REQUEST FOR DECISION
DATE: March 12, 2025 Report No. DRC-25-003
TO: Chair and Members of the Advisory Planning Commission; Design Review Committee
FROM: James Davison, Manager of Development Services
SUBJECT:
Title
OCP Amendment and Rezoning Application - 1005 Tillicum Rd - File No. DRC-25-003End
RECOMMENDATION:
Recommendation
That the Esquimalt Design Review Committee recommends to Council that the Official Community Plan amendment and rezoning application to authorize the proposed development of a four-storey mixed-use development, with 32 residential and one commercial unit, consistent with the architectural plans provided by XV Architecture and the landscape plan provided by 4SITE Landscape Architecture and Site Planning, to be located at 1005 Tillicum Rd [LOT 1, SECTION 10, ESQUIMALT DISTRICT, PLAN 27609], be forwarded to Council with a recommendation to either approve, approve with conditions, or deny the application including reasons for the chosen recommendation.
Body
RELEVANT POLICY:
Official Community Plan Bylaw, 2018, No. 2922
Zoning Bylaw, 1992, No. 2050
Local Government Act
Declaration of Climate Emergency
Parking Bylaw, 1992, No. 2011
Development Application Procedures and Fees Bylaw, 2012, No. 2791
Advisory Planning Commission Bylaw, 2012, No. 2792
Subdivision and Development Control Bylaw, 2023, No. 3128
Green Building Checklist
STRATEGIC RELEVANCE:
Housing
BACKGROUND:
Appendix A Aerial Map
Appendix B Applicant Rationale Letter
Appendix C Architectural and Survey Plans
Appendix D Landscape Plan
Appendix E Green Building Checklist
Appendix F Arborist Report
Appendix G Servicing Plan
Appendix H Stage 1 Preliminary Site Investigation (no appendices)
Appendix I Stage 2 Preliminary Site Investigation (no appendices)
Appendix J Transportation Review and Parking Analysis
Appendix K Applicant Presentation
PURPOSE OF APPLICATION:
The purpose of the application is to amend the Zoning Bylaw and the Official Community Plan to permit a four-storey mixed-use development consisting of 32 residential units and one commercial unit. The current and proposed OCP Land Use Designations are Low Density Residential and Townhouse Residential. The applicant is proposing a new Land Use Designation of Medium Density Residential and a new CD Zone (yet to be drafted).
CONTEXT:
Applicant: Xeniya Vins
Owner: 1414757 B.C. LTD., INC. NO. 1416757
Designer: XV Architecture
Property Size: 1,384.6m2 (14,904 sq. ft)
OCP Land Use Designation:
Current: Low Density Residential
Proposed: Medium Density Residential
Zone: RD-3 Two Family/Single Family Residential
Existing Land Use: Single Family Residential
Proposed Land Use: Multifamily Residential
Surrounding Land Uses:
North: Low density residential
South: Service station
East: Low density residential
West: Low density residential, multifamily residential and commercial property with recently rezoned mixed-use commercial and multifamily residential.
OCP ANALYSIS:
This site is designated Townhouse Residential as illustrated on the “Proposed Land Use Designation” map (Official Community Plan Bylaw, 2018, No. 2922 - Schedule B). The applicant is proposing a Medium Density Residential designation.
The Official Community Plan supports the expansion of housing types in residential areas.
The immediate neighbourhood contains a mix of single family, two family, and multiple family housing types. The following policies would be considered in the evaluation of this proposal.
Section 5 Housing & Residential Land Use contains policies that are intended to ensure that concerns such as tree protection, parking, traffic, noise, effects on neighbouring properties, and neighbourhood character are addressed.
• Support the development of a variety of housing types and designs to meet the anticipated housing needs of residents. This may include non-market and market housing options that are designed to accommodate young and multi-generational families, the local workforce, as well as middle- and high-income households.
Section 5.3 Medium/High Density Residential Development contains policies that promotes compact, efficient medium density and high-density residential development that integrates with existing and proposed adjacent uses.
• Encourage new medium density and high-density residential development with high quality design standards for building and landscaping and which enhance existing neighbourhoods.
• Prioritize medium density and high-density residential development in proposed land use designated areas that:
1. reduce single occupancy vehicle use
2. support transit service
3. are located within proximity to employment centres; and
4. accommodate young families.
• Consider new medium density residential development proposals with a Floor Area Ratio of up to 2.0, and up to six storeys in height, in areas designated on the “Proposed Land Use Designation Map.”
• A mix of dwelling unit sizes should be provided in medium density and high-density residential land use designated areas to meet the varying housing needs of Esquimalt residents.
• Buildings with shallow setbacks should step down to no more than three storeys at street level in order to provide an appropriate human scale along the sidewalk.
• Encourage the incorporation of spaces designed to foster social interaction.
5.4 Affordable Housing contains policies to encourage a range of housing by type, tenure, and price so that people of all ages, household types, abilities and incomes have a diversity of housing choice in Esquimalt.
• Encourage the placement of new rental, affordable, special needs, and seniors housing in accordance with designated residential land use areas as they are integral components of inclusive neighbourhoods.
• Promote housing agreements to ensure that all strata units have the opportunity to be used as long-term residential rentals within strata buildings.
5.5 Age-friendly Housing contains policies to expand and protect seniors housing in Esquimalt to enable citizens to “age in place.”
• Support and facilitate development of multi-generational housing, including in medium and high-density residential developments.
• Encourage child friendly developments that provide appropriate amenities such as outdoor play areas for young children that are well-separated from traffic circulation and parking areas.
• Encourage adaptable design for all dwellings created through rezoning.
• Encourage more accessible housing for people with mobility limitations on the ground floor of medium and high density residential buildings.
• Encourage the development of seniors housing that is within close proximity and accessible to services and amenities.
11.3 Cycling - 11.3.2 New Development contains policies to encourage the inclusion of bicycle facilities in new developments.
• Encourage developers to provide a variety of end of trip facilities for active transportation.
• Encourage bike lockers in multi-unit residential and commercial/ commercial mixed-use developments.
A Development Permit would be required prior to a building permit being issued. Therefore, applicants are urged to consider the OCP DPA guidelines early in the process. Many DPA guidelines require that the zoning issues (useable open space, lot coverage, height, density, massing, siting, setbacks, parking, how the building relates to adjacent homes) be created to be able to fulfill the guidelines.
Relevant Development Permit Area Guidelines to consider as they relate to the rezoning application include:
OCP Section 18 - Development Permit Area No. 1 - Natural Environment
18.5.2 Natural Features - Natural features and areas to be preserved, protected, restored, and enhanced where feasible:
• Retain existing healthy native trees, vegetation, rock outcrops, and soil wherever possible.
• Narrower manoeuvering aisles, fewer and smaller parking spaces can be considered where natural areas are being conserved.
18.5.5 Drainage and Erosion - Measures to control drainage and shoreline erosion.
• Preserve, restore, and enhance treed areas. Trees are the most effective form of absorbent landscaping due to their extensive root zones and their ability to both absorb water from the soil and intercept precipitation on leaves, needles, and branches. Consider that native conifers are well adapted to local wet winters.
• Reduce the impact of surges in stormwater on shorelines by designing on-site stormwater retention systems to contain the first 3 centimetres [1.25 inches] of precipitation on site, per precipitation event; and incorporating rainwater collection systems into roof design and landscaping.
• Maximize the ratio of planted and pervious surfaces to unplanted surfaces, and design paved areas to direct water towards vegetated areas, to help reduce surface run off. Where paved surfaces are needed, intersperse with drought resistant vegetation and trees, to help absorb stormwater, provide shade, and reduce the local heat island effect.
OCP Section 23 - Development Permit Area No. 6 - Multi-Family Residential
To ensure that the development of multi-unit residential sites is compatible with surrounding uses.
• The size and siting of buildings that abut existing single- and two-unit and townhouse dwellings should reflect the size and scale of adjacent development and complement the surrounding uses. To achieve this, height and setback restrictions may be imposed as a condition of the development permit.
• New buildings should be designed and sited to minimize visual intrusion on to the privacy of surrounding homes and minimize the casting of shadows on to the private outdoor space of adjacent residential units.
• To preserve view corridors and complement natural topography, stepped-down building designs are encouraged for sloping sites.
• Retention and protection of trees and the natural habitat is encouraged wherever possible.
• Provide for building occupants to overlook public streets, parks, walkways, and spaces, considering security and privacy of residents.
• Provide for slightly raised entrances to ground floor residences along with private yards that are accessible from the fronting street or lane to encourage community interaction.
• Wherever possible, outdoor storage and parking areas should be screened from view.
OCP Section 24 - Development Permit Area No. 7 - Energy Conservation and Greenhouse Gas Reduction
24.5.1 Siting of buildings and structures.
• Orient buildings to take advantage of site-specific climate conditions, in terms of solar access and wind flow, design massing and solar orientation for optimum passive performance.
• Build new developments compactly, considering the solar penetration and passive performance provided for neighbouring sites, and avoid shading adjacent to usable outdoor open spaces.
• Strategically site buildings to sustain and increase the community’s urban forest tree canopy cover.
• Provide space for significant landscaping including varying heights of trees, shrubs, and ground covers.
24.5.2 Form and exterior design of buildings and structures.
• Orient larger roof surfaces to the south for potential use of solar panels or photo-voltaic roofing.
• Use roof designs that reduce heat transfer into neighbouring buildings, helping reduce the local heat island effect and the need for cooling of buildings in warmer months.
• Add rooftop patios and gardens, particularly food producing gardens, as they can contribute to local resilience, livability, and reduction in greenhouse gas production by reducing food transportation costs.
24.5.3 Landscaping
• Choose open space and landscaping over dedicating space to the parking and manoeuvering of private motor vehicles.
• Conserve native trees, shrubs, and soils, thereby saving the cost of importing materials and preserving already sequestered carbon dioxide.
24.5.5 Special Features
• Reuse of existing buildings and building materials is encouraged.
OCP Section 25 - Development Permit Area No. 8 - Water Conservation
25.5.3 Landscaping - Retaining Stormwater on Site (absorbent landscaping)
• Preserve and restore treed areas. Trees are the most effective form of absorbent landscaping due to their extensive root zones and their ability to both absorb water from the soil and intercept precipitation on leaves, needles, and branches. Consider that native conifers are well adapted to local wet winters.
• Avoid disturbing, compacting, and removing areas of natural soil, as these are naturally absorbent areas.
ZONING ANALYSIS:
The proposed application will require a CD zone to accommodate its use and siting requirements.
|
Site Area |
1,384.6m2 (14,904 sq. ft.) |
|
Number of Storeys |
4 |
|
Height of Building |
14.13m |
|
Front Yard Setback (West) |
3m |
|
Flanking Yard Setback (North) |
2.75 building, 0m parking structure |
|
Flanking Yard Setback (South) |
1.25m building, 2.1m parking structure |
|
Rear Yard Setback (East) |
16.39m building, 17.56m parking structure |
|
Site Coverage |
49.7% |
|
Total Floor Area |
1,789.8m2 |
|
Floor Space Ratio |
1.30 |
|
Number of Dwelling Units |
32 |
|
Number of Parking Stalls |
20 residential, 1 commercial, 1 loading |
|
Number of Bicycle Stalls |
62 (50 long-term, 10 oversized), 12 short-term |
|
Carshare Parking Stall |
1 |
PARKING ANALYSIS:
The applicant is proposing parking structured around meeting the proposed Parking Bylaw, with TDM measures further reducing vehicle parking to a required 19 spaces. The Transportation Review and Parking Analysis is attached as Appendix J.
It should be noted that the draft Parking Bylaw has not been approved and may not be structured as it has been drafted.
SOIL, SOIL VAPOUR AND GROUNDWATER TESTING
Given the proximity to the service station uphill from the site, a Stage 1 and Stage 2 Preliminary Site Investigation (Appendices H and I, respectively) was conducted by Active Earth Engineering Ltd. in March and April 2023, respectively. The investigations found that the site contamination was within the applicable standards for residential development.
COMMENTS FROM OTHER DEPARTMENTS:
Pending.
ISSUES:
Please consider the massing, height, lot coverage, setbacks, amount of open space and parking in your recommendation to Council.
ALTERNATIVES:
1. That the Design Review Committee recommends to Council that the rezoning application and OCP amendment application be approved including reason for this recommendation.
2. That the Design Review Committee recommends to Council that the rezoning application and OCP amendment application be approved subject to conditions, including reason for this recommendation.
3. That the Design Review Committee recommends to Council that the rezoning application and OCP amendment application be denied including reasons for this recommendation.