REQUEST FOR DECISION
DATE: June 17, 2020 Report No. DEV-20-032
TO: Laurie Hurst, Chief Administrative Officer
FROM: Alex Tang, Planer and Bill Brown, Director of Development Services
SUBJECT:
Title
Development Permit Application - 681 and 685 Admirals Road
End
RECOMMENDATION:
Recommendation
That Council approves Development Permit No. DP000138, attached as Appendix A to Staff Report DEV-20-032, consistent with the architectural plans provided by Thuja Architecture + Design and the landscape plan by Lazzarin Svisdahl Landscape Architects, both stamped “Received May 28, 2020”, and sited in accordance with the site plan provided by McElhanney Consulting Services Ltd., stamped “Received March 18, 2020”, to be located at 681 Admirals Road [PID 007-801-963, Lot 25 Block 4 Suburban Lot 50 Esquimalt District Plan 1153]+[PID 007-801-980, Lot 26 Block 4 Suburban Lot 50 Esquimalt District Plan 1153], and 685 Admirals Road [PID 007-802-013, Lot B (DD G17083), Block 4, Suburban Lot 50, Esquimalt District, Plan 1153].
Body
RELEVANT POLICY:
Declaration of Climate Emergency
Official Community Plan Bylaw, 2018, No. 2922
Zoning Bylaw, 1992, No 2050
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
Local Government Act
STRATEGIC RELEVANCE:
This Request for Decision does not directly relate to a specific strategic objective.
BACKGROUND:
Appendix A: DP000138
Appendix B: Aerial Map and CD No. 123 Zone
Appendix C: Architectural Drawings, Landscape Plan, and Surveyor’s Site Plan
Appendix D: Green Building Checklist
Appendix E: Applicant’s Comments for Development Permit Area Guidelines
Appendix F: Arborist Report
Purpose of the Application
The applicant is proposing to build a 48-unit multiple family residential building. Comprehensive Development District No. 123 of Esquimalt Zoning Bylaw 1992, No. 2050 has been written to regulate this development.
This site is located within Development Permit Area No. 1 - Natural Environment, Development Permit Area No. 6 - Multi-Family Residential, Development Permit Area No. 7 - Energy Conservation and Greenhouse Gas Reduction, and Development Permit Area No. 8 - Water Conservation. A Development Permit is required to ensure that the application is generally consistent with the Development Permit Area guidelines contained within the Esquimalt Official Community Plan Bylaw, 2018, No.2922. The development permit is required prior to a building permit being issued for the construction of a structure.
Evaluation of this application should focus on issues respecting the form and character of the development, including landscaping, exterior design and finish of the buildings and other structures in relation to the relevant design guidelines. In addition, evaluation should focus on natural environment protection, energy conservation, greenhouse gas reduction, and water conservation in relation to the relevant development permit area guidelines.
Context
Applicant: Westurban Developments Ltd.
Architect: Thuja Architecture Studio Ltd.
Owner: 1201726 B.C. LTD., Inc. No. BC1201726
Property Size: Metric: 1520 m2 Imperial: 16307 ft2
OCP Proposed Land Use Designation: Medium Density Residential
Zoning: CD No. 123 [Comprehensive Development District]
Zoning
The following chart details the floor area ratios, lot coverage, setbacks, height, parking requirements, and usable open space of the CD No. 123 zone.
|
|
CD No.123 Zone |
|
Units |
48 |
|
Floor Area Ratio |
2.0 |
|
Lot Coverage |
82% / 44% at or above the first storey |
|
Setbacks |
|
|
• Front |
9.3 m |
|
• Rear |
6.0 m |
|
• Interior Side [North] |
7.2 m |
|
• Interior Side [South] |
3.6 m |
|
Building Height |
19.7 m |
|
Off Street Parking |
48 |
|
Usable Open Space |
320 m2 |
Official Community Plan
This site is located within Development Permit Area No. 1 - Natural Environment, Development Permit Area No. 6 - Multi-Family Residential, Development Permit Area No. 7 - Energy Conservation and Greenhouse Gas Reduction, and Development Permit Area No. 8 - Water Conservation. The guidelines of these Development Permit Areas are contained within the Esquimalt Official Community Plan Bylaw, 2018, No.2922.
As Council is required to consider all of the Official Community Plan guidelines from these Development Permit Areas in evaluating this application, the applicant has submitted a document addressing these guidelines.
Development Permit Area No.1 is designated for the purpose of establishing objectives for the protection of the natural environment, its ecosystems and biological diversity.
OCP Section 18.5.2 Natural Features
As noted by the applicant, most of the guidelines in this section cannot be applied due to the construction of an underground parking structure. The underground parking structure will intrinsically disturb, compact and remove areas of natural soils. The applicant states that the project does not impact any of the public view corridors denoted in Schedule ‘G’ of the Official Community Plan.
OCP Section 18.5.3 Biodiversity
The applicant has included landscaping consistent with these guidelines, noting that the landscaping will be predominantly native plants with Virginia creeper as one of the exceptions. Drought tolerant species will be used with broad-leaf trees providing shade.
OCP Section 18.5.4 Natural Environment
The applicant has utilized a variety of leafy trees along the front and side of the building with the walls covered with Virginia creeper.
OCP Section 18.5.5 Drainage and Erosion
None of the existing trees are preserved but 25 trees are proposed to be planted throughout including a notable Garry Oak. The surface parking, consisting of 4 spaces, is currently proposed to be constructed with permeable pavers to facilitate stormwater infiltration.
OCP Section 18.5.7 Native Bird Biodiversity
The site will be populated with mostly deciduous trees.
Development Permit Area No.6 is designated for the purpose of establishing objectives for the form and character of multi-family residential development.
OCP Section 23.5 Multi-Family Residential Guidelines
The exposed front wall will be covered with a perforated steel corten screen and backlighting to add visual interest. The proposed building includes a parking level that is predominantly underground but at ground level in the front because of the natural topography. Smaller windows and balconies have been placed towards the rear of the building to minimize visual intrusion to the adjacent residential units.
Development Permit Area No.7 is designated for the purposes of energy conservation and greenhouse gas reduction.
OCP Section 24.5.1 Siting of buildings and structures
The proposed building utilizes a compact building footprint rather than varying building heights to mitigate the effects of shading. Benches and green spaces sit adjacent to the sidewalk while a courtyard above the parking level is interspersed with trees, benches and tables.
OCP Section 24.5.2 Form and exterior design of buildings and structures
The slope of the roof is designed to minimize the cooling needs of the building. The large overhang reduces peak summer heat gain. There are no skylights and rooftop gardens as part of the design.
OCP Section 24.5.3 Landscaping
The green space and courtyard to the front will provide residents with a natural setting. Three pine trees and a feature Garry Oak will line the front of the building along Admirals Road. Three green beech trees are also proposed on the boulevard along Admirals Road.
OCP Section 24.5.4 Machinery, equipment and systems external to buildings and other structures
The applicant states that they have considered efficient low-energy external lighting, use of heat pumps, and durable materials in the design of this project. The proposed development contains at least 6 electric vehicle charging stations and a car share vehicle on site.
OCP Section 24.5.5.Special Features
The applicant are proposing to use a durable cement-board siding. The wood and building products will be locally sourced when possible.
Development Permit Area No.8 is designated for the purpose of water conservation.
OCP Section 25.5.1.Building and Landscape Design
The limited green areas on site will provide some water absorption and aid in the retention of storm water. Contrary to the guideline, the underground parking structure extends beyond the building wall and provides limited areas on site for infiltration.
OCP Section 25.5.2.Landscaping - Select Plantings for Site and Local Conditions
The applicant states that the proposed development will utilize mostly native species in its landscaping.
OCP Section 25.5.3.Landscaping - Retaining Stormwater on Site
For the purpose of both the underground parking structure and the principal building, much of the natural soils will be compacted and removed. To enhance stormwater infiltration, large permeable gravel surfaces are used.
OCP Section 25.5.4.Landscaping - Water Features and Irrigation Systems
The applicant states that the proposed development has included automated high efficiency irrigation systems and plantings to Canadian Landscape Standards.
Green Building Features
The applicant has completed the Esquimalt green building checklist [Appendix D].
Comments from Other Departments
The plans for this proposal were circulated to other departments and the following comments were received:
Community Safety Services: Building to be constructed to requirements of BC Building Code 2018 and municipal bylaws. Applicant must address all issues contained within the Township Development Protocol should application be approved. 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 at the subject property. 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 Admirals Road. Should the application be approved, additional comments will be provided when detailed civil engineering drawings are submitted as part of a Building Permit application.
Parks Services: Parks Staff has completed a review of the landscape plan and has concerns with the Virginia creeper as it can spread quickly and will require regular maintenance. Tree cutting permit applications must be submitted for all trees that are planned to be removed. Moreover, tree protection fencing must be set up at the dripline of all trees to be retained prior to commencement of site preparation, demolition and construction.
Fire Services: Fire Services staff has completed a preliminary review of the proposed plans and has required that a hydrant be installed within 45 metres [148 ft] of the proposed building.
Comments from the Design Review Committee [DRC]
The development permit application was considered at the regular meeting of the DRC held on May 13, 2020.
The committee had concerns with the lack of step back within the building form. Members had concerns with the stormwater management as it is more mechanical with the use of a stormwater retention tank rather than ecological. Members noted that the surface was mostly impermeable and lacked landscaping and vegetation. Moreover, members had concerns with the lack of replacement trees provided. Members suggested garden beds and more vegetation on the plaza space above the parking level to increase its appeal to the residents. Furthermore, the committee commented that the plans and renderings did not correspond.
The Design Review Committee resolved unanimously that the application be forwarded to Council with a recommendation of denial for the following reasons:
• The application does not meet the DP guidelines for the natural environment; for example, the proposal does not contribute to a pedestrian friendly streetscape and does not provide shading on the street.
• The application does not adequately use landscaping for stormwater management.
• The provision of upper story setback has not been maintained. The applicant has stated that the lack of setback was to increase the building’s energy efficiency. The DRC would support the proposed design if the applicant committed to STEP Code 3.
• The benches at the bus stop do not provide shelter from the weather.
• The DRC notes that the architectural plans, landscape plans, and renderings do not correspond, specifically in reference to the proposed trees.
In response to the recommendation, the applicant has amended the plans for the proposed development to address these issues. The visitor parking area to the northwest of the parcel is amended to consist of permeable pavers. The landscape plan now includes a grassy area and a maple tree in front of the building atop the parking level. Moreover, the applicant added a row of shrubs on its rear boundary to create a buffer with the adjacent property to the east. The amended landscape plan has a larger garden bed area for the residents. In all, the applicant has added 7 more trees on site and 1 more beech tree on the boulevard compared to the previous landscape plan.
ISSUES:
1. Rationale for Selected Option
The proposed development conforms to the Zoning Bylaw and is generally consistent with the development permit area guidelines where applicable and feasible.
2. Organizational Implications
This Request for Decision has no significant organizational implications.
3. Financial Implications
This Request for Decision has no significant financial implications.
4. Sustainability & Environmental Implications
The applicant has completed the Esquimalt green building checklist [Appendix D].
5. Communication & Engagement
As this is a Development Permit application requiring no variances, the Local Government Act does not require that notification be provided.
ALTERNATIVES:
1. That Council approves Development Permit No. DP000138, attached as Appendix A to Staff Report DEV-20-032, consistent with the architectural plans provided by Thuja Architecture + Design, and the landscape plan by Lazzarin Svisdahl Landscape Architects, both stamped “Received May 28, 2020”, and sited in accordance with the site plan provided by McElhanney Consulting Services Ltd., stamped “Received March 18, 2020”, and staff be directed to issue the Permit (subject to receipt of the required landscape security) and register the notice on the titles of the properties located at 681 and 685 Admirals Road.
2. That Council deny Development Permit No. DP000138 [Appendix A] with reasons provided.