COUNCIL REPORT - DEVELOPMENT PERMIT WITH VARIANCES 2022-05 – 1519 ADMIRALS ROAD
Staff report recommending approval for the expansion of the existing Canadian Tire store with several variances for parking and signage.
TOWN OF VIEW ROYAL COUNCIL REPORT
TO: Council
DATE: November 4, 2022
FROM: Stirling Scory, RPP, MCIP Community Planner
MEETING DATE: November 15, 2022
DEVELOPMENT PERMIT WITH VARIANCES 2022-05 – 1519 ADMIRALS ROAD
RECOMMENDATION:
THAT Development Permit 2022-05 be approved as per the report dated November 4, 2022 from the Community Planner titled “Development Permit with Variances DP 2022-05 – 1519 Admirals Road”;
AND THAT Development Permit 2022-05 include the following variances:
- variance to Section 4.6.2(c) of Zoning Bylaw No. 900, 2014 to locate an accessory structure in the front yard
- variance to Section 5.10 of Zoning Bylaw No. 900, 2014 to reduce the total number of loading spaces from 5 to 2
- variance to Section 5.10 of Zoning Bylaw No. 900, 2014 to reduce the total number of parking spaces from 283 spaces to 247 spaces
- variance to Section 6.7 of Sign Bylaw No. 950, 2018 to reduce the minimum vertical distance from grade a sign may be located from 2.4 m to 1.34 m
- variance to Section 6.7 of Sign Bylaw No. 950, 2018 to increase the maximum area of logo signs on a single wall face from 2 m² to 7.4 m²
- variance to Section 7.2(b) of Sign Bylaw No. 950, 2018 to increase the maximum character size from 45 cm to 137 cm.
AND FURTHER THAT Development Permit 2022-05 include the following conditions:
- a security deposit of $86,328.00 at 120% of the quoted landscape works ($71,940.00) be provided prior to issuance of a Building Permit
- a cash-in-lieu payment of $504,000.00 for a total of 42 parking spaces be provided prior to issuance of a building permit
- that a s. 219 covenant must be registered prior to issuance of Development Permit 2022-05, that specifies the landowner’s responsibility to develop an on site underground sewer attenuation system that will be designed to the satisfaction of the Director of Engineering.
PURPOSE:
To consider a development permit with variances application to permit the upgrade and expansion of the existing Canadian Tire store located at 1519 Admirals Road.
TIME CRITICAL:
The application is not time critical.
EXECUTIVE SUMMARY:
A commercial development permit application for form and character changes to the existing Canadian Tire store located at 1519 Admirals Road has been provided with the intent of updating and expanding the existing store by adding approximately 1978 m² of floor area for retail, warehouse, and garden centre uses. The proposed exterior changes to the building include replacement of exterior materials and new signage. The applicant is also proposing to realign the existing access off Old Island Highway, which results in the removal of parking on the north side of the building. The applicant has requested variances for parking and signage on the site.
The application also includes 30 new bicycle parking stalls, two new electric vehicle parking spaces, and a cash-in-lieu payment of $504,000 for 42 parking spaces.
BACKGROUND:
The property located at 1519 Admirals Road has a lot size of 20,749 m² and is presently occupied by multiple commercial establishments. The site is located in the Craigflower Neighbourhood Corridor. Craigflower Manor is north of the subject property, Songhees Nation is to the east, Nelson Square and Admirals Walk are to the south, and the Glentana residential neighbourhood, which consists of both detached and attached residences, is to the west.
The existing Canadian Tire store was originally built in 2000/01. Prior to construction, the site was used for low density single detached dwellings and service commercial, including a gas station located at the corner of Admirals and Old Island Highway.
The site was originally intended to be divided into three development sites: the Canadian Tire, the CRU1 site (Dairy Queen building), and a CRU2 site. The CRU2 site is currently undeveloped green space located at the corner of Old Island Highway and Admirals Road.
Development Proposal:
The proposal includes the expansion of the existing 6485 m² Canadian Tire store with the addition of approximately 1978 m² of retail and warehouse space, and a new garden centre (Attachment 1). The proposed changes require development of new parking spaces as the existing parking area will be used for the expansion of the building. The proposed new parking area is located in the previously identified CRU2 site (refer to Figure 2). There are no proposed changes to the existing CRU1 building.
Figure 1 – Existing Site Plan
Figure 2 – Proposed Site Plan
Summary of Changes:
The proposal was originally presented at Committee of the Whole on July 12, 2022 and Council requested additional information. In response to Council’s request, the applicant has provided the following updated information:
- building design details, including finishes and signage
- landscaping plan details with additional information on tree type and location
- updated parking details for vehicle, electric vehicle parking spaces, and bicycle parking spaces
Building Design
The proposed building design includes the addition of white EIFS panelling above the garage entrances, and black EIFS panelling and a new logo sign where the previous logo sign was located on the east elevation (south is referenced in the drawings). The existing metal panelling on the east elevation will remain and be painted grey. The proposal also adds a new full-length canopy to the front façade of the building for weather protection purposes and to add some visual interest. New fencing would be installed around the perimeter of the garden centre to match the existing black rod iron style fence. Details on the design of the building can be found in Attachments 2, 3, and 4.
Landscaping
The proposed building expansion requires the removal of eight trees (see Attachment 2) to permit the construction of a new driveway on the Old Island Highway frontage. Details of the existing site can be seen below in Figure 3. The applicant has verified that a combination of 10 new trees and cash-in-lieu will be provided as per the Tree Protection Bylaw No. 1069, 2022. The applicant's landscape plan (refer to Figure 4) and quote are provided for review (see Attachment 5 and 6). A Tree Permit will be required prior to the issuance of Building Permit.
Figure 3 - Tree Removal
Figure 4 - Landscape Plan
Parking
The proposed building expansion requires that the existing access to the site from Old Island Highway be changed (Attachment 2 and 7). New parking spaces have been proposed on the existing CRU2 site, which is currently a small undeveloped green space consisting of grass.
Under Section 5.10 of Zoning Bylaw No. 900, 2014, the proposed development is required to have 283 parking spaces. However, the current number of parking spaces on-site is 208. The applicant is proposing to provide 205 parking spaces.
Under the current parking regulations, the proposal would have a net deficiency of 78 parking spaces. The owner of land may pay in lieu of the required parking a sum of $12,000 for each parking space up to a total of 15% of the total required parking, in accordance with Section 5.9.1 of Zoning Bylaw No. 900, 2014. The applicant is willing to pay 15%, or 42 parking spaces, for a total contribution of $504,000. A cash-in-lieu contribution reduces the required number of parking spaces from 283 to 247; and therefore, the parking shortfall would be 36 parking spaces. There will be a net increase of two electric vehicle parking spaces and 30 bicycle parking spaces.
A parking study prepared by McElhanney (Attachment 8) determines that current parking demand on the site is 62% during weekday peak hours and 66% during weekend peak hours. A parking lot is considered “effectively full” when the parking lot reaches a utilization rate of 85%. The parking surveys conducted during the summer months, determined that the existing parking demand is in the range of 24 to 137 parking spaces. The report also forecasts possible parking demand in the future once the development is completed, and states that the peak weekday demand could reach 88% utilization, and a 102% utilization rate on weekends. According to the parking study, if the site had the required amount of parking then it is projected that peak utilization would fall to a peak of 60% for weekday and 70% for weekend use.
Servicing Requirements
The applicant has provided a servicing report and grading plan (attachment 9 & 10) for this application. Prior to the issuance of a building permit, the applicant must confirm and submit a final stormwater management plan to the satisfaction of the Director of Engineering. In addition, the subject property is in an area that has known sanitary sewer capacity issues; therefore, the applicant will be required to provide on-site attenuation infrastructure. The details of this infrastructure are to be confirmed through a site servicing agreement to the satisfaction of the Director of Engineering.
DISCUSSION:
Key considerations in review of the proposal include:
- How does the proposal address the relevant development permit guidelines?
- How does the proposal comply with the zoning requirements and are the requested variances supportable?
1. Development Permit Area Guidelines:
Design Character
- The main entrance is clearly visible and identifiable for pedestrians.
- A large single wall face is avoided with the use of glazing, use of contrasting building materials, and signage.
Siting, Height and Massing
- Building is positioned to maximize space on the property and reduce visual impact to surrounding properties.
- Building articulation of the front façade reduces the appearance of a single wall face from the street-front.
Landscaping
- Proposed landscaping and pergola to be erected in former green space area, providing opportunity for on-site social space.
Parking, Access and Circulation
- New parking is provided away from main access route, which may improve internal access.
- New parking design does not disrupt existing pedestrian pathway from Admirals Road to Canadian Tire store front.
2. Zoning Bylaw Review
| Summary of Zoning Requirements and Variances | Required/Permitted | Existing | Proposed |
|---|---|---|---|
| Lot Density | |||
| Floor Space Ratio, Base Density | 0.6:1 | 0.30:1 | 0.36:1 |
| Lot Coverage, maximum | 50% | 29.8 % | 39.9% |
| Impermeable Surface Coverage, maximum | 80% | 78.2 % | 79.8% |
| Building Size | |||
| Building Height, maximum | 9 m | 8.4 m | 8.4 m |
| Accessory Building Height, maximum | 4.5 m | n/a | 2.5 m |
| Siting of Principle Buildings and Other Structures | |||
| Front Lot Line Setback, minimum | 7.5 m | >7.5 m | >7.5m |
| Rear Lot Line Setback, minimum | 7.5 m | 7.5 m | 7.5 m |
| Flanking Lot Line Setback, minimum | 3 m | 7.5 m | 7.5 m |
| Siting of Accessory Buildings and Other Structures | |||
| All lot line, minimum | 1.2 m | n/a | 1.9 m |
| Siting of an accessory structure | Not be located within the front or flanking yard | n/a | Front yard |
| Summary of Parking Requirements and Variances | Required/Permitted | Existing | Proposed |
|---|---|---|---|
| Commercial Parking Space Requirements | 283 Spaces | 208 | 205 |
| Loading Requirements | 7 | 2 | 2* |
| Accessible Vehicle Parking | 3 | 3 | 4 |
| Electric Vehicle Parking | 2 | 0 | 2 |
| Bicycle Parking | Class 1: 9, Class 2: 16 | Class 1: 0, Class 2: 0 | Class 1: 10, Class 2: 20 |
Note: * Signifies that a variance is required. Further details below.
Variance Review:
The applicant has requested seven variances, which are as follows:
- locate an accessory structure in the front yard
- reduce the total number of loading spaces from 5 to 2
- reduce the total number of parking spaces from 283 spaces to 247 spaces
- reduce the minimum vertical distance from grade a sign may be located from 2.4 m to 1.34 m
- increase the maximum area of logo signs on a single wall face from 2 m² to 7.4 m²
- increase the maximum character size from 45 cm to 137 cm.
Staff are aware that the notice provided had made note that a variance to the number of logo signs from 1 to 2 was requested; however, further review has determined this is not required.
Variance 1: Accessory Structure
The variance to permit an accessory structure in the front yard as shown in Figure 5 is supportable because the proposed pergola is only 2.4 m tall and will be screened by existing and proposed landscaping. Furthermore, it will provide functional outdoor amenity space on-site.
Figure 5 - Accessory Structure
Variance 2: Loading Spaces
The variance to the required number of loading spaces can be supported because requiring additional loading spaces would result in a redesign of the existing parking lot and further reduce the total number of parking spaces.
Variance 3: Parking Spaces
The variance to reduce the total number of parking spaces can be supported because the applicant’s Parking Study (Attachment 8) confirms that the existing parking conditions project a peak utilization rate of 88% during weekdays and 102% on weekends. Notwithstanding a higher parking utilization rate on weekends, the report concludes that 205 spaces should be sufficient to meet existing and anticipated parking demands.
Variance 4: Sign Height Reduction
The variance to reduce the height of three signs on the front façade (east elevation) of the Canadian Tire Building can be supported because the signs are used to inform pedestrians and shoppers of the different services available. They also serve as a form of wayfinding and navigation of the storefront and the separate entrances available. Reducing the height of the signs provides functionality. An image of the proposed signage may be reviewed below in Figure 6.
Figure 6 - Front Facade Pedestrian Signage
Variance 5: Logo Sign Area Increase
The variance to increase the maximum area of a single logo sign on the front façade of the building (east elevation) can be supported because the sign is in keeping with the existing logo sign and does not cause any hardship or negative impact to surrounding land uses. A comparison of the existing and proposed signage is shown below in Figures 7 and 8.
Figure 7 - Existing Signage
Figure 8 - Proposed Signage
Variance 6: Increase to the Maximum Letter Size of Sign
The variance to increase the maximum letter size of a wall mounted sign, to be located on the front façade of the building, can be supported because the sign is in keeping with the existing signage used and the replacement and update of this signage does not cause any hardship or negative impact to be surrounding land uses.
SUSTAINABILITY/CLIMATE CHANGE IMPACTS:
The proposed development has no significant sustainability or climate change impacts.
FINANCIAL IMPLICATIONS:
A Cash in Lieu of Parking Reserve is established for the specified purpose of depositing and using funds for the following purpose: a. Providing off-street parking spaces b. Transportation infrastructure that supports walking, bicycling, public transit or other alternative forms of transportation
The proposed development has no significant negative financial impacts.
ALTERNATIVES:
THAT Development Permit 2022-05 be rejected as per the report dated November 4, 2022 from the Community Planner titled “Development Permit with Variances DP 2022-05 – 1519 Admirals Road”.
Should Council decide to reject the proposal, the applicant will be notified and the file will be closed.
CONCLUSION:
The proposal to permit the construction of an approximately 1978 m² of additional retail, warehouse, and garden centre space and associated variances to the on-site parking and building signage, can be supported. The exterior changes to the building comply with the applicable design guidelines. It is recommended for Council’s consideration that Development Permit 2022-05 be approved with conditions.
| CONCURRENCE: | Initials | Comments |
|---|---|---|
| Chief Administrative Officer | KA | Approval is recommended. |
| REVIEWED BY: | Initials |
|---|---|
| Director of Corporate Administration | |
| Director of Finance | |
| Director of Development Services | LT |
| Director of Engineering and Parks | IL |
| Director of Protective Services |
ATTACHMENTS:
- Project Rationale Letter (McElhanney, June 2, 2022)
- Site Plan, Architectural Drawings, and Signage (MGBA, October 18, 2022)
- Context Studies (MGBA, May 16, 2022)
- Digital Material Board (MGBA, August 5, 2022)
- Conceptual Landscape Plan (McElhanney, October 21, 2022)
- Landscape Cost (McElhanney, October 21, 2022)
- Fire Truck Turning Plan (McElhanney, August 2, 2022)
- Parking Study (McElhanney, November 10, 2022)
- Site Servicing Report (McElhanney, May 24, 2022)
- Conceptual Grading Plan (McElhanney, October 27, 2022)
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