PLANNING & DEVELOPMENT REPORT: REZONING APPLICATION 2022/05 – 296 ELTHAM ROAD & 242 HELMCKEN ROAD

REZONING APPLICATION 2022/05 – 296 ELTHAM ROAD & 242 HELMCKEN ROAD

RECOMMENDATION:

THAT the July 7, 2022 report from the Senior Planner titled “Rezoning Application 2022/05 – 296 Eltham Road & 242 Helmcken Road” be received for information.

CHIEF ADMINISTRATIVE OFFICER’S COMMENTS:

I concur with the recommendation.

DIRECTOR OF DEVELOPMENT SERVICES’S COMMENTS:

I concur with the recommendation.

DIRECTOR OF ENGINEERING’S COMMENTS:

I concur with the recommendation.

PURPOSE OF REPORT:

To introduce Rezoning Application 2022/05 to rezone two detached residential properties for townhouse multifamily residential use. It should be noted that Official Community Plan amendment would be required for the density proposed in the development concept. The applicant has not yet made application for an OCP amendment.

BACKGROUND

The 1596.9 m² (17188.8 ft²) site is comprised of two detached residential properties with houses that date back to the early 1960s. This corner site is bounded by Helmcken Road on the north, detached residential uses on the east, a detached dwelling (zoned C-1: Local Commercial) on the south with multifamily uses beyond, and Eltham Road on the west where there are three lots zoned C-1: Local Commercial.

PROJECT INFORMATION:

The proposal is to rezone the properties from C-1: Local Commercial to a new zone permitting attached residential use. The rezoning application addresses zoning issues of land use, density, and standards for lot coverage, percentage of impervious surface, the height and siting of buildings in general.

Development Concept

A development concept has been provided but consideration of the specific design would only be formally considered by Council in a development permit application if the rezoning is approved.

The following attachments to this report provide more information on the proposal:

1. Subject Property Map
2. Subject Property Orthophoto
3. Letter from Applicant (site data not current)
4. Design rationale
5. Development Concept Architectural Plans
6. Landscape Plan
7. Servicing Plan
8. Conceptual Storm Water Management Plan

The development concept (Attachments 5 and 6) is for twenty units in two three-storey buildings with underground parking as illustrated in Figures 1 and 2.

Site Data Summary

Unit Mix

The proposed residential unit mix is as follows:

• 20 three-bedroom units

Design Comment

While the form and character of the development would be addressed at the development permit stage, the application provides a level of detail in the development concept to help illustrates the applicant’s intent, Council will formally review the form and character of the project through a development permit application that would follow rezoning. Staff would conduct a detailed plan review at that time.

Staff notes the following:

1. Units on Eltham Road have entrances and front yards that would create a pedestrian friendly streetscape.
2. The Helmcken Road frontage would benefit from additional windows to break up blank walls.
3. While the rear elevation in Figure 2 overlooks the front yard of 240 Helmcken Road, that lot is very deep and the dwelling is located at the rear, past the subject properties as shown Attachment 2.
4. The overall character and layout would be suitable for an urban village where there can be casual opportunities for neighbourhood interaction.
5. Underground parking spaces do not meet requirements for additional width adjacent to walls and posts.

DISCUSSION:

Official Community Plan Context

The site is designated Mixed Residential in the Official Community Plan, which supports the following:

• detached homes on small lots
• townhouses - up to three storeys and a maximum Floor Space Ratio of 1.25:1 or
• low-rise apartments - up to four storeys and a maximum Floor Space Ratio of 1.5:1

The Zoning Bylaw contains provisions that allows bonus density of +0.1:1 FSR where underground parking is provided.

The development concept is three storeys but the proposed Floor Space Ratio of 1.6:1 exceeds the OCP maximum of 1.25:1 for townhouses. An Official Community Plan amendment is required for the development concept. It should be noted that the proposed density would comply if the development concept was for an apartment use.

As shown in Figure 3, the site is a transition area from the detached residential neighbourhood on Rudyard Road to the Neighbourhood Mixed Use area at the Island Highway and Helmcken Road intersection, where a six-storey commercial/residential building is under construction.

The proposal is generally in keeping with other OCP policies such as those listed in Attachment 6. Most significant are the following:

Policy HS1.1 Range of Housing Types Ensure the policies of this Plan and the regulations of the Zoning Bylaw support a range of housing, including detached homes, small lot subdivisions, apartments, townhouses, secondary suites and other typologies that meet the housing needs of current and future residents.

• Special consideration will be given to the provision of ground-oriented units in order to accommodate continued demand for family housing. Increasing the number of garden suites, townhomes, small lot detached houses and other housing forms with ground level entries is essential to realizing the Town’s Vision.

Policy LU4.2 Support Walking, Cycling and Transit Encourage higher density and mixed-use development at neighbourhood centres and along major transit corridors to promote walkability, cycling and transit use. Support higher residential density, commercial intensity and reduced parking requirements in areas well served by transit.

Policy LU4.5 Street-oriented Buildings Encourage street-oriented buildings where practical in terms of physical terrain and street configuration.

Proposed Zone

The proposal is to rezone to a new zone. The proposed density is 125.2 units per hectare based on 20 units on a 1596.9 m² site, which is less than newer apartment developments on Island Highway. It is denser than the townhouses at 235 Island Highway, but that site has no underground parking.

In order that the two subject properties will be preserved as one development site after rezoning, a covenant is recommended to require consolidation of the lands comprising the entire site, and until then those lands are not to be sold or otherwise transferred separately. This covenant would keep the lands as a single development site because it is not in the Town’s best interest for individual parcels to be sold or developed individually with the proposed Comprehensive Development zoning in place.

Tree Retention

There are five trees on the site: one cedar, one fir and three non-native species. Boundary trees include an ash and a cedar on the neighbouring property at 294 Eltham Road and three small hawthorns along Eltham Road. Underground parking is desirable but can create conflicts with tree root zones. A tree inventory and arborists report should be provided at this time to enable understanding of potential tree impacts along the perimeter of the property.

Community Amenity Contribution

The Community Amenity Contributions Policy target rate is $4,000 per multifamily residential unit that would be provided prior to building permit issuance. For the 20 units proposed in the development concept, the voluntary contribution would be $80,000 minus any tangible community amenity contributions that Council and the applicant agree to. It is recommended that any community amenity contributions agreed to with the applicant that would be provided after rezoning (such as a rate per unit) be secured in a covenant concurrent with final reading of the rezoning bylaw.

OCP Policy HS1.4 Housing Amenity Contributions also supports a housing amenity contribution to the Town, which could be directed to the CRD Regional Housing Trust Fund. The Community Amenity Contributions Policy is for 10% of the amount of cash amenities received to be transferred to the Capital Regional District Housing Trust Fund to supplement the Town’s annual contribution.

Transportation Impact

A traffic impact assessment for this development to determine if additional turning storage or sightline improvements are required along Helmcken Road or Eltham Road.

Depending on the results of the Traffic Impact Assessment, road dedication may be required at the Eltham / Helmcken intersection due to the sharp angle, despite the plan to relocate an asphalt sidewalk encroachment. This would be secured in a covenant to be registered prior to rezoning. Road dedication could affect the floor space ratio.

The Engineering Department is satisfied in principle with the driveway access on Eltham Road, as a driveway access on Helmcken Road is not supported.

Site Servicing

The requirements of Subdivision and Development Servicing Bylaw No. 985, 2017 include updated sidewalks along the site frontages, no net increase in post-development site runoff, and ensuring that storm water entering the Town’s drainage system will meet the requirements of Storm Water Regulation Bylaw No. 902, 2015. A detailed design stormwater management plan will be required prior to issuance of the building permit and road frontage design will be reviewed as part of the servicing agreement.

The additional sewer loading due to the proposed rezoning is accounted for in the Town’s Master Sanitary Sewer Plan and DCC program, which is based on the site’s OCP land use designation. A sewer modelling study is not recommended as there appears to be sufficient capacity in the receiving sewer system to support the proposed development. Stormwater management will be provided on site and more detail will be provided at the development permit stage.

NEXT STEPS

The following items and any other issues identified by the Committee of the Whole should be addressed for the application to move forward:

1. An Official Community Plan amendment is required for the proposed townhouse density.
2. A covenant should be registered concurrent with rezoning to require the following prior to building permit issuance: a. A restriction that the lots are not to be sold independently. This would ensure that the two properties will be redeveloped as a single site. b. Road dedication, if required c. Provision of community amenity contributions agreed to with the applicant.
3. Underground parking can create conflicts with tree root zones. An arborists report should be provided at this time to identify mitigation of potential tree impacts on adjacent properties.
4. The sustainability statement form should be completed.
5. A traffic impact assessment is to be conducted to determine if additional turning storage or sightline improvements are required along Helmcken Road or Eltham Road.

RECOMMENDATION:

THAT the July 7, 2022 report from the Senior Planner titled “Rezoning Application 2022/05 – 296 Eltham Road & 242 Helmcken Road” be received for information.

SUBMITTED BY: Jeff Chow, RPP, MCIP, Senior Planner

REVIEWED BY: Lindsay Chase, RPP, MCIP, Director of Development Services

ATTACHMENTS:

1. Subject Property Map
2. Subject Property Orthophoto
3. Letter from Applicant, May 27, 2022 (2 pages)
4. Design rationale (2 pages)
5. Architectural Plans - Ankenman Marchand Architects, June 6, 2022 (26 Pages)
6. Landscape Plan - Lombard North Group, May 1, 2022
7. Servicing Plan - JE Anderson & Associates, April 29, 2022
8. Conceptual Storm Water Management Plan - JE Anderson & Associates, April 29, 2022 (8 pages)
9. Official Community Plan policy excerpts (5 pages)