REQUEST FOR DECISION
DATE: February 21, 2023 Report No. APC-23-002
TO: Chair and Members of the Advisory Planning Commission
FROM: Alex Tang, Planner 2 and Bill Brown, Director of Development Services
SUBJECT:
Title
Rezoning Application - 820 Esquimalt Road, 833 & 837 Old Esquimalt Road
End
RECOMMENDATION:
Recommendation
That the Advisory Planning Commission recommends to Council that the rezoning application to authorize the proposed development of a 6-storey residential building consistent with the architectural plan provided by Integra Architecture Inc. and landscape plan provided by LADR Landscape Architects, both stamped “Received February 9, 2023”, to be located at 820 Esquimalt Road 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, 1997, No. 2175
Green Building Checklist
STRATEGIC RELEVANCE:
Healthy, Livable and Diverse Community: Support community growth, housing, and development consistent with our Official Community Plan
BACKGROUND:
Appendix A: Aerial Map
Appendix B: Architectural Drawings, Landscape Plan, and Surveyor’s Site Plan
Appendix C: Green Building Checklist
Appendix D: Construction Impact Assessment and Tree Management Plan
Appendix E: Applicant’s Presentation
PURPOSE OF APPLICATION:
The applicant is requesting a change in zoning from C-2 [Neighbourhood Commercial] and RD-3 [Two Family / Single Family Residential] to a Comprehensive Development District zone [CD]. This change is required to accommodate the proposed 6-storey, 136-unit multiple family residential building including a 136-space parking garage.
Evaluation of this application should focus on issues related to zoning such as the proposed height, density, massing, proposed unit sizes, siting, setbacks, lot coverage, usable open space, parking, land use, fit with the neighbourhood, and consistency with the overall direction contained within the Official Community Plan.
This site is located within Development Permit Area No. 1 - Natural Environment, No. 4 - Commercial, No. 6 - Multi-Family Residential, No. 7 - Energy Conservation and Greenhouse Gas Reduction, and No. 8 - Water Conservation of the Township’s Official Community Plan. If the rezoning is approve, the form and character of the buildings, landscaping, and consistency with guidelines relating to natural environment protection, energy conservation, greenhouse gas reduction, and water conservation will be controlled by a development permit that would be considered by Council at a future date.
CONTEXT:
Applicant: Denciti Development Corp.
Owner: 820 Esquimalt Road Ltd., Inc. No. BC1323821
Designer: Integra Architecture Inc.
Property Size: Metric: 3588 m2 Imperial: 38628 ft2
OCP Present Land Use Designation:
Commercial / Commercial Mixed Use [820 Esquimalt Road]
Low Density Residential [833 & 837 Old Esquimalt Road]
OCP Proposed Land Use Designation:
High Density Residential [820 Esquimalt Road]
Medium Density Residential [833 & 837 Old Esquimalt Road]
Zone:
C-2 [820 Esquimalt Road]
RD-3 [833 & 837 Old Esquimalt Road]
Existing Land Use:
Commercial [820 Esquimalt Road]
Single-Family Residential [833 & 837 Old Esquimalt Road]
Proposed Land Use: Multiple-Family Residential
Surrounding Land Uses:
North: Single-Family Residential
South: Multiple-Family Residential
East: Multiple-Family Residential
West: Two-Family Residential and Multiple-Family Residential
OCP ANALYSIS:
The proposed development is consistent with the Proposed Land Use Designation of ‘High Density Residential’ and ‘Medium Density Residential’. The proposed development consists of 6-storeys, 136 residential units and a Floor Area Ratio of 2.44. The northern portion that is designated ‘Medium Density Residential’ has a Floor Area Ratio of 2.0, and the southern portion that is designated ‘High Density Residential’ has a Floor Area Ratio of 3.0.
OCP Section 3.3 Housing and Community identifies the Esquimalt Road corridor as an area for residential densification.
OCP Section 5.1 states a policy to ‘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.’
OCP Section 5.3 Medium and High-Density Residential Development states an objective to support compact, efficient medium density and high-density residential development that integrates with existing proposed adjacent uses.
Supporting policies in this section consistent with the proposed development include:
• 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.
• Encourage the incorporation of spaces designed to foster social interaction.
• Encourage the installation of electric vehicle charging infrastructure in medium and high-density residential developments.
Section 5.5 Age Friendly Housing states an objective to expand and protect seniors housing in Esquimalt to enable citizens to “age in place”.
Supporting policies in this section relevant with the proposed development include:
• 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.
Section 5.6 Family and Child-friendly Housing states an objective to address the shortage of family and child friendly housing in Esquimalt.
Section 11.3.2 New Development states the following policies:
• 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.
Section 13.3.3 Building Energy Efficiency states the following policies:
• Adopt best practices based on evolving building technologies and materials.
• Encourage the adoption of passive, efficient, and renewable energy systems in new buildings and during building retrofits.
• Investigate options for encouraging developers to achieve high energy performance in new developments through such tools as density bonusing, expedited permit approval process, rebate of development fees, revitalization tax exemption, and other incentives.
• Pursue higher energy-efficiency performance in new developments, through the achievement of higher steps in the BC Energy Step Code as an amenity associated with rezoning.
Under Section 13.3.6 Passenger Vehicle Alternatives, the following policies are listed:
• Encourage the installation of electric vehicle charging infrastructure in all new multi-unit developments.
• Pursue the installation of electric vehicle charging capacity in new developments during the rezoning process.
• Encourage the inclusion of car share in new multi-unit residential developments.
Relevant Development Permit Area Guidelines to consider as it relates to the rezoning application include:
• 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.
• 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.
• Underground parking should be encouraged for any multi-unit residential buildings exceeding four storeys.
• 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.
• In commercial, residential, or commercial mixed-use designated areas with taller developments, vary building heights to strategically reduce the shading on to adjacent buildings.
• Provide space for absorbent landscaping, including significantly sized trees on the site and by not allowing underground parking structures to extend beyond building walls
ZONING ANALYSIS:
Density, Lot Coverage, Height, and Setbacks: The following chart lists the floor area ratios, lot coverage, setbacks, height, parking, and usable open space of this proposal. Zoning Bylaw, 1992, No. 2050 does not currently contain a zone that can accommodate this proposed development.
|
|
Proposed Zone |
|
Residential Units |
136 |
|
Floor Area Ratio |
2.44 |
|
Lot Coverage (underground parking level) |
74% |
|
Lot Coverage at or above the First Storey |
58% |
|
Setbacks: |
|
|
Front (Esquimalt Road) |
6.0 m |
|
Western Interior Side |
4.6 m |
|
Eastern Interior Side |
4.6 m |
|
Rear (Old Esquimalt Road) |
8.0 m |
|
Building Height |
20.8 m [6 storeys] |
|
Off Street Parking |
136 spaces |
|
Bicycle Parking |
153 resident spaces + 12 visitor spaces |
|
Usable Open Space |
282 m2 [7.8%] |
PARKING ANALYSIS:
Parking: Parking Bylaw, 1992, No. 2011 requires 1.3 parking spaces per unit to be provided for multiple family developments. Parking areas are required to be constructed to meet the standards for maneuvering aisle dimensions and associated parking stall dimensions detailed in Part 14, Table 2, of the Bylaw.
This proposal incorporates 136 parking spaces to serve 136 residential dwelling units. Hence, the parking ratio of 1.0 is less than the required amount of 177 parking spaces as required by the Parking Bylaw.
COMMENTS FROM THE DESIGN REVIEW COMMITTEE
This application was considered at the regular meeting of the Design Review Committee held on January 11, 2023. Members have concerns with the loss of commercial space. Members would like to see construction to Step 3 of the BC Energy Step Code notwithstanding the additional costs. Moreover, they had concerns with the building lot coverage and would like to see additional ground-level open space. The members also desired vegetated screening for the amenity space to the west of the principal building.
The Design Review Committee resolved that the application be forwarded to Council with a recommendation of approval with the following conditions:
• Step Code 3 to be considered to reflect current and future targets as set by the Province and to avoid the liability of retrofits in the future
• Consider the impacts of the loss of commercial space
• Council to consider density bonusing and other incentives to retain commercial space
In response to the comments from the Design Review Committee, the applicant has decreased the parkade lot coverage from 77% to 74% to allow for significant plantings along the western and eastern edges of the parcel.
COMMENTS FROM OTHER DEPARTMENTS:
Community Safety Services (Building Inspection):
The building is to be constructed to requirements of BC Building Code 2018 and municipal bylaws. Plans will be reviewed for compliance with BC Building Code upon submission of a building permit application.
Engineering Services:
Engineering staff has completed a preliminary evaluation of works and services that would be required for the proposed 136-unit multiple family residential building. Staff confirms that the design appears achievable on the site and that appropriate works and services are available in the immediate area. If approved, the development must be serviced in accordance with bylaw requirements including, but not limited to, new sewer and drain connections, underground hydro, telephone and cable services and new road works may be required up to the centre line of Esquimalt Road and Old Esquimalt Road. Frontage improvements will be confirmed at a later date based on the active transportation design provisions for bicycle lanes on Esquimalt Road and Old Esquimalt Road.
Even though a loading zone is not required by the Parking Bylaw, Engineering staff recommends a loading zone to be provided onsite.
Parks:
Parks staff has completed a preliminary review of the proposed on-site and off-site landscaping and commented that a tree cutting permit application is required for all trees to be removed. All trees that are to be retained, including boulevard trees, must have tree protection fencing erected at the drip line.
ISSUES:
Please consider the massing, height, lot coverage, setbacks, amount of open space and parking in your recommendation to Council.
ALTERNATIVES:
1. That the Advisory Planning Commission recommends to Council that the rezoning application be approved including reason for this recommendation.
2. That the Advisory Planning Commission recommends to Council that the rezoning application be approved subject to conditions, including reason for this recommendation.
3. That the Advisory Planning Commission recommends to Council that the rezoning application be denied including reasons for this recommendation.