertainment/music
A staircase linking the Aqueduct District with Booth Street above venue, cultural institution or other signature use in the heart
will create a pedestrian link, as well as a placemaking opportunity of LeBreton Flats, at the nexus of Nepean Inlet. LeBreton Place
and gathering space. The staircase will be paired with an elevator will be an architecturally significant and iconic building within
in the adjacent building that ensures accessible connectivity and LeBreton Flats and the Capital Region.
experience.
k. Curated Views
f. Mid-rise Core The design of LeBreton Place will take advantage of vistas to and
Between the two aqueducts, a series of low- to mid-rise six-storey from important surrounding sites, including the Ottawa River
buildings will be situated within the public realm along the and Nepean Inlet, and the Park District within LeBreton Flats.
aqueducts.
g. Flexible Lofts
These buildings are envisioned to be constructed in a loft-
style format, with generous floor-to-ceiling heights and
flexible floorplates that reflect an industrial building typology
reminiscent of LeBreton Flats’ industrial past. This plan
reimagines the historic loft form using sustainable mass timber
building systems.

A
C D
A. Mass timber lofts C. Booth Street Figure 12 | Looking east along

B. Active retail frontages D. Pimisi Station the open aqueduct
near Pimisi station.

A
B
C
A. Preston Street Pedestrian and Cycling Bridge C. Pimisi Station Figure 13 | Looking east in the Urban
B. Booth Street D. Shared pathway Playground under the Preston Street
Pedestrian and Cycling Bridge.

A B C
A. Urban playground C. Preston Street Pedestrian and Cycling Bridge Figure 14 | Looking west along the
B. Major event centre D. Open aqueduct open aqueduct towards the
major events centre.

A
A. Diverse housing options C. Retail storefronts Figure 15 | Looking north from the uncovered northern
B. Narrow, pedestrian-oriented streets D. Uncovered northern aqueduct aqueduct towards the Flats District.

2.3 The Flats District
The Flats District is a residential-focused community defined by small- b. Shared Spaces
scale, pedestrian-oriented streets and a broad variety of housing types. Streets will be designed as shared spaces with very slow travel
It frames the north edge of the site with a series of intimate courtyard speeds (10 to 30 km/h), through measures such as narrow
blocks that provide smooth transitions between public and private widths, textured surface pavement, flush curbs, and use of trees
spaces. The Flats is characterized by the following key elements. and street furniture to define pedestrian-only space adjacent to
buildings.
a. Pedestrians First c. Microclimate
The Flats District will be defined by a street typology that The size and orientation of blocks and buildings will be designed
prioritizes active mobility and de-emphasizes the dominance of to facilitate comfortable pedestrian and cyclist movements by
vehicles. providing protection from wind and creating pockets of sunlight
and shade.

d. Parking Underground entrances along this street—for both street-level uses and
Almost all parking will be provided in underground lots, with building lobbies—will help ensure an active frontage.
garage entrances located to facilitate entry into parking garages
k. Pindigen Temporary Park
at the edges of the Flats, and discourage traffic from circulating
The southeast corner of Wellington and Booth streets is a future
through the neighbourhood.
development site currently occupied by a temporary green
e. Active Frontages space known as Pindigen Park. Pindigen Park was established in
Buildings within the Flats will define continuous street walls with 2017 as an interim use in collaboration with representatives of
active frontages, with towers set back at key locations. the Algonquin Nation in order to improve the appearance, use
and functionality of the site in advance of future development
f. View Protection
implementation. The Master Concept Plan outlines policies for
Building heights will respect the established view protection of
future mixed-use buildings on the site, which would be pursued
Parliament Hill along the Sir John A. Macdonald Parkway, as well
in discussion with representatives of the Algonquin Nation, and
as solar protection for the November 11 Remembrance Day ray
include a strategy to replace interpretive elements in other parks
of sunlight at the Canadian War Museum’s Memorial Hall.
and the public realm within LeBreton Flats.
g. Massing Gradient
In general, towers will be shorter near Wellington Street, rising
upwards toward the Aqueduct District.
h. Courtyards
Residential buildings with courtyards will create spaces for play
and gathering with neighbours.
i. Wellington Street
Wellington Street presents a unique interface between the civic
experience of the Flats District and the national experience of the
Capital realm across the street. Architectural design standards
should reflect the prominence of this location.
j. Booth Street
The Booth Street edge presents an opportunity for office,
commercial or institutional buildings. Buildings along this edge
should mediate the grade difference between Booth Street and
the Flats by providing access from both ground floors. Regular

A B
A. Preston Street Pedestrian and Cycling Bridge C. Separated cycle track Figure 16 | Looking northeast
B. Local service retail D. Albert Street on Albert Street.

A
C
A. Albert Street C. Active retail frontages Figure 17 | Looking west towards Booth
B. Separated cycle track Street in the Albert District.

2.4 Albert District
The Albert District is a mixed-use neighbourhood anchored by the a. Transit-Oriented
future library to the east and a potential event centre or major facility This is a transit-oriented district, with density that responds to
and Bayview Station to the west. The district provides space for homes the close proximity of two O-Train stations: Bayview and Pimisi.
and offices, as well as shops and services along Albert Street.
b. Transition to Towers
The district is characterized by a mix of forms, including the Buildings along the Albert Street edge will have a six-storey
Plan’s tallest towers, and is configured to maintain north–south mid-rise podium form, topped with towers above, set back from
permeability. For an alternative block design to the potential major Albert Street to provide a transition toward the existing low-rise
event centre, please refer to Appendix B: Alternative Site Option. neighbourhood to the south.
The Albert District is given shape by the following priorities.
c. Flexible Land Uses
Land uses in this district will be flexible, and could include a mix
of residential, commercial and institutional buildings, with a
focus on retail and commercial uses at-grade.

d. Neighbourhood Connectivity
Development opportunities on NCC-owned land south of Albert
Street across from the library will facilitate connectivity, and
integrate LeBreton with the escarpment and neighbouring
communities.
e. Potential Event Centre

This plan identifies a strategic site on the north side of Albert
Street between City Centre Avenue and Preston Street that could
support a potential major event centre within the Albert District.
This location prioritizes transportation demand management
by enabling the dispersion of crowds to both O-Train stations,
an existing arterial roadway (Albert Street) and the Aqueduct
District. If an event centre or other major facility is not
forthcoming, this area could be developed as a continuation of
the Albert District mixed-use neighbourhood.
f. The Preston Connection

The Preston connection provides a legible gateway from the
south into LeBreton Flats. The connection extends Preston
Street as a pedestrian bridge, carrying people up and over the
O-Train tracks and into the heart of the neighbourhood. The
ramp becomes both a means of conveyance and a destination,
providing expansive views of the Aqueduct District and Park
District.

A
A. LeBreton Place C. Preston Street Pedestrian and Cycling Bridge Figure 18 | Looking north toward LeBreton Place and
B. Flexible public space the Flats District from atop the Preston
Street pedestrian and cycling bridge.

A
A. Climbing structures Figure 19 | Looking east into the

B. Outdoor performance space Park District.

C D
B A | Riverfront Park
B | Capital Park
C | Active Park
D | Urban Playground
2.5 Park District

The Park District combines LeBreton’s industrial heritage with its b. Three Connected Parks
defining natural elements, creating a unique experience that will draw The Park District is composed of three connected but distinctly
people to the western end of the site. The district is composed of three programmed parks that create a continuous experience befitting
distinct but interconnected parks, which together provide rich and the Capital.
diverse experiences to residents and visitors. The Ottawa River reaches
+ Capital Park
into the heart of the site via Nepean Inlet to meet a range of trails and
The Capital Park is a large, programmable space
river access points near LeBreton Place. The Park District is defined by
that contains design features drawn from Canada’s
the following key components.
vast landscapes. It finds a natural anchor at
a. Enhancing Ecologies Bayview Station, creating an address for the park,
The parks system protects and enhances natural spaces in order and enabling a wide range of events and uses.
to preserve valuable ecosystems.
+ Active Park
The Active Park connects LeBreton Flats to broader trail

and river systems that link the neighbourhood to the city. It
will include features like playgrounds, playing fields, sports
courts, public washrooms and change areas. The park will
activate recreational opportunities in all four seasons.
+ Urban Playground
The urban playground is anchored by Pimisi Station,
and provides a fun and accessible transition to the
southern Aqueduct. It will function as part of the
City’s network of play and recreation spaces.
c. Pathway Connections
The location of the parks and pathway links creates easy access to
nature and the Capital Pathway network for residents, employees
and visitors to LeBreton Flats.
d. Riverfront Park
The Parks District will provide connections to the adjacent
Ottawa River South Shore Riverfront Park, which connects nine
kilometres of riverfront lands between LeBreton Flats and the
Mud Lake / Britannia Conservation Area.
e. Nepean Inlet
Nepean Inlet is LeBreton’s direct connection to the Ottawa River.
It is celebrated here as a node supporting recreation on and off
the water.
f. Pathways
Pathways throughout the Park District weave through the
experience and link to regional pathway systems.
g. Large Outdoor Event Space

A large outdoor event space anchors the Capital Experience,
providing a well-served venue for all types of festivals,
performances and celebrations.

B
C D
A. Nepean Inlet C. Boardwalks Figure 20 | Looking northwest at Nepean Inlet.

B. Ottawa River Pathway D. Native plantings

B
A. Public gathering space C. Urban beach Figure 21 | A view southeast from the
B. Aqueduct District west side of Nepean Inlet.

A
A. City Centre pedestrian and cycling B. Open play spaces Figure 22 | The Capital Park, where the City Centre
bridge C. Native plantings pedestrian and cycling bridge lands.

3 Strategies
B
A
A. Aqueduct District C. Nepean Inlet

B. Major event centre

Strategies
The following section outlines seven strategies that provide an additional level of resolution to the Master Concept Plan. Each strategy adds
purpose, clarity and detail based on a purposeful understanding of the project’s assets, issues and opportunities. The strategies offer a mix of
instruction, recommendation and provocation. Together, they provide a map of the project’s potential, helping build a shared instinct for the
imperatives and opportunities that will shape the future of LeBreton Flats.
Parks and Public Realm Strategy Sustainability Strategy

Anchors the Master Concept Plan with public Provides a future-focused lens on innovations
space, and provides a foundational structure for the that allow the concept to reduce its environmental
neighbourhood. impact.
Mobility Strategy Culture and Heritage Strategy

Expands on the Parks and Public Realm Strategy by Traces lineages through the design to highlight
focusing on how people move and interact across moments of reflection, diversity, celebration and
all modes. creativity.
Land Use Strategy Housing and Affordability Strategy

Choreographs the use throughout the built form, Brings forward critical goals for inclusivity and
assembling diverse activities into a functional and accessibility across all housing types in the plan.
vital mix.
Built Form Strategy

Describes the configuration of built form
to purposefully produce experience and
accommodate growth.

3.1 Parks and Public Realm Strategy
3.1.1 Intent 3.1.2 The Parks
The Parks and Public Realm Strategy includes foundational direction There are three key open spaces at LeBreton Flats: the Capital Park,
for the structure and connectivity of LeBreton Flats. It seeks to create the Active Park and the Urban Playground. Together, they form
a network of natural and built spaces that are accessible, equitable the Park District. Largely located in what was previously part of
and beautiful, allowing people to live sustainable, active and healthy the Ottawa River, the ground here has been built up with landfill
lifestyles. Critically, it establishes the base conditions that invite and construction debris over the past century, creating conditions
people to live a meaningful public life. The strategy has three core unfavourable for buildings.
components:
The Capital Park is a large, programmable space that enables a
+ Ensure that the public realm enables smooth flows wide range of events and uses. The Active Park is focused on active
through the site, with a particular focus on the recreation, and ties LeBreton Flats to the city’s trail and river systems.
destination experience east–west through the site. These two major parks are supported by the Urban Playground, which
provides local open space in the centre of the plan area.
+ Embed accessible four-season considerations
and opportunities in all public spaces. The large Park District is supported by a network of smaller
Neighbourhood Parks that offer more intimate spaces for recreation,
+ Find balance between active and passive relaxation and interaction within the community.
spaces in parks, streets and plazas.
LeBreton’s parks and open spaces demand a delicate balancing act— 3.1.2.1 Capital Park
the plan must provide a destination worthy of LeBreton Flats’ place in Building on the existing waterfront green space, Ottawa River South
the nation’s capital, while still providing intimate moments and places Shore Riverfront Park, and adjacent LeBreton Flats Park event
of retreat and recreation for locals who call it home. A combination space, the Capital Park will draw visitors to the western end of the
of thoughtfully designed and programmed parks, waterfront spaces community, utilizing the Aqueduct District as a natural conduit from
and other public spaces give shape to this approach. The section is Pimisi Station and the public library to the east.
organized into three parts:
a. This park should include design and landscape features
+ The Parks representing Canada’s vast and varied landscapes placed around
+ Public Realm the parkway to create a threshold to the Capital.
+ Design Guidelines b. With large open spaces and proximity to Bayview Station, this
park could be a natural home for an outdoor amphitheatre and
event spaces.

Parks and Public
Realm Strategy
1. Capital Park
2. Riverfront Park
3. Active Park
4. Urban Playground
5. Local open space
6. Flexibility for a major
events centre
Ottawa River
4 5
*Alternative
3
site option 5
2
5
1
Figure 23 | LeBreton Flats Master Concept Plan: Parks and Public Realm Strategy.

Connecting with the Ottawa River South Shore Riverfront
c.
3.1.3 Public Realm
Park at multiple arrival points, this park will create seamless
integration of the Capital Pathway network and features along The public realm in LeBreton Flats will be composed of streets, urban
the Ottawa River shoreline. squares, plazas, green spaces and other publicly accessible outdoor
spaces. Throughout its reach, the public realm will celebrate the
3.1.2.2 Active Park winter city, promoting a year-round, active and environmentally
friendly lifestyle. It will act as a community scaffolding, providing
a. In line with the NCC’s South Shore Riverfront Park Plan, access
the opportunity and excuse to enjoy a public life in a beautiful and
to the shoreline could be improved by adding boardwalks and
inspiring series of spaces.
portage points around Nepean Inlet.
a. The public realm network should seek out high connectivity,
b. Recreational facilities will include features such as playgrounds, using natural hierarchy to balance legibility and delight.
water play features, playing fields, sports courts, public
washrooms and change areas. b. Wherever possible, the public realm will provide legible and
efficient links between developed urban areas and naturalized
c. Amenities will be designed to provide four-season functionality, spaces.
enabling easy access to activities such as outdoor skating rinks,
winter sports and cross-country skiing in the winter. c. Historic assets such as the Ottawa Waterworks Complex
(including the aqueducts) at LeBreton Flats will be preserved or
d. The NCC will work in partnership with the City of Ottawa to enhanced, and will act as prominent attractions and landmarks
fulfill municipal recreational needs in this area. in the public realm.
d. Intimate neighbourhood parks and urban squares will be

3.1.2.3 Urban Playground provided throughout the Albert District, and will feature locally
a. An urban play space will provide active recreation opportunities focused amenities such as trees and plantings, playgrounds and
for people of all ages and abilities. seating areas for residents to play, gather and relax.
b. This park will be a continuation of the public space at the Pimisi e. Opportunities to enhance the public realm through the
O-Train station, making best use of the narrow area between the provision of privately owned public spaces (POPS) should be
O-Train tracks and the southern heritage aqueduct. explored through the development approval process.
c. The NCC will work in partnership with the City of Ottawa to

fulfill municipal recreational needs in this area.

Commercial programming such as farmers’ markets and other
3.1.4 Parks and Public Realm g.
markets, food trucks and other temporary vendors will be
Design Guidelines permitted to sell goods at key nodes in the community.
Parks and the public realm are the heart of what will make LeBreton
h. Low-impact development and on-site retention of stormwater
Flats unique. Water forms the spine of the Parks and Public Realm
through green features such as swales will be prioritized.
Strategy, connecting LeBreton Flats from east to west through its heart
at the Aqueduct District. All public realm considerations at LeBreton i. Sustainability measures incorporated throughout LeBreton
Flats contribute in some way to celebrating and connecting people to Flats should be made public-facing and incorporate education
the Ottawa River, Nepean Inlet, and the historic waterworks complex components where possible.
and aqueducts, incorporating elements that recognize the area’s
overlapping roles as a destination, part of the nation’s capital and a j. Native plant species that are suited to the region’s climatic
home for Ottawans. Regardless of location, all public realm spaces and conditions will be prioritized. Plant material should be
parks must aspire to create these experiences. compatible with the specific environmental conditions of the
National Capital Region, and provide year-round interest.
a. Outdoor public spaces should be designed for public enjoyment
through both passive and active leisure features. k. Trees should be planted throughout the public realm with the
intention of developing a dense canopy that provides shade and
b. Seasonal, temporary public realm improvements should be wind protection.
considered to activate and bring variety to the public realm.
l. All public realm spaces will be universally accessible. Where
c. Intuitive wayfinding signage will be incorporated throughout stairways are required to navigate grade changes, they will be
LeBreton Flats, connecting visitors and residents to key points of paired with ramps and/or elevators.
interest and amenities.
d. Visual permeability should be provided in public spaces and

buildings to facilitate spatial orientation toward parks and the
public realm.
e. Buildings should contribute to the public realm through public

art or other features that beautify and help create a sense of
place.
f. The public realm should be clearly delineated from private

residential courtyards.

Parks and Public
Realm Design
Example
1. Capital Park
2. Riverfront Park
3. Active Park
4. Urban Playground
5. Local open space
6. Flexibility for a major
events centre
Ottawa River
Flexibility for a major

event centre
4 5
3
*Alternative 5
site option
2
1 5
Figure 24 | This image presents a detailed example of potential future parks and public realm
design options, and is subject to change based on future public consultation.

3.2 Mobility Strategy
density forms, and positioned as arrival points for the broader site.
3.2.1 Intent Universal access is built into the concept at every level of the design.
Mobility is a core performance of the Master Concept Plan, building The Mobility Strategy is organized into the following sections:
directly on the framework established by the parks and public realm
+ Mobility Concept
strategy. The way that people move around and through LeBreton
Flats needs to support the three experiences (Capital, Destination and + Active Mobility
Civic), knit together the plan’s districts and tie LeBreton to the rest
of the city. This plan seeks out a mobility network that ensures the + Connections
following: + Vehicle Network
+ active modes are a priority
+ Design Guidelines
+ the neighbourhood is organized around public transit
+ spaces are universally accessible. 3.2.2 Mobility Concept

The Master Concept Plan has been designed to encourage active The plan pursues a “Vision Zero” approach that aims to eliminate
mobility above all other modes of transportation. The site’s two traffic collisions causing serious injury and fatalities. The approach
existing O-Train stations are leveraged to provide gravity for higher- seeks to prioritize the safe passage of the most vulnerable road users,
whether they are walking or using any number of light mobility
Preston Street Pedestrian

and Cycling Bridge
Figure 25 | Sectional elevation (west to east) illustrating the Preston Street

pedestrian and cycling bridge and the Aqueduct District.

Mobility Strategy
Ottawa River
1
7 9
4
1
8
6
*Alternative
site option 1 5
1 3
1. Pathway Connections 6. Southern Heritage Aqueduct
2 2. Trillium Rail Corridor 7. Northern Aqueduct

3. City Centre pedestrian and cycling bridge 8. Pimisi Underpass
4. Flexibility for a major events centre 9. Grand staircase
5. Preston Street pedestrian and cycling bridge
Figure 26 | Mobility Strategy

devices, from bicycles to wheelchairs. The approach also seeks to lifestyle that provides for the daily needs of residents without requiring
design human-centric spaces that anticipate small human failures, automobile travel.
and ensures that they do not result in catastrophic outcomes, such as
a. Grand Staircase
serious injury or loss of life.
A focal-point staircase and adjacent elevator (or equivalent
To achieve the goals of Vision Zero, the Master Concept Plan uses universally accessible alternative) will connect Booth Street to
filtered permeability as a design strategy. Filtered permeability the Aqueduct District.
prioritizes active modes by offering safer and direct connecting routes
b. Pimisi Underpass
for pedestrians and cyclists, while purposefully creating discontinuous
An accessible ramp and staircase that will connect Albert Street
networks for vehicle users. This approach is applied increasingly
under Pimisi Station to the urban playground.
toward the centre of the plan area, where the O-Train Confederation
Line creates a physical barrier through the site. Connections c. Preston Pedestrian and Cycling Bridge
exclusively for active modes are provided over the O-Train line, in An active-mobility connection over the O-Train line from Albert
addition to an east–west pathway spine that provides connectivity Street to the Aqueduct District and the Flats District.
through the entire site. For vehicles, the perimeter of arterial streets
provide local access into the Central and West Flats via a series of local d. City Centre Pedestrian and Cycling Bridge
streets and lanes. The Master Concept Plan celebrates human-powered An active-mobility connection over the O-Train line from Albert
mobility throughout its design, incorporating woonerf-style, curbless Street to the Park District.
street designs, and lower speeds on all internal roads. This filtered
e. Pathway Connections
permeability concept aims to eliminate regional cut-through traffic
Several underpasses and intersections will connect the river
from within LeBreton Flats.
pathway network to the site.
Another key component of achieving the Vision Zero approach
is the reimagining of the proposed Preston Street arterial road f. Flexibility for a Major Event Centre
connection into a pedestrian and cycling bridge. An active-modes- The site is well connected to two O-Train stations, as well as
only bridge over the O-Train in that location will provide an iconic pedestrian and cycling facilities and roadways to accommodate
and direct connection to LeBreton Flats and the Ottawa River from and disperse large crowds.
the existing communities to the south. The Master Concept Plan
prioritizes universal accessibility, transit access and active modes.
The community design and proposed land uses enable an urban

3.2.3 Streets Proposed Streets: Legend
All proposed roadway alignments and widths are for conceptual purposes only.
The proposed street cross-sections shown in Figures 28–42 reflect Detailed alignments and designs will be determined at the implementation stage.
the plan’s approach to creating human-scale public connections that

Existing Streets Proposed Streets /Lanes Proposed Streets /Lanes
promote sustainable modes of travel. From lanes to local to arterial (most likely to become public) (most likely to become private)
streets, rights-of-way are intended to remain as narrow as possible,

SJAM Sir John A. Macdonald Parkway CC City Centre Avenue extension Ap1 Albert District - MEC access road
in order to create inviting and safe public spaces, and to assist in (18.0-m ROW) (18.0-m ROW)
AS Albert Street
encouraging slower vehicle travel. The detailed design for proposed (Proposed ~4m Northside ROW extension ) VP Vimy Place extension Ap2 Albert District access lane
(21.0-m ROW) (12.0-m ROW)
cross-sections will be undertaken during the implementation phase. CC City Centre Ave PS Preston Street extension Ap3 Albert District access lane
The cross-sections provided are intended to be interpreted only at VP Vimy Place (30.0-m ROW) (36.0-m ROW)
a conceptual level, and as a means to communicate the scale and WS Wellington Street A1 Albert District local street - A/B Fp1 Flats District shared lane - A
(18.0-m ROW) (8.0-m ROW)
(Proposed 3.5m Southside ROW extension )
function of the roadways. A2 Albert District local street - A/B Fp2 Flats District shared lane - A
PS Preston Street (18.0-m ROW) (8.0-m ROW)
3.2.3.1 Development setbacks BS Booth Street F1 Flats District local street - A/B
(18.0-m ROW)
Fp3 Flats District shared lane - A
(8.0-m ROW)
FS Fleet Street
The proposed development setbacks shown in the cross-sections LS Lett Street
F2 Flats District local street - A/B
(18.0-m ROW)
Fp4 Flats District shared lane - A
(8.0-m ROW) (anticipated 6-7% slope)
will serve as frontage zones for the active uses (primarily retail or LA Lorne Avenue F3 Flats District local lane - B Fp5 Flats District local lane - D
residential). These setbacks will not serve any transportation or utility PkS Perkins Street
(10.0-m ROW) (14.0-m ROW)
purpose. They will be used to create compact urban interfaces for F4 Flats District local lane - B
EA Empress Avenue (10.0-m ROW)
retail spill-out, food and beverage patios, and residential stoops and/or SS Slater Street F5 Flats District local lane - B
(10.0-m ROW)
patios. Figure 26 provides examples of how the development setbacks
can be efficiently designed and occupied in order to create a more
textured and enriching urban experience, and provide a degree of
separation between public and private spaces.
Figure 27 | Examples of setbacks from recent development in the Netherlands,

Denmark and Sweden. Images captured in Google Street View.

Proposed Streets
Streets & Lanes
Existing streets
Proposed new streets
Proposed new lanes
Proposed new access routes
(Conceptually anticipated to be private streets and lanes)
LS
Fp5
FS
SS
F5
WS
F4
Fp4
F2
BS
VP F3
Fp3
F1
Fp2
Ap3
VP Fp1
EA
SJAM PkS
Ap2 LA
A1
A2
AS
Ap1
PS
PS
CC
CC
Figure 28 | Proposed street network with reference labels (concept)

Shared Lane 8m
Enhanced
(private or public lanes in Flats District)
3.2.3.2 Shared lanes

Narrow, curb-less public or private laneways will provide many of the PL PL
8m
local connections within the LeBreton Flats, ensuring slow design-
speed (10–20km/h) rights-of-way can be safely used and shared by
DEV. SETBACK
DEV. SETBACK
1m 6m 1m
all modes. These routes will be lined with active frontages and will
2m 6m
prioritize consolidated vehicle access and loading areas to reduce
EMERG.
points of conflict between vehicles, pedestrians and cyclists. Multiple VEH.
typologies of shared lanes are proposed: 8-, 10-, 12-, and 14-metre- ONLY
wide lanes. From a vehicle perspective, the 8-metre shared lanes are
intended to accommodate only emergency and maintenance vehicles,
while the 10- to 14-metre shared lanes will be able to accommodate Bike/Drive/Walk
regular vehicle access and will include sidewalk space at the street edge
for those who do not want to share the passageway with all modes.
Figure 29 | Shared Lane A (8 m)
That said, all lanes will still to be designed for slow enough speeds to
(Private or public lanes in the Flats District)
allow for easy lateral pedestrian crossing at any point. Vancouver’s
Walter Hardwick Avenue is a great example of the proposed 12-m
shared lane. Shared Lane 10m
(private or public lanes in the Flats District)
PL PL
DEV. SETBACK 10m
DEV. SETBACK
2m 6m 2m
Bike/Drive/Walk
Shared Lane 12m

Figure 30 | Shared Lane B (10 m)
PL PL
DEV.
Shared Lane 12m Walk
Tree/
Light/
Furn.
Bike/Drive

Shared Lane 12m Walk
Tree/
Light/
Furn.
Bike/Drive
PL
12m
PL
Vimy Place (21m
Between Wellington & the Aqueduct Distr
PL PL
Vimy Place (21m)
DEV. SETBACK
DEV. SETBACK
2m 6m 2m 2m
12m
Between Wellington & the Aqueduct Distri
DEV. SETBACK
DEV. SETBACK
2m 6m 2m 2m
Walk Bike/Drive Walk
Shared Lane 14m Figure 31 | Shared Lane C (12 m)

(private or public lanes in Albert District)
Shared Lane 14m
Municipal PL
Park
(private or public lanes in Albert District) Municipal PL

Park3m 3m 1.3m 5m
PL PL
14m
3m 3m 1.3m 5m
DEV. SETBACK
DEV. SETBACK
PL 2.85m 6m 2.50m 2.65m PL
14m
Tree/
DEV. SETBACK
DEV. SETBACK Bike Pathway 45° Parking for

2.85m 6m 2.50m 2.65m Walk Light/
(In Mun.Park) Park Users
Furn.
Tree/
Bike Pathway 45° Parking for
Walk Light/
Furn.
Drop-off/
Loading
Drop-off/
Loading
Figure 32 | Shared Lane D (14 m)
Figure 33 | Walter Hardwick Avenue, Vancouver, B.C.
(Private or public lanes in Albert District)
Preston Street 30m

Image captured in Google Street View.
Between Albert St & LRT

Preston
Intersection Street 30m LEBRETON FLATS MASTER CONCEPT PLAN | 51
Proposed Lanes (8-12m) Proposed Public 30km/h Local Streets
(Public, or Private)
(18m) All Utilities to fit within R/W
Local Street 18m (v1) Local Str
Breton
Shared Lane 8m
Enhanced
3.2.3.3 Local and collector streets 1-Side On-Street Parking 1-Side On
(private or public lanes in Flats District) Typical Typical
Local streets are distributed throughout the plan area, and are there are two site-specific local streets with elevated prominence: the
onceptual Roadway Cross Sections

intended to provide locally scaled multi-modal spaces that can extension of Vimy Place south of Wellington Street, and Preston Street,
mediate local vehicle traffic between the perimeter arterial streets between the O-Train and Albert Street. Due to both streets’ positions Tree/
Walk Light/
and the development parcels in a slow safe manner. Local streets are of importance within the hierarchy of the mobility network, and how Furn.
PL PL PL
PL heavily traffic-calmed
PL and have raised intersections at all crossings they relate and connect to the plan’s 18m public realm and open spaces,
8m
with other streets and lanes. The street’s design-speed is 30 km/h. The these streets get special treatment. Vimy Place has deeper setbacks on
DEV. SETBACK
DEV. SETBACK
DEV. SETBACK
8.9m
plan’s6mproposed1mroad network and the concentration of residential uses the east side, allowing for larger frontage space2.4m (patios and/or stoops),
DEV. SETBACK
DEV. SETBACK
3m 1.3m 6.5m 1.4m 3m 3m 1.3m

1m
2m
allow local
6m
streets to function as shared spaces. Similar to examples pavers in the carriageway, a parallel multi-use pathway to separate
EMERG.
in Denmark VEH.
and the Netherlands, local streets in the plan area do not active users and angled on-street parking dedicated to users of the
ONLY
separate cyclists from vehicles. The streets’ calming characteristics municipal active park. Preston Street includes a unique central linear
Proposed Public 30km/h Local Streets
and slow travel speeds allow all cyclists to feel comfortable within the open space with added trees and plantings, similar to Catalan Ramblas J.U.U.T
Gas
(18m) All Utilities to fit within R/W

carriageway. (refer to Rambla de Catalunya asBike/Drive
an example). This central linear space
Walk Park Walk 1.25m 1.1m 0.6m
Bike/Drive/Walk
will prominently feature the southern landing of the Preston Street 0.85m
There are two typical local street typologies that can be used, 4.5m
pedestrian and cycling bridge, which will connect active modes users
depending on adjacent development characteristics: one type features
across the O-Train into the heart of the plan area, creating an iconic
on-street parking on one side, the other has no on-street parking.
Local Street 18m (v1) Local
Local Street 18mStreet
(v2) 18m (v1)
testament to sustainable urban living.
Shared Lane
These routes will be lined with active uses and will also prioritize
1-Side10m
On-Street Parking consolidated vehicle entry points and loading areas. Additionally,
(private or public lanes in the Flats District) No Parking1-Side On-Street Parking
Typical Typical
Intersection
PL PL
10m
DEV. SETBACK
DEV. SETBACK
2m 6m 2m Tree/ Tree/
Walk Light/ Bike/Drive Park Light/ Walk
Furn. Furn.
PL PL PL PL CL PL PL
18m 18m 18m
DEV. SETBACK
DEV. SETBACK
DEV. SETBACK
DEV. SETBACK
DEV. SETBACK
DEV. SETBACK
8.9m 8.9m
3m 1.3m 6.5m 2.4m 1.4m 3m 3m 1.3m 6.5m

3m 1.3m 2.4m 1.4m
6.5m 3m 2.4m 1.4m 3m
Bike/Drive/Walk
0.65m 0.65m
Shared Lane 12m Gas D.E. Gas

J.U.U.T J.U.U.T
Tree/ Tree/
Walk Light/ Bike/Drive Walk Storm
Light/ Walk
0.8m 0.7m 1.25m
Walk Bike/Drive Park Walk 1.25m 1.1m 0.6m 0.6m 1.1m 1.25m
Furn. Furn.San. Wat.
0.85m 1.5m 4.25m
0.95m
4.5m 8.9m 4.6m
Figure 34 | Local Street A (18 m) Figure 35 | Local Street B (18 m)

(One-side on-street parking) (No on-street parking)
PL
Local StreetPL18m (v2)
12m Vimy Place (21m)
52 |
No Parking
NATIONAL CAPITAL COMMISSION Between Wellington & the Aqueduct District
ETBACK
ETBACK
2m 6m 2m 2m
Intersection
DEV. SET
DEV. SET
Vimy Place (21m)
Between Wellington & the Aqueduct District
Shared Lane 14m

(private or public lanes in Albert District) Municipal PL PL The Flats
Park 21m
DEV. SETBACK
3m 3m 1.3m 5m 7m 1.3m 3m
PL PL
14m
The Flats
DEV. SETBACK
DEV. SETBACK
2.85m
Municipal 6m PL 2.50m 2.65m PL
Park 21m
Tree/ Tree/
DEV. SETBACK
Walk Light/ Drive Drive Light/ Walk
3m 3m 1.3m 5m 7m 1.3m 3m (In Mun.Park) Park Users
Furn. Furn.
Drop-off/
Loading
Tree/ Tree/
Walk Light/ Drive Drive Light/ Walk
Furn. Furn.
Preston Street 30m Figure 36 | Vimy Place (21 m)

(Between Wellington and the Aqueduct District)
Intersection
PL PL
30m
DEV. SETBACK
DEV. SETBACK
5m 3.5m 12.6m 3.5m 5m

2.50m 2.50m
PL
Walk Drive Walk/Bike Drive Walk

DEV. SETBACK
3.5m 5m
2.50m
Intermittent Intermittent
Parking Parking
Figure 37 | Preston Street (30 m) Figure 38 | Rambla de Catalunya, Barcelona. Image

(Between Albert Street and the O-Train) captured in Google Street View.
Drive Walk
Intermittent LEBRETON FLATS MASTER CONCEPT PLAN | 53
Parking
City's Plan: Albert Street East of Empress
PL City's Plan: Albert Street East of

PLEmpress
26.5m
2m 1m 1.8m
PL 3.5m 3.5m
14m
3.5m 3.5m
1.8m 1m 3m
PL
0.6m 0.6m 0.7m
3.2.3.4 Perimeter arterial streets 26.5m Library

Site
(North)
The plan does not seek to dramatically alter the cross-sections of any 2m 1m 1.8m 14m 1.8m 1m 3m
of the area’s existing or planned arterial streets. Minor modifications 0.6m

3.5m 3.5m 3.5m 3.5m
0.6m 0.7m
Library
are suggested to the planned improvements to Albert Street along Walk Bike Drive Drive Drive Drive Bike Walk
Site
(North)
the northern edge, where a 3.5-m extension is recommended to allow
better pedestrian and cyclist separation, and additional trees are
proposed along Wellington Street. For Booth Street, aside from the
Walk Bike Drive Drive Drive Drive Bike Walk
completion of the elevated cycle tracks between Fleet and Wellington
streets, the plan does not propose to alter Booth’s cross-section, which
has been modified multiple times in recent years to better comply with
Figure 39 | Planned improvement to Albert Street, east of Empress (26.5 m)
complete street principles.
Planned ORLT: Albert Street Empress(Forto Booth
information only)
Planned ORLT: Albert Street Empress to Booth

PL 31.5m
PL 2.00
SETBACK
DEV.
0.3m
2.25m 2m
PL 2.15m 3.5m 3.3m 4.8m 3.3m
31.5m
3.5m 2m 2m 2.25m
0.15m PL
Library 2.00
Site
SETBACK
(North)
DEV.
2.25m 2m 2.15m 3.5m 3.3m 4.8m 3.3m 3.5m 2m 2m 2.25m
0.3m 0.15m
Library
Site
Walk Bike Drive Drive Median/Turn Drive Drive Bike Walk (North)
Figure 40 | Planned improvement to Albert Street, Empress to Booth (31.5 m)

Walk Bike Drive Drive Median/Turn Drive Drive Bike Walk
(For information only)
Proposed ORLT Modification (upon redevelopment):

Albert Street Booth to City Centre
Proposed ORLT Modification (upon redevelopment):
PL Albert Street Booth to City Centre PL
31.5m 3.5m
PROPOSED PROPOSED
NEW R/W PL
Planned ORLT: Albert Street Empress to Booth
Proposed Wellington Street Between Booth & Vimy (34.6m + 3.5m)
PL 31.5m
PL 2.00
SETBACK
DEV.
2.25m 2m 2.15m 3.5m 3.3m 4.8m 3.3m 3.5m 2m 2m 2.25m
0.3m
PROPOSED
0.15m
2m 3.5m 34.6m 2nd TREE
Library
PROPOSED ROW Site
PROPOSED MEDIAN TREE (North)
LANDSCAPE 4m 3m 4.4m 3.5m 4.8m 3.5m 4.4m 3m 4m PROPOSED
SETBACK 3m MUP
SETBACK
LEBRETON
DEV.
FLATS PARK
(NORTH)
Walk Bike Drive Drive Median/Turn Drive Drive Bike Walk
10.9m 10.90
Landscape Walk Parking Drive Drive Median/Turn Drive Drive Parking Walk Landscape
Figure 41 | Proposed modifications to the public realm:
Proposed ORLT Modification (upon redevelopment): Wellington Street, between Vimy Place and Booth Street (34.6 m)
(Red labels indicate changes to existing conditions.)
Albert Street Booth to City Centre
PL PL
31.5m 3.5m
PROPOSED PROPOSED
NEW R/W PL
2.25m 2m 1.25m 3.5m 3.3m 4.8m 3.3m 3.5m 2.5m 1.1m 2m 1.5m 4m 2m
SETBACK
DEV.
NCC Lands
(North)
Walk Bike Drive Drive Median/Turn Drive Drive Parking Bike Sidewalk
5m 4.5m
Existing
Watermains
Relocated
Cave Creek Sewer
Figure 42 | Proposed modification to Albert Street, Booth to City Centre (31.5 m + 3.5 m = 35 m),
including a widened right-of-way to accommodate improved separation
of active modes and the relocation of the Cave Creek collector sewer
Proposed Wellington Street Between Booth & Vimy (34.6m + 3.5m

Active Mobility

event centre
Ottawa River
*Alternative
site option
Figure 43 | LeBreton Flats Master Concept Plan active mobility network.

City Centre Avenue connection: A pedestrian and cyclist bridge
3.2.4 Active Mobility a.
over the O-Train from Albert Street to the Destination Park.
At the most fundamental level, the mobility network prioritizes active
modes by offering a higher degree of connectivity for pedestrians b. Preston Street connection: A pedestrian and cyclist bridge over
and cyclists, while de-emphasizing priority for vehicle access. This is the O-Train and aqueducts from Albert Street to LeBreton Place
reinforced throughout the design: internal roads are woonerf-style, and/or the Aqueduct District will be provided in the Preston
shared streets, and trails weave into and across the site. Street / Vimy Place corridor.
LeBreton Flats will be a true transit-oriented neighbourhood, with + If a major event centre is built in the Albert
a mobility network that ensures that all locations within the Master District, it should be designed to include an
Concept Plan area are no further than 600 metres (less than a additional wide bridge/ramp across the O-Train
10-minute walk) from an O-Train station. This simple organizing line, connecting to the Aqueduct District.
principle adds safety, comfort and convenience to the experience of
c. Southern heritage aqueduct: Existing heritage bridge structures
public transit that skews individual decision making toward more
will be maintained in situ for pedestrian and cyclist access over
sustainable forms of mobility. Ultimately, it helps embed active modes
the aqueduct. The historic aqueduct bridge at Pimisi Station also
in the everyday practices of residents and visitors.
serves as a connection under Booth Street.
3.2.5 Connections
Any development within LeBreton Flats must manage inherited
infrastructure, including arterial roads, aqueducts, highways and
O-Train tracks that bound and bisect the site. A key part of the
LeBreton
Mobility Strategy includes the provision of connections over and Preston Street
Place
under these existing elements, reconnecting the public realm and connection
reducing the impact this infrastructure has as a barrier to active
modes. The following sections outline the bridges, underpasses and
pathways that comprise the new mobility fabric.
3.2.5.1 Bridges Major event centre

To reinforce the primacy of active mobility through the site, all new
north–south connections over the O-Train line and aqueducts are
designed for pedestrian and bicycle access only, at the following
connection points:
Figure 44 | LeBreton Flats Master Concept Plan, Preston
Street connection and LeBreton Place.

Preston Street Connection Alternative Options
LeBreton Preston Street LeBreton Preston Street

Place pedestrian and Place pedestrian and
cycling bridge cycling bridge
Major event centre Major event centre
LeBreton Preston Street LeBreton Preston Street

Place pedestrian and Place pedestrian and
cycling bridge cycling bridge
Major event centre Major event centre
Figure 45 | The configuration of a pedestrian/cycling bridge in the Preston Street corridor

will be subject to a future design process. These images illustrate a number
of potential options for the configuration of a bridge in this location.

Walking Distance
From O-Train
60 0 m
(600 m / 5- to 10-minute walk)
Ottawa River
m
60 0
Pimisi Station
Bayview Station
Figure 46 | Radial (dashed) and buffered network (solid) walksheds from the Bayview and Pimisi O-Train stations illustrate
the connectivity of LeBreton Flats and the surrounding neighbourhoods within a five- to 10-minute walk.

Transit Network
Master Concept Plan area
LRT
LRT station
Existing bus routes
Existing bus stops
Ottawa River
Figure 47 | LeBreton Flats is well connected to surrounding neighbourhoods

and the region via the O-Train and existing bus routes.

d. Northern aqueduct: If uncovered, or covered with a new water + Pathway link at Pimisi Station
amenity, connectivity over this aqueduct should be considered at
c. Explore opportunities to link boardwalks and/or pathways along
three points where the new north–south local streets in the Flats
the shores of the Nepean Inlet, under the Sir John A. Macdonald
District meet the northern aqueduct.
Parkway to connect the pathway system at LeBreton Flats with
e. Trillium Rail Corridor: Consider future opportunities to create the Capital Pathway network along the Ottawa River.
a link (bridge, underpass or at-grade connection) from the Park
District to Bayview Yards. 3.2.5.4 Pathways
a. A key pathway link will run through LeBreton Flats from west to
3.2.5.2 Grade changes east, from Bayview Station along the north side of the O-Train
line, through the Urban Playground, connecting to the Library
a. Grand Staircase: The different grade levels of the Booth Street and Archives Canada and Ottawa Public Library Joint Facility.
bridge and the Aqueduct District will be linked with a grand
staircase, paired with a 24/7 accessible elevator (or acceptable b. A pathway network in the Park District should be designed to
universally accessible alternative) in the adjacent building. complement and create ease of access to the uses in the park, as
well as through the park.
b. Other opportunities to improve access between the different
grades of Booth Street and the Flats and Albert districts should 3.2.6 Mobility Network Design Guidelines
be explored, such as providing public connections through
buildings. A compact, efficient urban form will promote a highly walkable district
where active mobility and accessibility are prioritized throughout
3.2.5.3 Underpasses LeBreton Flats. Ensuring easy access to the amenities of the Park
District, Aqueduct District, transit, and retail uses along Albert
a. Existing pathway connections to the Ottawa River Shoreline Park Street will contribute to the creation of a complete community, while
will be maintained under the Sir John A. Macdonald Parkway: multiple opportunities to access public transportation via the O-Train
+ Trillium pathway near the Prince of Wales Bridge and bus service (including ParaTranspo) will provide connectivity
throughout the National Capital Region and beyond. Particularly
+ Pathway link west of Nepean Inlet, at the important to the Master Concept Plan are the Grand Staircase, Pimisi
former Transitway ramp alignment Underpass, Preston Street Connection and the City Centre Avenue
Connection. Through thoughtful design and attention to human-
b. Existing pathway connections under the O-Train line will be
scaled details, the connections throughout LeBreton Flats will also
maintained and linked with future pathways and active-mobility
become destinations and place-making opportunities.
facilities:
a. Priority must be given to pedestrian movement throughout the
+ Pathway link east of Bayview Station district, with safe and convenient access to and from pathways,
sidewalks and public transportation.
+ Pathway link west of Bayview Station

Street Network
Shared street (10 km/h)
Traffic-calmed local street (30 km/h)
Arterial road (50-60 km/h)
Flexibility for a major 5

event centre
6
Ottawa River 8
9
*Alternative
site option
1
4
1. Sir John A. Macdonald Parkway 6. Vimy Place

2. Albert Street 7. Lett Street
3
3. City Centre Avenue 8. Fleet Street
2
4. Preston Street 9. Slater Street
5. Booth Street
Figure 48 | The street network emphasizes small, traffic-calmed

local streets with a focus on slow vehicle speeds.

b. The mobility network will be designed to make LeBreton Flats a g. Streets and pathways should be designed to shelter people from
universally accessible community. Where stairways are required winds.
to navigate grade changes, they will be paired with ramps and/or
h. Pedestrian connectivity between LeBreton Flats and existing
elevators.
neighbourhoods should be incorporated into improvements to
c. Development must provide direct connections to the pathway the existing streets as they occur.
network detailed in the Master Concept Plan’s Mobility Strategy.
i. Connections and typologies of pathways will be consistent with
d. Consider opportunities to develop vistas and accentuate the NCC’s Capital Pathway Strategic Plan.
important destinations and features with view terminuses,
j. Pedestrian and cyclist pathways should be separated from each
including the Aqueduct District, Pimisi Station, joint library
other where appropriate to further enhance the safety of active
facility and library plaza.
transportation modes.
e. For bridges and connections, consider design elements that
contribute to placemaking, such as viewing platforms, outlooks,
seating, plantings and public art.
f. Internal vehicle movement will be configured as shared,

pedestrian-priority streets designed for speeds of 10 to 30 km/h.

Figure 49 | Pedestrian-friendly urban environments.

Parking Strategy

event centre
Alternative Ottawa River

site option
Figure 50 | The LeBreton Flats Master Concept Plan’s parking concept reduces the amount of surface parking
to encourage a vibrant public realm by locating the majority of parking underground.

3.3 Land Use Strategy
3.3.1 Intent 3.3.2 Mixed Use – Office/Institutional
The Land Use Strategy seeks to enable and support a dynamic mix of Office and institutional uses are the employment core of LeBreton
uses throughout LeBreton Flats, responding to principles of the Built Flats. The area’s proximity to downtown makes it well suited to
Form Strategy. It seeks to support a place that capitalize on growth, and these uses will help contribute to the
neighbourhood’s vitality and retail viability. Alongside traditional
+ offers diverse housing options;
office uses, development should consider emerging trends in workplace
+ provides a range of services for the residents of LeBreton Flats, flexibility, including uses such as co-working spaces, business
including shops, restaurants, services and employment; incubators, and research and innovation facilities.
+ supports cultural spaces; While employment uses will be embedded throughout the built fabric
of LeBreton Flats, office space will be focused more intensely around
+ mixes uses to create places that are vibrant the corner of Booth and Albert streets. This proximity takes particular
throughout the day and in all seasons; and advantage of transit access, including Pimisi Station O-Train and
north–south bus links across the Chaudières Bridge to Gatineau. The
+ is flexible enough to adapt to changing needs and opportunities.
remainder of the Booth Street edge is also well-suited to office uses, as
The Land Use Strategy deploys the following uses, which are outlined flexible common areas can be configured to help overcome the grade
in further detail in the following section: differential between Booth Street and the Flats District.
+ mixed use – office / institutional Institutional uses help ensure that LeBreton Flats is a complete
community that supports residents and visitors of all ages. Schools,
+ mixed use – retail medical clinics and long-term care facilities will be permitted
+ mixed use – residential throughout LeBreton Flats, provided that they integrate with the Built
Form Strategy.
+ flexible innovation zone – Aqueduct District
Larger-scale institutional uses such as educational campuses, research
+ mixed use opportunity site – LeBreton Place facilities or government service centres can create important points of
gravity and can help anchor other uses. It is more difficult—though
+ major event centre not impossible—to integrate these types of uses into the dense
podium blocks deployed throughout the Master Concept Plan. These
+ parks and open space
uses will be considered at the NCC’s discretion.

Land Use Strategy
Mixed use (office / institutional)
Mixed use (retail)
Mixed use (residential)
Flexible innovation zone

(Aqueduct District)
Mixed-use opportunity site –

LeBreton Place
Mixed use (event centre)
Parks and open space

event centre Ottawa River
*Alternative
site option
Figure 51 | Land Use Strategy (concept)

3.3.3 Mixed Use – Retail 3.3.4 Mixed Use – Residential
Retail provides goods and services to residents and visitors, and helps Restoring residential uses to LeBreton Flats is an important
activate the street and create a safer and more vibrant public realm. component of building the area’s past. A range of housing types and
tenures is proposed here, including ground-oriented townhome
The amount of retail mixed-use space provided for LeBreton Flats is
units and apartment-style units in a range of sizes (including two+
supported by a detailed commercial-retail market analysis conducted
bedrooms) to respond to diverse community demands. A flexible
as part of this plan’s preparation, and is in line with existing City
approach to housing, including capacity to accommodate a range of
of Ottawa policy regarding retail intensity in transit-oriented
types, ensures that the project can adapt to changing market demand.
developments.
Housing affordability targets and implementation tools to achieve
A retail zone is identified at the ground floors of buildings on the south housing affordability are defined in more detail in the Affordable
side of the Flats District, supporting the daily needs of nearby residents Housing Strategy.
and commuters. This zone should support at least one medium-sized
grocery store and a range of small- to medium-format commercial
spaces. These will address local needs such as restaurants, gyms, hair 3.3.5 Flexible Innovation Zone
salons, convenience stores, laundromats and other locally oriented – Aqueduct District
retail and service uses. Other pockets of local commercial uses could
The Aqueduct District is envisioned as a destination and focal point
be accommodated along Preston Street, particularly if a major event
that will attract creative industries, studios, boutique retail, innovation
centre is developed.
hubs, maker-spaces, restaurants and entertainment uses. This district
is designed to establish a fun and exciting heart in LeBreton Flats
that fosters social cohesion, bringing together both residents and
visitors. The uses in this district will take advantage of the location and
surrounding public realm. An implementation and operational model
that can attract and support these lively uses will be important to this
district’s success.

Retail at
Ground Level
Mixed use (retail)

(Aqueduct District)

LeBreton Place
Major event centre
Retail recommended
Ottawa River
Retail permitted

event centre
*Alternative
site option
Figure 52 | Building LeBreton, Land Use Strategy, retail at ground level (concept)

3.3.6 Mixed-Use Opportunity
Site – LeBreton Place
LeBreton Place is positioned in a key location at the nexus of the
Aqueduct District, Nepean Inlet, Destination Park and Preston
connection. It is envisioned as a landmark entertainment or music
venue, cultural institution or other signature public use. It will
contribute to the vitality, legibility and identity of LeBreton Flats, and
will help unlock additional uses in the nearby retail and innovation
zones.
3.3.7 Major Event Centre

A site along Albert Street, between City Centre Avenue and Preston
Street, has been designated for a potential major event centre. The
location can accommodate a facility of this size, and capitalizes on
proximity to two nearby O-Train stations, as well as access from both
the pathway network and Albert Street. The site offers productive links
to the Aqueduct District, providing event-goers with a range of dining
possibilities and amenities. If a major event centre or other large
attraction does not materialize in the future, this site can be developed
in the mixed-use format of the rest of the Albert District.
Given the complexity of such a use, the Master Concept Plan has been
configured such that it neither depends on—nor is disrupted by—the
presence of such a facility. The site is flexible, and a decision on its
development profile can be reserved until a later implementation
phase.

3.4 Built Form Strategy
b. Density: Taller buildings in key locations augment density,
3.4.1 Intent capturing value and adding viability around transit stations.
The Built Form Strategy sets out a flexible set of performance c. Microclimate: To enable pedestrian-friendly microclimates
guidelines. It protects the plan’s core performance, while around buildings, tower floorplates will be slim and incorporate
accommodating design innovation and changing market conditions wide tower separation distances to mitigate shadow and wind
over time. impacts.
The built form at LeBreton Flats is driven by the following key
d. Frontage: Active frontages along publicly accessible areas will
principles.
ensure an animated public realm. In locations where there is no
a. Continuous Fabric: Mid-rise podiums up to six storeys create commercial use at-grade, ground-oriented residential units will
a continuous fabric that defines the public realm and brings be deployed to animate building edges.
vitality to the streets.
40 40
storeys max. storeys max.
40
storeys
30
storeys max.
32
storeys
Wellington 24 Albert
storeys
Pimisi Station
6
storeys max.
5 6 6 6 6
storeys storeys storeys storeys storeys
N The Flats District Aqueduct District Albert District S
Figure 53 | Sectional elevation (north–south) illustrating the transition

Fig 41: Demonstration sectional elevation (north–south) illustrating the proposed in height from the Flats District to the Albert District.
transition of maximum heights from the Flats District to Albert District.
3.4.2 Built Form Design Guidelines h. Supporting Flexible Use
Alterations to building massing/use due to changing market
The following design guidelines capture intention for building form conditions will be permitted at the discretion of the NCC, and
throughout the site. will not require an amendment to the Master Concept Plan.
a. Active Street Edge
i. Podiums
Active commercial uses or townhome-style residential units are
High-rise buildings will have podiums, maximum six storeys
required at ground level where they face streets, pathways, parks
in height, except for where large-scale institutional uses are
or other publicly accessible areas.
proposed.
b. At-Grade Commercial
j. Large-Scale Podiums
Retail and commercial uses at-grade will be targeted in locations
Large-scale institutional uses may build podiums to a maximum
identified in the Land Use Strategy.
of nine storeys, but must provide facade articulation that
c. Commercial Scale generates visual interest.
Development of smaller-scale retail units is encouraged to create
k. Street-Related Residential Units
opportunities for a range of shops, services and cultural spaces.
Residential street walls will be defined by street-related units that
d. Key Intersections have their principal entrance facing the street. These units will
Higher-intensity and larger-format retail uses, such as a grocery be two-or three-storeys, in a townhouse or as part of the base
store, should be located on prominent street corners. condition in a mid- or high-rise block.
e. Setbacks for Public Space l. Podium and Tower Differentiation

Setbacks should be provided where additional space is required At or before the sixth storey, buildings must incorporate design
to support a healthy public realm by providing amenity and techniques to sufficiently differentiate the podium and the tower.
retail spill-out space. This should be achieved primarily through stepbacks of at least
two metres from the podium facade, as well as through material
f. Visual Permeability changes or balcony/fenestration alterations between the podium
Development in the Aqueduct District should feature high visual and the tower.
permeability at-grade and active frontages on both aqueducts to
facilitate the development of dual-sided blocks. m. Tower Separation
Tower separation distance will be determined at the development
g. Above-Grade Uses stage, and will adhere to applicable City of Ottawa design
Building uses above-grade will be a mix of office and residential guidelines.
space, according to the Master Concept Plan’s Land Use Strategy.

3.4.2.1 Building heights
Height transition toward Pimisi

Solar protection
w
rd B ayvie
n t ow a
t tra nsitio
Heigh
Canadian War Museum
Protected view
Figure 54 | Building heights transition upwards from Wellington Street toward the
O-Train stations, preserving important view corridors to Parliament
Hill and sunlight protection for the Canadian War Museum.

n. Courtyards t. Development Parcel Parking
Courtyards with private outdoor amenities will be provided Except for accessible parking, limited short-term drop-off zones,
within each block. Courtyards can be built at a raised level (one and loading areas located on private shared lanes, all parking
to two storeys above-grade) to emphasize that the amenity within a development parcel will be provided underground or
space is for the building’s occupants, while maintaining visual within the mass of the podium in a manner that does not create
permeability to the surrounding public realm. extended lengths of inactive frontages.
o. Maximum Residential Floorplate u. Roof Treatment

The maximum residential tower floorplate is 750 square metres. Green roofs, rooftop gardens, solar roofs, or reflective roofs
will be incorporated whenever possible and integrate native
p. Maximum Office/Institutional Floorplate
pollinator plant species where feasible.
The maximum office/institutional tower floorplate is 1,800
square metres.
q. Neighbourhood Interface
3.4.2.2 Massing parameters
All developments will adhere to the edge conditions described Green roofs
in Section 3.4.3 to ensure that each site responds to its unique
interface condition
r. Public Art
Maximum residential tower
Public art and interpretation should be integrated at the building Raised courtyards with floorplate: 750 m²
design stage, where possible. private outdoor amenities
Consolidated parking/ Tower setback: 2 m
s. Parking and Loading Access loading entrances
Parking and loading access must be provided through a single
consolidated entrance for each block, unless the development is a
townhome project, where two accesses will be permitted. 6 storey
maximum
Active frontage
at grade
Traffic-calmed
local streets
Townhouses at grade Active modes priority

linkages and/or shared lanes
2-m setbacks for

residential stoops and
retail spill-out space

3.4.2.3 Tower and podium configurations
Office tower and office/

retail podium
Residential tower and
office/retail podium
Residential tower
and residential/retail
Residential tower podium
and residential and
Staggered residential townhome / retail
tower and residential/ podium
Residential tower and retail podium
townhome / retail
Residential tower and podium
residential / retail podium
Figure 55 | The Urban Design Guidelines enable design flexibility, facilitating

various building design options within a typical block.

Building Heights
Concept
Maximum 6 storeys
Maximum 12 storeys
Maximum 20 storeys
Maximum 30 storeys
Maximum 40 storeys

event centre
Ottawa River
*Alternative
site option
Figure 56 | LeBreton Flats Master Concept Plan building heights demonstration: this is
a concept diagram; the configuration of buildings is subject to change.

Design Guidelines –
Edge Conditions
Wellington Street – Capital edge
Booth Street – Prominent urban edge
Albert Street – Prominent transition street wall
Albert Street – Major event centre transition street wall
Aqueduct District – Loft edge
Aqueduct District – Flats edge
Interior condition
Figure 57 | LeBreton Flats Master Concept Plan edge condition (concept)

Communicate Capital characteristics by differentiating the
3.4.3 Built Form Strategy – Edge Conditions c.
building’s base, middle and top.
The following section describes urban design intent and provides more
detailed architectural guidelines for specific block edges throughout d. Communicate the importance of the street by providing
the plan area. Figure 58 provides a key map that indicates the enhanced landscaping or architectural elements to screen any
distribution of these edges. private amenity spaces to provide privacy and minimize the
visual impact that private exterior amenity spaces have on the
3.4.3.1 Wellington Street – Capital edge street’s overall experience.
Facades facing Wellington Street shall provide street wall qualities

3.4.3.2 Booth Street – Prominent urban edge
that exhibit an architectural prominence respecting the neighbouring
national institutions along the street. To achieve this, fronting facades Facades facing Booth Street will provide a sense of large-scale urbanity
will do the following: to match the proposed developments to the east, to communicate
the strategic position of this corridor as a major transit node, and to
a. Communicate a vertical prominence by aligning fenestrations
overcome the extensive grade challenges present between Wellington
vertically, ensuring that vertical proportions are dominant in
and Albert Street in a human-centric manner. To achieve this, fronting
building massing, positioning materials and their connections
facades will do the following:
to communicate strong verticality, and/or breaking up long
horizontal masses into small vertically pronounced volumes. a. Achieve substantial and horizontally prominent urban masses
on the podium by accentuating the horizontality of the podiums’
b. Communicate architectural prominence by using noble volumes, and clearly defining tower from podium with material
materials such as stone and/or masonry. and massing differentiation.
Figure 58 | Examples of verticality, horizontality and a clear street

wall. Images captured in Google Street View.

b. Ensure microclimate impacts are considered in building design, b. Provide clear architectural differentiation between the podium’s
in particular wind tunnelling. streetwall and tower facades through distinctive approaches to
fenestration and balcony positioning, scaling, material, and/or
c. To allow for pedestrian permeability along the sloping street,
colour differentiation.
provide terracing in the public realm within the development
setback. This helps provide flat access points for retail points at
3.4.3.4 Albert Street – Major event
different elevations along the street.
centre transition street wall
3.4.3.3 Albert Street – Prominent All elements of the Albert Street prominent transition street wall also
transition street wall apply here, along with special consideration given to the potential
impacts of a major event centre. Understanding that major event
Developments along Albert Street will provide a clearly defined centres have unique internal requirements that can make sensitive
streetwall on their podiums to negotiate the transition in scale urban integration more difficult to achieve, the following strategies
between the existing communities to the south and the proposed should be employed to ensure a high-quality urban condition along
development to the north. Additionally, while towers along Albert Albert Street:
should be clearly stepped back, they should also be generally located
a. Ensure the concourse level provides safe, intuitive and
toward the south of their parcel to minimize shadow impacts on
universally accessible accesses to the street level in multiple and
the Aqueduct District’s open spaces to the north. To achieve this,
well-spaced locations, including over the O-Train tracks into the
development along Albert Street will do the following:
Aqueduct District’s open spaces and potentially into the Capital
a. Provide at a meaningful stepback (e.g. 3 m) between the Park through integration with the City Centre pedestrian and
podium’s clearly defined streetwall and towers above. cycling bridge.
Figure 59 | Examples of mixed-use podium/tower separation techniques.

Images captured in Google Street View.

b. Ensure that pedestrian access points to the major event centre g. Encourage street-to-concourse level public access stairways
are positioned to strategically distribute pre- and post-event flows within private developments.
to Pimisi and Bayview stations along Albert Street, and within
the plan’s open spaces to the north of the O-Train right-of-way. 3.4.3.5 Aqueduct District edge
c. Encourage the design of the major event centre to place large Proposed loft-format buildings in the Aqueduct District will provide
outdoor celebratory and pre- and post-event exterior gathering amenity-rich and highly porous active facades, and be designed to
spaces on the concourse level, allowing for secondary entrances celebrate the unique architectural characteristics desired within the
on Albert Street to be human-scale. district. To achieve this, loft developments will do the following:
d. To avoid potentially long segments of inactive facade, provide a. Provide retail bays of various sizes that front along as much of
sufficiently sized opportunities for separate or partnered high- the building perimeters as possible.
density mixed-use development sites at the east and west extents
b. Encourage buildings in the Aqueduct District to include arcades
of the major event centre block along Albert Street.
on south facades, creating opportunities for partially covered
e. Ensure that all retail uses associated with event centre mixed- south-facing patios.
use development consider the context and scale of the adjacent
c. Buildings in the Aqueduct District are to share a single below-
community to the south, where appropriate.
grade access point for parking and loading at the termination of
f. Encourage event-centre-related retail uses that have multi-storey the Vimy Place extension.
units to provide access on concourse and street levels.
Figure 60 | Examples of interior conditions. Images captured in Google Street View.

d. Ensure that lobby accesses to the upper floors are designed to
3.4.3.7 Interior conditions
play a background role in comparison with the retail spaces in
the design of the ground floors of the loft buildings. Buildings are to have differentiating architecture and exterior details
from the newly built buildings within the district. Developments will
3.4.3.6 Flats District – South edge also ensure that the programmatic and architectural interface with
adjacent local streets creates an enclosed, tight-knit and textured
Retail uses within the mixed-use developments in the southernmost urban experience. To achieve this, developments will do the following:
parcels of the Flats District will be strategically positioned to provide
an intuitive transition between the vibrancy of the Aqueduct District a. Provide a wider development setback along Vimy Place to allow
and the calmer residential nature of the Flats District. Special for larger food and beverage patio spaces and/or larger and more
consideration should also be given to provide public access between protected at-grade residential amenity or patio spaces.
the Booth Street elevation and the Aqueduct District elevation (which b. Ensure that at-grade uses provide active frontage, wherever
is approximately a five- to seven-metre grade difference). possible.
a. Similar to the Aqueduct District’s loft buildings, encourage
c. Ensure that development setbacks are used to create private
south-facing facades along the southern edge of the Flats District
amenity spaces to support the adjacent use, and the user
to include inset retail facades that allow for covered space for
experience of the adjacent public realm.
patios and retail spill-out.
d. Ensure that servicing and vehicle accesses are consolidated to
b. Encourage the positioning of retail units that are intended to
one entrance and positioned to occupy as little street frontage as
serve larger catchments (medium or large food and beverage
possible.
uses, or distinct retail offerings) along the southern edge and at
the corners of their parcels.
c. Encourage the positioning of retail units that are intended to

serve a local catchment (small food and beverage or locally
focused retail uses) along the private shared lanes, which are
oriented north–south.
d. Encourage multi-storey retail development on the southeastern-

most Flats District parcel that can provide safe, intuitive and
universally accessible internal public passageway between the
Booth Street and Aqueduct District street elevations.

3.5 Sustainability Strategy
+ Health and Well-Being
3.5.1 Intent
+ Ecological Integrity
The National Capital Region has experienced first-hand the impacts
of climate change, and the Master Concept Plan reflects growing + Zero Carbon
calls for climate leadership through innovative community design.
+ Sustainable Water Management
Responding to the need for climate action, the Master Concept Plan
puts LeBreton Flats on a path to becoming one of Canada’s most + Materials and Waste
sustainable communities.
+ Sustainable Choices
The commitment to zero-carbon buildings alone will put LeBreton
in rare company for a project of this scale. However, the following
3.5.2 Evolving Sustainability
Sustainability Strategy goes beyond energy and carbon to envision a
new form of sustainable community. LeBreton Flats will develop over the next 30 years. During this time,
expectations of buildings and communities will change: today’s
The objectives and commitments in this Sustainability Strategy are
development innovation may become tomorrow’s standard practice.
future-focused, meaningful, practical and outcomes-based. They
The Ontario Building Code is anticipated to increase its demands for
are informed by the Master Concept Plan’s guiding principles and
performance as the province moves toward a stepped code, which will
specifically aim to do the following:
eventually require zero-carbon buildings.
+ Embed a culture of excellence throughout the life cycle of the
A flexible approach is needed to ensure that LeBreton Flats can
project.
respond and adapt to this evolution. This agility ensures that future
+ Provide opportunities for innovation in design and sustainability. development is held to the highest standards of its time, rather than
using the plan’s benchmarks throughout the life of the project. To this
+ Build in climate mitigation and resiliency measures. end, the NCC will review the Sustainability Strategy at key milestones
throughout the project to ensure that contemporary best practices in
+ Achieve a zero-carbon community.
sustainability are being employed.
As socio-economic and cultural considerations are addressed in
other strategies of the Master Concept Plan, the commitments in this
strategy are broadly focused on environmental sustainability. The
following section is organized into seven sections that describe various
dimensions of sustainability in the project:
+ Evolving Sustainability

3.5.3 Health and Well-Being 3.5.4 Ecological Integrity
LeBreton Flats will provide services and public spaces that enhance LeBreton Flats will reduce the negative impacts of human activity
human health and well-being. and development on ecological systems through design that restores,
enhances, and protects natural habitat and biodiversity.
a. Public drinking fountains
Provide water fountains in public spaces to support active a. Restoration
lifestyles, reduce the health impacts of heat waves, and reduce Use native, non-invasive species in landscaping.
dependency on single-use beverage containers.
b. Tree canopy
b. Low-emitting materials Enhance the existing tree canopy throughout the site to provide
Source low-emitting materials that do not pose risks to air habitat, shaded respite areas, and microclimates to enhance
quality, productivity, or human and environmental health. biodiversity.
c. Physical activity spaces c. Urban heat island

Provide universally accessible and usable outdoor and indoor Choose roof treatments that reduce the effects of urban heat
physical activity spaces to facilitate physical activity. islands on microclimates and ecosystems.

d. Light pollution h. Responsible construction practices
Design the site’s lighting program to reduce the negative impacts Use environmentally responsible practices to reduce
of up-lighting and light trespass on wildlife. construction and demolition pollution, including soil erosion,
waterway sedimentation, contaminated soil handling and
e. Bird-friendly materials
airborne dust.
Design facade materiality and lighting to prevent bird injury and
mortality from collisions with buildings. 3.5.5 Zero Carbon
f. Pollinator and migratory species LeBreton Flats will be a zero-carbon community that embeds a culture
Create supportive conditions for pollinator and migratory of excellence and sustainability throughout the life cycle of the project.
species.
a. Operational carbon
g. Integrated pest management Eliminate carbon emissions resulting from operating energy
Use integrated pest management best practices to control use, including on-site combustion of fuels and indirect emissions
unwanted flora and fauna, using non-chemical preventative from electricity use supplied from the grid.
measures where possible.

b. Embodied carbon
3.5.7 Materials and Waste
Reduce carbon emissions from the manufacturing, transport,
installation, use and end-of-life of building materials. LeBreton Flats will emphasize reuse, recycling and upcycling to divert
waste from landfills and use materials, products and services that
c. Transportation carbon reduce negative social and environmental impacts.
Reduce carbon emissions resulting from occupant transportation
a. Closed-loop waste management
to and from the LeBreton Flats plan area.
Move away from linear approaches to waste management to
d. Consumption-based carbon systems that focus on product longevity, renewability, reuse and
Reduce carbon emissions from the production and use of goods repair.
and services consumed in the region, regardless of where those
b. Sharing “shed”
emissions occur globally.
Provide spaces where residents can share household goods, tools,
appliances, and so on.
3.5.6 Sustainable Water Management
c. Hazardous and e-waste
LeBreton Flats will minimize the use of potable water, and use a
Establish drop-off areas, available to all project occupants, for
naturalized approach to water management in order to protect water
potentially hazardous office or household waste, and establish a
resources.
plan for post-collection disposal or use.
a. Potable water reduction
Minimize the use of potable water for landscaping, and promote d. Tri-sorting waste streams
rainwater capture and reuse. Install waste sorting infrastructure in all building types to
ensure separate waste streams for organics, recyclables, and non-
b. Building water use recyclable, non-compostable waste.
Use efficient appliances, fixtures and fittings to minimize
the indoor consumption of potable water, and track water e. Building materials
consumption in buildings to help identify opportunities for Choose raw materials that have positive environmental, social,
water savings. and/or economic life cycle impacts.
c. Stormwater management
Prioritize the use naturalized hydrological approaches to treat
stormwater before its pollutant load enters the watershed, and
use low-impact development practices to retain stormwater
runoff on-site.

3.5.8 Sustainable Choices
LeBreton Flats will empower residents and workers to make
sustainable decisions in how they work, live and play within the
community
a. Ecological footprint
Reduce the ecological footprint of new residents by facilitating
sustainable choices.
b. Reduced parking
Minimize the environmental harms associated with parking
facilities, including automobile dependence and rainwater
runoff, and design underground and above-ground parking
structures to easily adapt to future needs and uses.
c. Connections to nature
Provide access to park lands, as well as opportunities for
education about and active engagement in sustainability across
the site.
d. Connections to water
Nurture a connection to water by providing greater accessibility
to waterways and through engagement and education.
e. Sustainable lifestyles
Partner with academic institutions or other third parties to
create a long-term monitoring framework to determine if the
impact of lifestyles on the planet is being reduced over time.

3.6 Culture and Heritage Strategy
b. Encourage the development of cultural facilities and services to
3.6.1 Intent help create active, lively and flexible spaces that contribute to
The Culture and Heritage Strategy aims to ensure that culture and community health and well-being and serve diverse groups of
heritage opportunities are integrated into the implementation of people.
the Master Concept Plan in ways that honour the area’s heritage, are c. Recognize the links that exist between culture, heritage and the
representative of the Capital’s diversity and showcase its creativity. environment, and showcase these relationships through design
Culture and heritage are legacies inherited from past generations, and other measures.
maintained in the present, and bestowed for the benefit of future
d. Showcase the Capital’s creativity, support heritage experiences
generations. Culture and heritage are not static. They include creative
and strengthen social connections by providing vibrant and
works, Indigenous heritage and multicultural heritage in all its
welcoming cultural experiences and spaces.
forms, including stories, physical objects, places, creative works and
connections to nature that we use, learn from and are inspired by. e. Recognize and honour the rich Algonquin presence in the region
Culture and heritage invite us to reflect on where we came from, and and the role LeBreton Flats has played in the development
imagine how we would like things to be in the future. of the Capital and the region, including its past vocation as a
Culture and heritage give LeBreton Flats its soul, and are central to its neighbourhood for new arrivals and its evolution.
identity, authenticity and appeal as a destination for visitors and as a
f. Work strategically with reliable data and input from partners
place to live and work. The Master Concept Plan provides for culture
and the public to support timely progress and generate desired
and heritage initiatives that are appreciated and inclusive, attracting
returns from all types of investments in culture and heritage.
participation by both residents and visitors. Through ongoing
engagement, the cultural heritage and identity of the Algonquin 3.6.2.1 An ambitious Capital destination
Natoin will continue to be visible and honoured.
a. Use partnerships, including with the Algonquin Nation, federal
3.6.2 Objectives agencies, the City of Ottawa, key property owners and major
institutional occupants to retain LeBreton Flats as a Capital
The objectives for the Culture and Heritage Strategy are derived destination, and multiply the impacts of investments.
directly from the Master Concept Plan’s guiding principles, and
specifically aim to do the following: b. Require each new development proposal to include provisions
for public art, interpretation and/or the display of archaeological
a. Create an ambitious new Capital destination.
artifacts.

c. Integrate archaeological discoveries and their cultural narratives b. Encourage organizations to include the geography and geology
into projects through innovative design, public art installations, of LeBreton Flats in experiential learning opportunities.
or other public realm and private developments.
c. Reduce the amount of waste sent from landfill, while also
d. Take inspiration from the site’s cultural heritage, geography and honouring the heritage of LeBreton Flats, by encouraging the use
geology in the design of buildings, views and landscapes. of local and sustainable materials, as well as recycled and reused
materials for all types of projects.
3.6.2.2 Cultural facilities d. As a direct connection with LeBreton Flats’ link to the logging
a. Maximize opportunities for communities to engage with and industry and the area’s history as a place of reinvention and
participate in creative works through performances, exhibitions, renewal, encourage the use of recycled building materials and
festivals and other activities. natural materials for new buildings, infrastructure and built
features within the landscape.
b. Develop spaces of different scales with appropriate levels of
infrastructure to nurture a range of cultural activities.
3.6.2.4 Creative, vibrant spaces
c. Engage diverse communities in planning all public spaces, a. Use public art and creative designs for buildings and landscapes
including areas in and around private developments, to bring to help communicate a message of inclusiveness and welcome for
the benefits of LeBreton Flats to people of all backgrounds and individuals, family groups and community activities.
abilities.
b. As appropriate, link interpretive development at LeBreton Flats,
d. Animate public places, and strengthen the unique identity including signage, references to heritage in outdoor furnishings
of LeBreton Flats by weaving public art and other cultural and landscape treatments, to the Zibi Heritage Interpretive Plan,
initiatives through the landscape. which concerns the area immediately to the north of the Flats
and shares much of its history.
e. Facilitate the creation of cultural venues as platforms for
supporting artist development. c. Create indoor and outdoor infrastructure that supports the use
of sites within LeBreton Flats by arts, youth and cultural groups.
f. Engage youth, especially Algonquin Anishinabe youth, in the
design of public spaces. d. Ensure that all arts and culture events and spaces serve children
and youth.
3.6.2.3 Linking culture, heritage and environment
3.6.2.5 Historical role
a. Use thematic gardens, water features, special plantings and other
design alternatives to reinforce links between culture, heritage a. Support the conservation of surviving elements of the Ottawa
and the environment. Water Works complex, including the pumping station, open

aqueduct, covered aqueduct, bridges and tailrace by ensuring
that appropriate conservation treatments are included in the
planning and implementation of all interventions that might
affect their heritage values and the attributes of the complex.
b. Support the conservation and enhancement of the covered

aqueduct built along the alignment of Ontario Street to ensure
that its heritage value as an example of municipal engineering
is protected. Uncover a portion of the aqueduct to highlight its
presence on the Flats.
c. Support the conservation of all built heritage resources that

predate the clearing of the Flats on the south side of Albert
Street, including the Lorne Avenue Heritage Conservation
District and individual properties recognized as heritage by
the City of Ottawa, by ensuring that appropriate conservation
treatments are included in the planning and implementation
of all interventions that might affect their heritage values and
attributes.
d. Use place names, wayfinding and interpretation infrastructure

to develop an appreciation of the history and heritage of
LeBreton Flats.
e. In collaboration with Algonquin Nation, bring

Anishinaabemowin (the Algonquin language) into prominence
in LeBreton Flats through place naming and other means.
f. Design spaces within the public realm and private developments

to showcase archaeological artifacts in accordance with the
Memorandum of Understanding for the Co-management of
Archaeological Resources, established in 2017 by the Kitigan Zibi
Anishinabeg First Nation, the Algonquins of the Pikwakanagan
First Nation and the NCC.

Set aside a space for rotating public art installations to present
g.
3.6.3 A Responsive Approach
and showcase objects and artworks from the City of Ottawa
collections connected to LeBreton Flats, such as the paintings The LeBreton Flats plan area will be developed over 30 years. To
of Ralph Burton that document life on the Flats prior to ensure that the project demonstrates continued leadership in the
demolitions in the 1960s. preservation and celebration of culture and heritage over its life cycle,
the key objectives identified in this strategy will be communicated to
h. Develop protocols for choosing commemorations (temporary, potential developers via the procurement documents. Upon award of
virtual, permanent and so on) for LeBreton Flats to ensure that the project, the developers will sign a binding agreement to deliver,
choices are authentic to LeBreton Flats, serve to reinforce (rather among other things, the culture and heritage requirements. Given the
than dilute) messages, and remain vital over time. dynamic and ever-changing nature of how society interacts with and
understands its culture and heritage, this allows for a dynamic and
i. Complete recommended archaeological studies in advance of
responsive approach to incorporating these critical components into
further development.
LeBreton Flats.
j. Retain a portion of the scarred landscape of exposed bedrock as a
Throughout the subsequent design and construction activities, a
reminder of the history of the clearing of LeBreton Flats.
monitoring and reporting process will be implemented. Monitoring
and reporting will ensure that the NCC’s commitments to honouring
3.6.2.6 Strategic implementation the past are met. The nature of monitoring and reporting activities
a. Set up a council involving public, private, NGO, Algonquin and will be based on and updated with each new phase of development.
social-enterprise representatives to harness their energy, ideas, The process reports submitted by each developer will feed into the
capacity and know-how for identifying and shaping culture and NCC’s annual reporting on the Master Concept Plan’s guiding
heritage opportunities. principles. In this way, the progress made in relation to heritage and
culture will be reported on alongside and in context with the Master
b. Support the engagement of a full-time LeBreton Flats heritage
Concept Plan’s guiding principles.
and culture coordinator as early as possible to support the
implementation of the Culture and Heritage Strategy for
LeBreton Flats.

3.7 Housing and Affordability Strategy
c. Key Partnerships
3.7.1 Intent Partnerships with the City of Ottawa, the Canada Mortgage and
The provision of affordable and inclusive housing is a key part of Housing Corporation (CMHC), non-profit housing providers,
the project’s foundational goal of creating an integrated, mixed- and market developers will be explored to deliver a variety of
income community. LeBreton Flats will provide a range of housing affordable and purpose-built rental housing.
options that respond to existing demand and provide new choices d. Aligned With Federal Funding
for Ottawans. This will include opportunities for housing across the Affordable housing proposals will be aligned with federal
spectrum of affordability, from social housing to market ownership. funding requirements for projects that seek partnerships with
LeBreton Flats is uniquely positioned to provide new affordable CMHC.
housing units within a well-connected and centrally located
e. Provision Through Procurement
neighbourhood. The Master Concept Plan proposes significant
Additional housing sub-targets will be secured through the
new amenities that will support the daily necessities of residents, in
procurement process, with a focus on priority vulnerable groups.
addition to the existing and planned resources in the area, which
provide the ideal scenario for an inclusive mixed-income community. f. Alternative Ownership Models
Some of these resources include the planned Ottawa Public Library Alternative land ownership models, such as community land
and Library and Archives Canada joint facility, the Bayview and trusts, will be explored to ensure long-term affordability and
Pimisi O-Train stations, a variety of parks and open spaces, nationally stewardship.
significant museums and monuments, and new pathways and trails.
Key recommendations of the Housing and Affordability Strategy 3.7.2 Housing Affordability Framework
include the following:
Although not a housing provider, the NCC is committed to providing
a. 25 Percent Affordability significant public benefit through development at LeBreton Flats,
Twenty-five percent of all residential housing will be affordable. including the provision of affordable and diverse housing options.
Affordable housing will meet the definition provided by the As the landowner, the NCC has important project controls and tools
corresponding partner organization and/or the funding to ensure that affordable housing is being delivered throughout the
program. lifetime of the project.
b. Integrated Over Time The NCC’s two key affordable housing delivery tools:
Affordable housing will be delivered throughout the lifetime of
1 Procurement control
the project, promoting the integration of mixed income units
throughout LeBreton Flats. 2 Partnerships

housing is being made available to residents who require affordable
3.7.2.1 Procurement Control
options the most, and that affordable units are being delivered
Through the procurement process for each development, the NCC throughout every phase of the plan.
will define affordable housing requirements, which may include
Another critical component in the delivery of affordable and diverse
conveyance of a parcel of land exclusively for affordable housing
housing product types will be the achievement of the NCC’s desired
or requirement of a specified number of affordable units within a
outcomes for all forms of development within LeBreton, including
strata agreement that mixes affordable and market units in the same
development at compatible densities, high-quality architectural and
development.
urban design, and sustainability.
Additional targets, partnerships and affordability levels may be
defined during the procurement process that further contribute
to the goals of the Master Concept Plan. Additional targets may 3.7.3 Policies and Programs
include greater than 25 percent overall affordable housing for specific
development projects or phases, providing housing for deeper levels Affordable housing projects will be funded primarily through
of affordability than the definitions provided by the partnership federal government grants and programs of the National Housing
organization or funding program, and additional units for priority Strategy (NHS) administered by CMHC. Recognizing that the NHS
vulnerable groups, among others. initiatives to support the development of affordable housing and their
specific terms and conditions evolve over time to enhance program
3.7.2.2 Partnerships effectiveness and to achieve priority social outcomes, the NCC will
monitor the evolution of these programs to ensure alignment with
Through partnerships, the NCC will be able to leverage local and
other federal government objectives, as they emerge. Three current
industry expertise in development and operations of affordable
CMHC programs that are likely to provide LeBreton Flats with
units, and ensure that affordable ownership and purpose-built rental
significant affordable housing development opportunities are as
development initiatives are eligible for affordable housing program
follows:
funding.
+ Federal Lands Initiative
The NCC will work closely with the City of Ottawa to identify suitable
Requires that at least 30 percent of units have rents at less than 80
locations for the conveyance of land and/or units within development
percent of median market rents, for a minimum of 25 years, along
projects in support of the City’s specific affordable housing targets and
with at least 20 percent of units meeting accessibility standards.
initiatives. It is expected that additional partnerships and funding
sources will be required to achieve the overall goal of 25 percent + NHS Co-Investment Fund
affordable housing in the plan area. In addition to the City of Ottawa, Requires that at least 30 percent of units have rents at less than
local non-profit housing providers, project developers, and CMHC 80 percent of median market rents, for a minimum of 20 years.
will all play integral roles in partnering with the NCC to ensure that
funding is available to support affordable housing development, that + Rental Construction Financing Initiative
Requires that at least 20 percent of units have rents below

30 percent of the median total income of all families projects will be tailored to meet available funding program
for the area, and the total residential rental income priorities and requirements.
must be at least 10 percent below its gross achievable
As part of the procurement processes, the NCC will aim to leverage
residential income for a minimum of 10 years.
competition to generate even more affordability outcomes,
The City of Ottawa Official Plan supports the provision of 25 percent encouraging development partners to exceed the various program
affordable housing within LeBreton Flats. The NCC will continue to minimum requirements.
work with the City of Ottawa and CMHC to facilitate the development
of housing along the entire spectrum of affordability as municipal and 3.7.5 Housing Integration
federal housing needs and policies shift over time.
A central principle of this plan is to achieve an integrated mixed-
3.7.4 Targets and Delivery income community—one where residents at various levels of income
are not separated and isolated. LeBreton Flats will be a community
The NCC is committed to achieving the target of 25 percent affordable that is economically, socially and culturally mixed.
housing across the total development area of LeBreton Flats, in
To this end, the NCC has divided the provision of affordable housing
collaboration with the City of Ottawa. In order to facilitate this target,
into a balanced model to ensure that affordable housing is being
the Master Concept Plan envisions that affordable housing will be
delivered throughout the lifetime of the project, through a variety
delivered under three categories.
of development types, and by various housing providers. This model
a. City-Owned/-Managed Lands provides a resilient affordable housing strategy that relies on multiple
Conveyance of lands to, or entering into strata agreements partnerships, housing types and delivery models.
with, the City of Ottawa, a land trust or a development partner
The NCC will further be able to achieve an integrated mixed-income
to provide development opportunities that can be used for
community through direct control of procurement. Through this
affordable housing that meets the City’s Official Plan objectives
process, the NCC will identify where and when affordable housing will
and definition of affordability.
be developed, and determine the minimum percentage of affordable
b. Market-based Affordability housing within each development. Mixed tenure developments will be
Development of purpose-built rental housing and a diversity of encouraged, and, where necessary, required, to ensure that affordable
product types that align with NHS funding programs through and market units are integrated.
development procurement processes.
c. Third-Party Housing Providers

Partnerships with not-for-profit housing providers through the
procurement process, either directly between the NCC and
the provider, or through another development partner. These

3.8 Algonquin Nation Partnership Strategy
[under development]

4 Achieving the Vision
4.1 Implementation Overview
The Master Concept Plan must be implemented in accordance with
4.1.1 Goal the federal approval process managed by the NCC under sections
12 and 12.1 of the National Capital Act. Approval for federal land
The Building LeBreton project will enable the timely development of
use, design and real estate transaction must be obtained for any new
a revitalized mixed-use community at LeBreton Flats that is a place of
land use, new work or real property transactions involving federal
national significance and local pride. This will be achieved through a
lands. The achievement of objectives in the Master Concept Plan
cohesive vision based on a triple bottom line approach that balances
will be ensured through the federal land use, design and real estate
social, environmental and financial outcomes.
transaction process; terms set out in land sales agreements; City of
Ottawa policies; and design review.
4.1.2 Responsibility
The NCC will pursue an agreement with the Algonquin Nation
The redevelopment of LeBreton Flats will require major investments in
which will set out the Nation’s role as a key partner in the design and
infrastructure, including new and relocated piped infrastructure, new
development of the project, including through visibly reflecting the
and redesigned roads and intersections, new pedestrian bridges, and
Algonquin Nation’s historic occupation and use of the project site,
new cycling facilities. While much of the local infrastructure, such as
setting aside jobs, training and contracts for the Nation, ensuring that
new streets, is expected to be constructed by developers, the existing
the Nation will financially benefit from the project and reserving land
conditions of LeBreton Flats, including the O-Train line that traverses
to be developed by the Nation itself.
it, necessitates additional investments in major infrastructure to
enable mobility across the rail line.
4.1.3 Phasing
The NCC will pursue an agreement with the City of Ottawa to
outline roles and responsibilities and collaboration opportunities The Master Concept Plan provides a great deal of flexibility with
over this multi-year and multi-phase project, as well as set out high- regard to implementation. The plan is organized in phases of
level information regarding future agreements with the City, and development sites that will be released to the market in sequence to
describe phasing approaches and the order of the delivery of specific ensure productive market uptake while avoiding self-competition.
infrastructure, amenities and obligations. It should also outline The initial phasing sequence provided in this strategy is informed by
any financing mechanisms requiring City participation, such as current market conditions, and emphasizes early development sites
development charge funding, and describe how the City’s policies that will set the stage for future developments and build incremental
and standards will be met (for example, the dedication of municipal value on the site. This flexible strategy also allows for future proposals
parkland over multiple phases). Recognizing that implementation to be evaluated and assessed. Individual development sites should be
will occur over an extended period of time, appropriate mechanisms released in a sequential manner that allows for market capture in a
should be built in to review the master agreement if circumstances variety of non-competing markets simultaneously. This approach will
should change. expedite development and build momentum.

Parcel identification
map
Early phase
Middle phase
Late phase / Opportunity sites
Air rights
Anticipated roads or lanes most likely to be private
Potential parcelling (without major event centre)
Intra-Parcel upgrades (any colour)

(Public realm improvements within areas anticipated to become
future public property to be delivered by adjacent parcel developers)
Intra-Parcel upgrades (without major event centre)

(Any colour)
F6
F7
F5
F4
F12
F3
A12
F2
F11
F1 F10 A11
AD5
F9
F8 AD4 A10
AD3
A9
AD2
AD1 A8
A7
A6
A5
A2-4
A1
Figure 61 | Parcel Identification Map

The implementation will be broken into three broad phases: Late Phase (Strategic Opportunity Sites)
+ early phase Certain sites within the plan area can present a strategic opportunity
for key destination uses or community anchors. The timing of the
+ middle phase development of these sites can be flexible to respond to opportunities
+ late phase or needs that arise. If these sites are not developed within the first two
decades of the project, they could be developed in the third decade as
Phases will comprise land development and investments that are part of the late phase.
unlocked through infrastructure developments.
Early Phase (First Decade)

In the first decade of the project, the focus will be on designing
4.1.4 Continuous Improvement
and building key public realm assets to anchor the community. In A variety of implementation and procurement approaches will be
particular, the NCC and City will work collaboratively to design and leveraged to achieve the objectives set out in this plan. A combination
deliver the municipal park. Early phase land development will be of best practices and innovative methods may be used to advance the
focused on areas that build out from and connect with the existing project and respond to opportunities and changing contexts. Taking
neighbourhood fabric and existing and future public realm and parks. stock of successful approaches and lessons learned will allow for a
Relocating the Cave Creek collector sewer will be necessary to free up dynamic and responsive approach to future decision making.
development blocks in the Albert District, including A2, A3 and A4.
Creating key linkages such as the Preston Street pedestrian and cycling
bridge will further ensure access to green space and the waterfront for
existing and future residents to the south.
Middle Phase (Second Decade)

In the second decade of the project, the phased development of the
Parks District will be completed. Development and public realm
construction can continue toward the heart of the plan area: the
Aqueduct District.

Critical infrastructure
investments
Early phase
Middle phase
Key public realm investments (any colour)

(Public realm improvements to be initiated by the NCC, the City, or through a
partnership of public agencies)
A LeBreton Flats pathway

B Cave Creek sewer realignment
C Urban Playground
D Municipal Park
E Preston Street extension
F Preston Street pedestrian and cycling bridge
G Aqueduct enhancements and public realm
H City Centre pedestrian and cycling bridge
I Capital Park
C
D
F
A
E
B
H
I
Figure 62 | Critical infrastructure investments

4.2 Measuring Progress
Inspired by past plans for LeBreton Flats and informed by input
from the public, the following seven guiding principles lead every 4.2.1 Targets
decision made in the Building LeBreton project. These guiding Each guiding principle is listed with a series of targets that will be
principles anchor the Master Concept Plan, and directly contribute used to measure progress as the Master Concept Plan is implemented.
to reimagining what LeBreton Flats can be to the National Capital These targets should not be read as tasks, but rather as signals that
Region. Some of the biggest moves for LeBreton Flats are highlighted will provide feedback that informs the ongoing strategy. Ongoing
under the guiding principle they relate to. Beyond these key initiatives, targets are measured at a regular interval, and are measured multiple
the Master Concept Plan incorporates and celebrates these guiding times. Milestone targets are generally measured once, and represent
principles through every policy. a leap toward the project goals. The targets are part of the NCC’s
Each guiding principle contains an overview statement, followed by commitment to ongoing communication and reporting of the Master
several points that demonstrate how elements of the Master Concept Concept Plan as it is realized and implemented.
Plan work to achieve the principle.
Guiding Principles
Enhance the Capital Experience Foster Sustainability and Innovation
Build Community Honour the Past
Create Connections Make It Happen
Value Nature

4.3 Enhance the Capital Experience
Reflect the national significance of LeBreton + Celebrating heritage: The Master Concept
Flats by creating an ambitious new Capital Plan features the Ottawa waterworks complex
destination that celebrates Canada. as a centrepiece of LeBreton Flats, celebrating
The Master Concept Plan incorporates several the community’s industrial heritage through
considerations that enhance the Capital experience, its heritage bridges and aqueducts.
including the following.
+ LeBreton Place: Providing over 1,200 square
+ Developing a premier Capital park: metres of indoor community, cultural and/
Covering over six hectares of land, and or performance space, LeBreton Place is
intentionally designed to place LeBreton a signature attraction and community
as a destination in the heart of Canada’s node that will draw visitors from near and
Capital, the Capital park leverages the far, as it hosts festivals, performances,
site’s connectivity and advantageous tournaments or other events.
location at the intersection of the Ottawa
River, Gatineau and downtown Ottawa. + Ephemeral heritage and cultural
celebrations: LeBreton Flats incorporates
+ Creating a continuous public realm: Public means to celebrates the sometimes
space accessible to everyone connects the ephemeral and difficult to conceptualize
developed urban areas to over 12.7 hectares stories, physical objects, places, creative
of parkland and 4.5 kilometres of pathways. works and connections to nature that we
use, learn from and are inspired by.
+ Protecting views: Views to Parliament
Hill and sunlight protection to the
Canadian War Museum are preserved.

Enhance the Capital Experience
Target Type Phase Achieved

Attract at least one large event or festival each year (or an Ongoing First
equivalent series of smaller events).
Attract at least one significant anchor with a city-wide, Milestone Middle

province-wide or national presence in arts, culture,
performance or recreation.
Public art is integrated into every public space and private Ongoing All
development.
Yearly growth in the number of visitors to LeBreton. Ongoing All

4.4 Build Community
Create an inclusive place where anyone can + Enhancing social infrastructure: LeBreton
live, work and play. Provide for facilities, Place, the library and the network of
services and public spaces that are active, lively parks provide social infrastructure and
and flexible, and that contribute to community community spaces to foster interaction and
health and well-being. connections, creating natural collision points
The Master Concept Plan builds community in where community can build organically.
LeBreton Flats by doing the following.
+ Establishing a mix of uses: A combination
+ Integrating a variety of housing options: of residential, employment and retail
Twenty-five percent of all residential units opportunities throughout LeBreton
developed will be affordable, with a host of Flats creates a vibrant and diverse
housing types and options, including family- neighbourhood that provides for the
sized units, deeper affordability levels and day-to-day needs of residents.
priority housing for vulnerable groups that will
enhance community diversity and inclusivity.

Build Community

Establish a dedicated location for a farmers’ or vendors’ market. Milestone First
Establish at least one community garden. Milestone First
Attract at least one school or early learning centre. Milestone Middle
Attract at least one child-care centre. Milestone Middle
Attract at least one full-service grocery store within a 10-minute walk of LeBreton Milestone Middle
Flats.
More than twenty-five percent of units are affordable units at full build-out. Ongoing All
More than five percent of new units in each phase are affordable units (or an
amount in line with the City of Ottawa’s forthcoming Inclusionary Zoning policy).
More than fifteen percent of new housing units have three or more bedrooms. Ongoing All

4.5 Create Connections
Connect people and place by creating + Supporting universal accessibility:
interactive public spaces and linking to LeBreton Flats is designed to be universally
amenities and surrounding communities. Build accessible, exceeding Accessibility for
on access to the O-Train, and establish active Ontarians with Disabilities Act (AODA)
transportation networks using a Vision Zero requirements to become a truly connected
approach.
and inclusive community for all abilities.
The Master Concept Plan creates strong connections
through the following: + Connecting to the river: LeBreton
Flats creates a network of connections
+ Supporting a five-minute community: from the southern neighbourhoods
100 percent of LeBreton Flats residents to the river through a multitude of
will live within a five-minute walk of pathways, trails and O-Train stations.
higher-order transit and commercial retail
amenities serving day-to-day needs. + Knitting together communities: Through
the development of pedestrian and cycling
+ Creating a safe, pedestrian-friendly bridges across the O-Train line at City Centre
experience: Pathways and local streets are and Preston Street, residents from nearby
designed for speeds of 10–30 km/h, slower and neighbourhoods, as well as visitors, can
safer vehicle speeds that prioritize active modes actively connect to and from LeBreton Flats.
of transportation throughout LeBreton Flats.

Create Connections

Provide pedestrian/bicycle bridge across the O-Train Line at Milestone First
Preston Street.
Provide pedestrian/bicycle bridge across the O-Train Line at Milestone Middle

City Centre Street.
Achieve a walk score of more than 90 for at least one point in Ongoing Middle
every district, according to walkscore.com.
Achieve a modal share for trips originating from LeBreton: Ongoing All
Transit: more than 60 percent
Walk and Cycle: more than 20 percent
Automobile: less than 20 percent

4.6 Value Nature
Prioritize the importance of the environment footprint to 25 percent of the land at
through design that restores, enhances and LeBreton Flats, while maximizing land
protects the natural features of the site, and dedicated to recreation and nature.
provides greater accessibility to waterways.
Utilize green infrastructure, promote + Supporting natural features: Nepean
biodiversity and create new green spaces. Inlet and other ecological features are
The Master Concept Plan values nature in LeBreton preserved and enhanced to support
Flats by doing the following. natural ecosystems in an urban setting.
+ Providing significant open space: Over 40 + Maximizing the tree canopy: Canopy
percent of the plan area is dedicated to parks. coverage is maximized in the Master Concept
Plan, and prioritizes the use of native plants
+ Minimizing the urban footprint: Compact throughout LeBreton Flats to celebrate the
urban form minimizes the area of built natural foliage and biodiversity of the region.

Value Nature

More than 40 percent of total project area is built as parks and Milestone Late
open space.
Invasive plant species are removed from the site. Milestone Late
All buildings have roofs that are either green, solar or Ongoing All
reflective.

4.7 Foster Sustainability and Innovation
Embed a culture of excellence throughout will allow residents to choose more
the life cycle of the project, and provide sustainable options for everyday travel.
opportunities for innovation in design and
sustainability. Build in climate mitigation and + Sustainably managing water: Building
resiliency measures to aim to achieve a zero- and landscape design will minimize the
carbon community. use of potable water and use a naturalized
The Master Concept Plan fosters sustainability and approach to water management.
innovation throughout LeBreton Flats, including + Using resources efficiently: Designs will
the following. prioritize the use of local and environmentally
+ Targeting carbon neutral: Targets for friendly materials, maximize the lifespan
zero emissions will be set by establishing of buildings, and aim to enable reduction
stringent performance requirements for and diversion of waste from landfill.
buildings and utilizing district energy.
+ Supporting a healthy transit-oriented

community: A multi-modal network

Sustainability and Innovation

All buildings achieve certification to the CAGBC Zero Carbon Ongoing All
Building Standard and/or have energy demand met through
zero carbon sources.
More than 90 percent of non-contaminated construction Ongoing All

waste diverted from landfill.
All stormwater is captured on-site. Ongoing All

4.8 Honour the Past
Honour and interpret the role LeBreton Flats + Sharing stories of the site: Stories of
has played as a place of significance for the the industrial history, the role of water
Algonquin Nation and in the development and power generation, and lives of
of the Capital, and connect this story to the previous community members are shared
site’s future. Recognize the lasting effects of through the Heritage Strategy’s plan to
important milestones such as the community’s
incorporate artifacts, signage, wayfinding
expropriation.
and naming into new development.
The Master Concept Plan honours the past by
doing the following. + Uncovering the past: Enlivening the
historic Ottawa Waterworks Complex
+ Celebrating Anishinabe culture: Anishinabe
(including aqueducts and bridges) through
heritage and culture are celebrated on
the Aqueduct District directly incorporates
the site, including the prominent use of
a living history of the site into the fabric
Anishinaabemowin (the Algonquin language)
of the new design and everyday use.
in LeBreton Flats signage and place naming.
Ongoing consultation with the Algonquin
Nation will establish additional ways in which
this heritage and culture can be celebrated.

Honour the Past

All place names and interpretive infrastructure contribute to Ongoing All
the project’s culture and heritage objectives.
Heritage resources are identified and preserved in line with Ongoing All
the project's culture and heritage objectives.
Archaeological discoveries and their cultural narratives are Ongoing All

integrated into public spaces and private developments in
collaboration with the Algonquin Nation.

4.9 Make It Happen
Ground the vision in a strategic + Understanding the economics: The
implementation approach supported by Master Concept Plan is supported by a
market feasibility. Consult with the public and rigorous economic feasibility business
collaborate with partners to support timely plan, ensuring that implementation
progress and generate social, environmental is phased strategically and uses sound
and economic returns.
project management principles.
The Master Concept Plan ensures its successful
implementation through the following. + Effective use of procurement documents:
Key tenets of the Master Concept Plan will
+ Working with partners: Close collaboration be directly incorporated into procurement
between all levels of government, non- documents for future development
governmental organizations, community in LeBreton Flats, enshrining plan
groups, private sector partners and implementation into development contracts.
the Algonquin Nation make the
Master Concept Plan an actionable
reality with widespread buy-in.
+ Phasing the project: The plan is phased in a

step-by-step fashion, using new development
to fund creation of new amenities, including
the Aqueduct District and Capital park.

Make It Happen

More than 90 percent of public objectives in the early phase Ongoing First
are achieved by the beginning of the mid phase.
More than 90 percent of public objectives in the mid phase Ongoing Middle
are achieved by the beginning of the late phase.
Report yearly on implementation progress. Ongoing All
Maintain a meaningful ongoing relationship with the Ongoing All

Algonquin Nation throughout project development and
negotiate a timely partnership agreement to recognize and
enshrine the Nation’s role as a key partner in the project.

5 Appendices
Appendix
A Policy Context

Policy Context
The LeBreton Flats Master Concept Plan helps the NCC fulfill its role + Cooperate or engage in joint projects with, or make
as a long-term planner for conservation, land use and showcasing grants to, local municipalities or other authorities for the
sites of significance within its territory. This plan supports the NCC’s improvement, development or maintenance of property;
mission under the National Capital Act, as outlined in the next
+ Construct, maintain and operate, or grant concessions
section.
for the operation of, places of entertainment, amusement,
LeBreton Flats is located on federal lands and is therefore subject to recreation, refreshment, or other places of public interest
federal legislation. In addition to the National Capital Act, a variety or accommodation on any property of the Commission.
of federal laws, policies and strategies apply to it and guide how it is
managed.
5.9.2 The Plan for Canada’s
5.9.1 The National Capital Act Capital, 2017–2067
The National Capital Act established the National Capital Commission
In 2017, the NCC released the Plan for Canada’s Capital, 2017–2067,
and its mandate, which includes the responsibility “to prepare plans
a 50-year vision for the National Capital Region. Balancing the
for and assist in the development, conservation and improvement of
oftentimes competing interests of natural and cultural heritage
the National Capital Region in order that the nature and character of
with economic and population growth, the plan aspires to establish
the seat of the Government of Canada may be in accordance with its
a National Capital Region that reflects the following attributes:
national significance.”
inclusive and meaningful, picturesque and natural, and thriving
For the NCC to achieve its mission, Parliament granted the and connected. The LeBreton Flats Master Concept Plan directly
corporation several key powers, including the acquisition and disposal responds to the NCC’s Plan for Canada’s Capital, and addresses its
of lands. The Act also authorizes the NCC to undertake the following identified emerging trends and challenges in many ways, including the
tasks consistent with the planning for and the implementation of the following.
LeBreton Flats Master Concept Plan:
Creating a Resilient, Dynamic and Liveable Capital Region
+ Construct, maintain and operate parks, squares,
+ Contributes to the development of complete
highways, bridges, buildings and any other works;
and compact walkable neighbourhoods.
+ Maintain and improve any property of the
+ Ensures that residents have mobility choices,
Commission, or any other property under the control
including walking, cycling, transit or driving.
and management of a department, at the request of
the authority or minister in charge thereof; + Improves the quality and inclusiveness of the urban public realm.
+ Enhances the National Capital Region’s environmental

sustainability and economic vitality.

Facilitating the Integration of Long-Term Adapting to a Growing, Aging and More Diverse Population
Transportation and Land Use Planning + Prepares for the projected population increase
+ Promotes more compact development patterns. to beyond 2 million by 2067.
+ Focuses on accessible and sustainable mobility. + Plans accessibility of public spaces and natural
areas for all ages and abilities.
+ Incorporates the increasing prominence of active modes
of transportation within the inner core area. + Considers the needs of persons with disabilities.
+ Addresses air quality deterioration by reframing the + Addresses the demographic shift toward
prominence of automobile-focused transportation networks. households with fewer members.
+ Increases the efficiency and sustainability + Considers increasing immigration.

of infrastructure systems.
Beyond these trends and challenges, the Plan for Canada’s Capital also
Providing Federal Accommodations contains several “milestone” objectives to be achieved over the next 50
years. The development of LeBreton Flats is specifically identified as
+ Continues the shift toward federal accommodations
a milestone achievement, and the Master Concept Plan supports this
that are accessible by the rapid transit network,
and other plan policy objectives.
and to the development of mixed-use sites.
The Capital and Regional Economy
+ Contributes to regional planning objectives and urban vitality.
+ Developing LeBreton Flats as the nucleus of
+ Provides modern workplace accommodations that a revitalized district in the Capital.
allow the federal administration to adapt to new
methods of communication and collaboration. + Supporting Public Services and Procurement Canada in its
role to provide federal accommodation in locations that will
Respecting Nature, Climate and Sustainability contribute to Capital- and city-building, planned in a coherent
+ Focuses on greening infrastructure, increasing energy efficiency manner to support municipal growth management priorities.
and the proactive reversal of environmental deterioration. + Achieving regional objectives of consolidation and
+ Ensures resilience in the economic and social spheres in intensification within the existing urban boundaries.
order for people to have equal and fair access to employment, + Locating federal accommodation facilities near readily
choice of dwelling, improved mobility and quality of life. available transit, and building energy-efficient and
+ Focuses on preserving and protecting urban biodiversity. accessible buildings that will contribute to regional
sustainability and reduce environmental impacts.

Waterways and Shorelines Capital Urban Green Spaces
+ Maintaining riverfront green spaces as primary public + Retaining open space lands of national significance
green spaces, and incorporating new structures and that perform Capital functions.
partnerships to foster greater public access, activity
+ Developing ecological linkages from urban parks and
and amenities, while improving the quality of natural
open space networks to broader ecological networks.
habitats in areas that are not actively used.
+ Transforming parkway corridors into linear green spaces serving A Living Culture and Heritage
a dense urban core as places for people in riverfront parks. + Protecting heritage sites and bringing them to
life with new uses that respect their character, are
+ Working in partnerships to allow activities that
compatible with the heritage features to be preserved
are compatible with existing waterfront parks, and
and have well-integrated accessibility features.
maintaining sites available for national programming.
+ Promoting quality of design to ensure the creation of
+ Improving waterway lands to reimagine the flourishing
responsive, accessible, enduring and responsible places,
water culture that was lost over the past century.
buildings, structures and landscapes over time.
+ Providing greater capacity for pedestrians
+ Prioritizing the use of NCC lands for national cultural
and cyclists along the shorelines.
activities, and supporting artistic creation.
+ Encouraging more activity at the riverfront at LeBreton Flats.
+ Working with federal partners to add to and enhance
art of the highest quality in the public realm of the
Indigenous Representation in the Capital
Capital, both as stand-alone installations and as art
+ Contributing to the recognition of Indigenous
that is integrated into other development projects.
peoples in the toponymy of the region, as well
as through national commemorations. + Supporting the diversity of arts in the Capital by allowing the use
of NCC lands, where appropriate, by non-profit organizations
+ Strengthening Anishinabe cultural traditions through
and educational institutions for temporary events.
placemaking and partnerships that bring Algonquins to the
forefront of life in Canada’s thriving and connected capital. Connections and Mobility
+ Showcasing Indigenous arts in the landscape + Investing in the prudent stewardship of the parkway network
and architecture of the Capital. to protect and enhance its intrinsic qualities as robust
and interconnected federal “green infrastructure.”

+ Balancing the modal split of transport in the Capital to
make walking, cycling and car sharing more attractive
alternatives to the use of private automobiles.
Promoting Design Excellence

+ Taking a leadership role in the region to promote inspiring quality
projects that are context-sensitive, responsive to users, coherent
and flexible, aesthetically engaging, durable and appropriate for
the intended uses, universally accessible, and energy-efficient.
+ Encouraging integrated design approaches to foster the

best outcomes for each individual project, and ensuring
the participation of design and land use planning
specialists to achieve the highest quality results.
+ Addressing both the built form and public realm

surrounding it with an integrated character, addressing
views, built form relationships and street character.
+ Maintaining and preserving views of national symbols.
+ Supporting innovation and inclusiveness in architecture,

design and planning, while also enhancing heritage.
+ Incorporating renewable energy into the project.
5.9.3 Core Area Sector Plan

The Capital Core Area Sector Plan, adopted in 2005, governs the
planning and development of federal lands in the core area (which
includes LeBreton Flats) through to 2025. The Master Concept Plan
supports several of the Capital Core Area Sector Plan’s key priorities,
including the following:

+ Enhancement and expansion of the public experience Explore the potential for a connection to Sparks Street from
in the core area, for national and international visitors, Pooley’s Bridge at LeBreton South, via the NCC-owned
as well as for residents, through the addition of new park on the upper escarpment or alternative means.
Capital stages, increased commemorations and
+ Develop a network of park and open spaces at
public art, interpretation, and programming;
LeBreton South that link with adjacent areas.
+ Completion of the LeBreton Flats mixed-use
community redevelopment project; Enhancing Use, Enjoyment, Animation and Safety
+ Develop a compelling public space along the heritage aqueduct.
+ Promotion of new Canadian cultural and public
institutions, and consolidation of existing facilities
at LeBreton Flats north and west; and 5.9.4 Ottawa River South Shore
+ Preparation of area plans for LeBreton Flats. Riverfront Park Plan
The lands of the Master Concept Plan are given special consideration The Ottawa River South Shore Riverfront Park Plan aims to transform
in Section 4.8 of the Capital Core Area Sector Plan, where the lands the riverfront lands adjacent to the Sir John A. Macdonald Parkway
are identified as LeBreton Flats South. The goal for LeBreton Flats into a Capital park. The subject lands include those north and west
South is to “develop a vibrant mixed-use community that functions as of the parkway as it passes along the lands that are subject to the
an independent neighbourhood, but is well connected to the Ottawa LeBreton Flats Master Concept Plan. The Ottawa River South Shore
central business district, Sparks Street, and the islands and LeBreton Riverfront Park Plan establishes a series of public activity and event
Flats North areas.” The Core Area Sector Plan then provides specific areas, including the shoreline adjacent to LeBreton Flats. It enhances
policies for ensuring that future development realizes this goal. connectivity with LeBreton Flats and other adjacent neighbourhoods.
One of the sectors identified is Sector D: Parkdale to Nepean Bay.
Preserving and Enriching Character This sector identifies two activity nodes that will enhance the park
+ Ensure the development of a well-designed mixed-use visitor’s Ottawa River experience, including a node at Nepean Bay.
neighbourhood comprising mid- and high-rise residential The LeBreton Flats Master Concept Plan is consistent with the policy
development and commercial and office uses, together with directions in the Ottawa River South Shore Riverfront Park Plan,
services and amenities, to support the community, complemented including the Nepean Bay node.
by a generous system of well-connected public open spaces.
5.9.5 Capital Pathway Strategic Plan
Improving Connectivity The Capital Pathway Strategic Plan serves as the NCC’s primary
+ Work with the City of Ottawa to establish clear pedestrian reference for the planning and management of the Capital Pathway
connections to the central business district, up the escarpment system. This network of more than 220 kilometres of off-road
and through the Garden of the Provinces and Territories. multi-use trails passes through diverse settings that include urban

landscapes, suburbs, pastoral rural surroundings and wooded areas. + any other requirements stipulated in the regulations,
A section of the Capital Pathway passes the northern edge of LeBreton related approvals, leases, easements, other land
Flats along the Ottawa River shoreline. interest instruments, restrictive covenants, special
agreements or other relevant documents.
At the time of the creation of the LeBreton Flats Master Concept Plan,
the 2006 Capital Pathway Strategic Plan was under review. An update
to this plan was completed and approved by the Board of Directors in
October 2020. A key priority for the updated pathway plan includes
efforts that support regional harmonization with other mobility
networks, including those offered by the Ville de Gatineau and City of
Ottawa.
5.9.6 Approval of Land Use

and Design Projects
The Master Concept Plan must be implemented in accordance with
the federal approval process managed by the NCC under sections 12
and 12.1 of the National Capital Act. Approval for federal land use,
design and real estate transaction must be obtained for any new land
use, new work or real property transactions involving federal lands.
The federal approval process ensures that proposals are compliant
with the following, as applicable:
+ federal policies and guidelines, including those of the NCC;
+ the Impact Assessment Act;
+ the NCC’s Sustainable Development Strategy and

the Federal Sustainable Development Strategy;
+ the Plan for Canada’s Capital;
+ applicable specific plans;
+ NCC policies respecting specific planning-related matters or

requirements, including the natural environment, heritage
and archaeology, as well as economic and social factors; and

Appendix
B Alternative Site Options

Alternative Site Options
The following maps illustrate the two possible scenarios for the Albert The Master Concept Plan – Alternative Site Option illustrates the
District: a design incorporating a major event centre or large anchor alternative option for the Albert District without a major event centre
use, and a design for a mixed-use neighbourhood without a major or anchor.
event centre or anchor.
Major Event Centre Alternative Site Option

Master Concept Plan – Alternative Option
Ottawa River
Figure 63 | Master Concept Plan – Alternative Option. This concept plan

is for illustrative purposes only, and is subject to change.

LeBreton Flats: Experiences
Ottawa River Capital Experience
Civic Experience
Figure 64 | Master Concept Plan – Alternative Option: Experiences

LeBreton Flats: Districts
Ottawa River
Flats District
Aqueduct District
Albert District
Park District
Figure 65 | Master Concept Plan – Alternative Option: Districts

Parks and
Public Realm
Strategy
Ottawa River
Capital Park Urban Playground

Riverfront Park Neighbourhood
Parks
Active Park
Figure 66 | Master Concept Plan – Alternative Parks and Public Realm Strategy

Parks and
Public Realm
Design
Example
Ottawa River
Capital Park Urban Playground

Riverfront Park Neighbourhood
Parks
Active Park
Figure 67 | Master Concept Plan – Alternative: This image presents a detailed example of potential future parks and
public realm design options, and is subject to change based on future public consultation.

Mobility
Strategy
Ottawa River
Grand Staircase City Centre Avenue

Connection
Pimisi Underpass
Pathway Connections
Preston Street
Connection
Figure 68 | Master Concept Plan – Alternative: Mobility Strategy

Active Mobility
Ottawa River
Figure 69 | Master Concept Plan – Alternative: Active Mobility

Transit
Network
LRT
LRT station
Existing bus routes
Existing bus stops
Ottawa River
Figure 70 | Master Concept Plan – Alternative: Transit Network

Walking Distance From
O-Train Stations 60 0m
(600m / 5- to10-minute walk)
Ottawa River
60 0m
Pimisi
Bayview
Figure 71 | Master Concept Plan – Alternative: O-Train walksheds illustrate the connectivity of
LeBreton Flats and the surrounding neighbourhoods within a 5-10 minute walk.

Street Network
Ottawa River
Figure 72 | Master Concept Plan – Alternative: Street Network

Parking
Strategy
Ottawa River
Figure 73 | Master Concept Plan – Alternative: Parking Strategy

Land Use
Strategy
Mixed use (retail)

(Aqueduct District)

LeBreton Place
Ottawa River
Figure 74 | Master Concept Plan – Alternative: Land Use Strategy

Retail at
Ground Level
Mixed use (retail)

(Aqueduct District)

LeBreton Place
Ottawa River
Figure 75 | Master Concept Plan – Alternative: Land

Use Strategy, Retail at ground level.

This building heights concept
Building presents an example of how
Heights the maximum building heights

could be implemented. The
Concept configuration of buildings is
subject to change.
Maximum 6 storeys
Maximum 12 storeys
Maximum 20 storeys
Maximum 30 storeys
Maximum 40 storeys
Ottawa River
Figure 76 | Master Concept Plan – Alternative: Building Heights Concept

Proposed Streets
Streets & Lanes
Existing streets
Proposed new streets
Proposed new lanes
Proposed new access routes
(Conceptually anticipated to be private streets and lanes)
LS
Fp5
FS
SS
F5
Ottawa River WS
F4
Fp4
F2
BS
VP F3
Fp3
F1
Fp2
Ap3
VP Fp1
EA
SJAM PkS
Ap2 LA
A1
A2
AS
PS
A1
PS
CC
CC
Figure 77 | Master Concept Plan – Alternative: Proposed street

network with reference labels (concept)

Design Guidelines –
Edge Conditions
Wellington Street – Capital edge
Booth Street – Prominent urban edge
Albert Street – Prominent transition street wall
Albert Street – Major event centre transition street wall
Aqueduct District – Loft edge
Aqueduct District – Flats edge
Interior condition
Ottawa River
Figure 78 | Master Concept Plan – Alternative: Design Guidelines – Edge Conditions

Parcel identification
map
Early phase
Middle phase
Late phase / Opportunity sites
Air rights
Anticipated roads or lanes most likely to be private
Potential parcelling (without major event centre)
Intra-Parcel upgrades (any colour)

(Public realm improvements within areas anticipated to become
future public property to be delivered by adjacent parcel developers)
Intra-Parcel upgrades (without major event centre)

(Any colour)
F6
F7
F5
F4
Ottawa River F3
F12
A12
F2
F11
F1 F10 A11
AD5
F9
F8 AD4 A10
AD3
A9
AD2
AD1 A8
A7
A6
A5
A2 A4
A3
A1
Figure 79 | Master Concept Plan – Alternative: Parcel Identification Map

Critical infrastructure
investments
Early phase
Middle phase
Key public realm investments (any colour)

(Public realm improvements to be initiated by the NCC, the City, or through a
partnership of public agencies)
A LeBreton Flats pathway

B Cave Creek sewer realignment
C Urban Playground
D Municipal Park
E Preston Street extension
F Preston Street pedestrian and cycling bridge
G Aqueduct enhancements and public realm
H City Centre pedestrian and cycling bridge
I Capital Park
Ottawa River
C
D
F
A
E
B
H
I
Figure 80 | Master Concept Plan – Alternative: Critical infrastructure investments

Appendix
C June 2019
Consultation Report

Appendix
D November 2019
Consultation Report


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LeBreton Flats

MASTER CONCEPT PLAN

iv | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | v

vi | NATIONAL CAPITAL COMMISSION

+ Foster sustainability and innovation

+ Honour the past

LEBRETON FLATS MASTER CONCEPT PLAN | vii

viii | NATIONAL CAPITAL COMMISSION

Figure 2 | LeBreton Flats Master Concept Plan: Experiences. Refer to

LEBRETON FLATS MASTER CONCEPT PLAN | ix

Flats District Park District

x | NATIONAL CAPITAL COMMISSION

Parks and Public Realm Strategy

Land Use Strategy

LEBRETON FLATS MASTER CONCEPT PLAN | xi

LEBRETON FLATS MASTER CONCEPT PLAN | xiii

2 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 3

Enhance the Capital Experience Foster Sustainability and Innovation

Build Community Honour the Past

Create Connections Make It Happen

4 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 5

Figure 6 | LeBreton Flats demolition and clearance.

6 | NATIONAL CAPITAL COMMISSION

+ Park Space + Population

Figure 7 | Historical LeBreton Flats rail yards.

LEBRETON FLATS MASTER CONCEPT PLAN | 7

10 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 11

Figure 9 | LeBreton Flats Master Concept Plan: Experiences. Refer to

12 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 13

A. Green roofs D. Heritage aqueduct Figure 11 | View from the

14 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 15

16 | NATIONAL CAPITAL COMMISSION

A. Mass timber lofts C. Booth Street Figure 12 | Looking east along

LEBRETON FLATS MASTER CONCEPT PLAN | 17

18 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 19

20 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 21

22 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 23

24 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 25

e. Potential Event Centre

f. The Preston Connection

26 | NATIONAL CAPITAL COMMISSION

LEBRETON FLATS MASTER CONCEPT PLAN | 27

A. Climbing structures Figure 19 | Looking east into the

28 | NATIONAL CAPITAL COMMISSION

2.5 Park District

LEBRETON FLATS MASTER CONCEPT PLAN | 29

g. Large Outdoor Event Space

30 | NATIONAL CAPITAL COMMISSION

A. Nepean Inlet C. Boardwalks Figure 20 | Looking northwest at Nepean Inlet.