County approves controversial downtown Paris zoning changes

Casandra Turnbull

Managing Editor

A controversial plan to reshape part of downtown Paris moved one step closer to reality last Tuesday after County of Brant council approved a zoning bylaw amendment that will permit a five-storey mixed-use development and pave the way for a future municipal parking structure on lands south of Mechanic Street.

Following a public hearing and council questions and comments, the recommendation passed with support from every member of council present except Coun. John MacAlpine. Coun. Robert Chambers was absent.

The county-initiated amendment is intended to implement near-term priorities identified in the Downtown Paris Master Plan while providing planning certainty for future redevelopment on key County-owned lands. Staff emphasized the zoning changes establish what can be built, while details such as architecture, heritage compatibility, flood mitigation, parking integration and public realm improvements would be addressed through a future Community Planning Permit System (CPPS). 

The proposal divides the project into two redevelopment areas.

Area A, located at Broadway Street West and Mechanic Street, permits a mixed-use commercial and residential development. The zoning increases the maximum building height from four storeys to five storeys, with commercial uses at street level and residential units above. Residential units will not be permitted on the ground floor because of floodplain requirements, and upper floors must be stepped back above the third storey to reduce the visual impact along the streetscape. Parking requirements can be met either on-site or through an agreement allowing spaces within a municipal parking facility. 

Area B, south of Mechanic Street near Wincey Mills, is being rezoned to permit a multi-storey municipal parking structure, public park space, temporary tourism and retail uses, passive recreation and flood protection works. Portions of the property closest to the river will also be rezoned for natural heritage protection. 

Planning staff said the changes are intended to support future growth while balancing flood resilience, heritage conservation, parking needs and downtown revitalization. 

Manager of Policy Planning Brandon Kortleve told council the zoning amendment represents only one part of a broader planning process.

According to the report, presented by county staff, ‘This approach provides certainty regarding what development may occur while still maintaining flexibility to evaluate how future development will occur on a site-specific basis.’

The strongest opposition came from Bill Kennedy of East River Holdings, whose company developed The Royal condominiums and rebuilt 61 Grand River Street North which houses Stillwaters, Capeesh and other retail outlets. His company also owns additional redevelopment lands downtown.

Kennedy said his company had invested in Paris for decades based on earlier versions of the Downtown Paris Master Plan, including plans that located a centralized parking structure behind the County administration building.

He argued moving the parking garage farther south while allowing taller buildings fundamentally changes the community's long-term vision.

"What is the vision in the future? Have we changed the look of downtown area from a place to relax, enjoy, a place to observe the beauty of what we are privileged to possess? That beauty should be shared with the greater community. Are we going to build the prettiest town in southwestern Ontario to create a living environment for all or are we going to focus on higher density residential living space in this core which is purely financially driven?"

Kennedy urged council to retain the originally proposed parking garage location, behind council chambers where it is more accessible to all of downtown and maintain the four-storey height limit. He also questioned the public consultation process.

"Who was consulted from the community on this new proposal? And what professional consulting group suggested this proposal is superior plan to the original Paris master plan?"

Responding to questions from Coun. David Miller, Kennedy warned approving additional height could set a precedent for future redevelopment proposals elsewhere downtown.

While describing a plot of land he owns on Grand River Street, north of William Street towards Penmarvian, Kennedy said the proposed building he plans to develop is three storeys high, which he described as not very profitable, but esthetically fits with the look and feel of downtown.

"I can move it to six storeys and I can make a whole lot more money. So, if it is about money, I’m going for six storeys. If it’s about the place I live, I want it left at 3 storeys to be compatible with what is happening at this core.” 

West River Street resident David Spencer echoed those concerns, telling council he opposed buildings taller than four storeys.

"I'm running for council this year and walking up the street looking to get 25 signatures to run for council, every single person complained about the development downtown and the elevation of the buildings."

Not everyone opposed the proposal.

David Swanson, of Robinson Road, supported additional residential density.

"I think that more bodies spending more money in the downtown is a big step in the right direction." 

Councillors spent considerable time discussing how parking would function if the project proceeds.

Coun. John Bell questioned why only one parking space per residential unit was proposed and whether future condominium residents would rely on the municipal parking structure.

Kortleve said downtown land constraints require a flexible approach and confirmed residents could potentially park within the future garage. 

Coun. John MacAlpine asked how many parking spaces the structure might contain.

Director of Planning Haley Gilmore said the parking needs assessment projects demand through 2050, with preliminary estimates ranging from 250 to 350 spaces.

"It's challenging at this point because there's still so many decisions to be made in terms of the amount of residential growth," she said, adding the final size will depend on future growth projections.

When MacAlpine suggested online estimates placed the cost of a parking garage between $10 million and $15 million, he questioned whether the investment would be worthwhile.

Kortleve responded that zoning the property for a parking structure does not automatically mean one will be built. 

MacAlpine also questioned whether floodplain policies that once limited residential density had changed.

Kortleve replied that discussions with the GRCA have shifted away from prescribing a specific number of residential units toward reducing overall flood risk.

The county's flood hazard assessment concluded the redevelopment can proceed within the existing Downtown Paris Special Policy Area policies provided floodproofing measures are incorporated. The assessment found the proposed framework would not increase overall flood risk and would replace more vulnerable land uses with flood-resilient development. 

The Grand River Conservation Authority also advised it has no objection to the proposed zoning amendment.

In its comments, the GRCA noted the proposed mixed-use redevelopment and parking structure remain entirely within the downtown floodplain, but concluded the proposal can proceed provided floodproofing requirements and Special Policy Area policies are met. 

After the public hearing was closed, a significant portion of councillor discussion focused largely on residential intensification in the downtown core and the benefit it would bring to businesses.

Planning staff estimated the mixed-use building could ultimately accommodate approximately 80 to 100 residential units and four commercial retail spaces. 

Although councillors acknowledged concerns raised by residents, most concluded the revised proposal struck an appropriate balance.

Coun. Lukas Oakley, who serves as council's representative on the Downtown Paris BIA, said new residential development would support businesses beyond Grand River Street North, specifically those located on William Street and Mechanic Street. 

"I think there is a serious opportunity that is compatible with Grand River Street North."

Bell also supported additional residential density, saying more people living downtown would benefit local businesses.

Coun. Steve Howes said he remained opposed to the original six-storey proposal but supported an increase to the maximum height to five storeys, from the current four. 

"I can live with that especially with the new design element attached."

Howes also argued future generations would criticize today’s council if parking needs were ignored.

"With respect to the parking structure to all the vocal people who say today we are ruining Paris with a parking garage, 10 years from now we will be equally vocal saying why didn't you plan for parking solutions."

The exact number of parking spaces the proposed garage would contain was not confirmed, nor was it determined how many spaces would be allocated to residents of the mixed-use development. Council also did not discuss how many existing municipal parking spaces would be displaced by the redevelopment.

Coun. Jennifer Kyle framed the proposal as part of the county's broader effort to curb urban sprawl and protect agricultural land. Ultimately, she said building, up and not out, is a viable solution. 

"We're not approving a building tonight, architectural drawings or landscaping but what we are doing is approving a planning framework that future proposals will have to work within."

Referring to the town’s beauty and charm, she added, "Preserving a community doesn't mean freezing it in time." 

The zoning amendment now establishes the planning framework for future redevelopment proposals, with detailed building design, floodproofing, heritage considerations and site planning to be evaluated through the county's proposed Community Planning Permit System before any development applications proceed.