Development Variance Application - 17 Eaton Avenue
Application for a Development Variance Permit to allow the partial enclosure of an existing permitted structure.
WESTURBAN DEVELOPMENTS LTD. 111-2036 South Island Hwy, Campbell River, BC V9W 2C8 Phone: (250)-914-8485 Fax: (250) 914-8490
August 11, 2020
Planning Department Town of View Royal 45 View Royal Avenue Victoria, BC, V9B 1A6
Dear Mayor and Members of Council,
Re: Rezoning Application for 9 Erskine Lane
The enclosed rezoning application is being submitted by WestUrban Developments Ltd. in order to amend the zoning on the property located at 9 Erskine Lane from Rural (A-1) to a Comprehensive Development (CD) zone and to permit the development of multi-unit, purpose-built rental apartment buildings.
WestUrban Development is committed to building what is shown in our rezoning application. To demonstrate this commitment, on August 10, 2020 we offered to submit our Development Permit (DP) application at the same time as our rezoning application so both could be reviewed concurrently. View Royal staff suggested we wait until we are able to present this new rezoning application to Council’s Committee of the Whole before submitting our DP application. Once there is general agreement to proceed to first and second reading, then we will be able to submit our DP application package.
This is a new application for 9 Erskine Lane with significant changes to our original proposal that we believe are in alignment with feedback we received from Council and the public. WestUrban Developments is pleased to submit this application as we believe we have addressed all the concerns that were raised with our previous application. Please see below to understand the significant changes in this new application submission.
New Development Proposal:
WestUrban Developments Ltd. started fresh on a new application following Council’s July 21 meeting where our previous application did not move forward. We have been hard at work revising and significantly changing our proposal for 9 Erskine Lane to better align with Council’s feedback, public sentiment, and the goals, objectives and policies of the Official Community Plan. Significant changes to the development proposal are captured in the following table.
9 ERSKINE LANE PROPOSAL CHANGES
| Topic/Issue | Original Submission | New Submission |
|---|---|---|
| Urban Forest & Tree Retention | The parking lots and surface parking in the original submission covered 65% and 67% of the land for Lot A and Lot B respectively. The adjoining underground parkades not only meant the existing trees would need to be removed, but replanting of trees would not be possible due to the man-made structure underneath. | The new underground parking lots will be 2-storeys and have been placed under the proposed building footprints. With the remaining access ramps and limited surface parking, the lot coverage is now only 44% for Lot A and 34% for Lot B. This additional space will allow for 40% of the urban forest to be untouched. Also, we will replant over 250 trees. |
| Parking Locations | The original development included two 1 level parking lots of underground parking that connected the two buildings on Lot A and Lot B. | The new development includes 4-2 level parking lots for the proposed buildings; two on Lot A and two on Lot B. The lots are located under the building to maximize the amount of undisturbed land onsite. |
| Building Height & Lot Coverage | The original submission proposed two 5-storey buildings and two 6-storey buildings. These buildings covered only 30% and 22% of the lot (the building footprint). | The new submission proposes four 5-storey buildings. These buildings still cover only 30% and 22% of the lot (the building footprint). The reduced height will allow the buildings on lot B to transition to the neighboring development on 7 Erskine Lane. |
| Density | The original submission included a total of 372 units on Lot A and B. | Since we are reducing the height of the buildings on Lot B, the number of units will be reduced by 36 (for a total of 336). This reduction in units will help to reduce traffic impacts and height. Proceeding with this development will help to address a significant need for rental units in View Royal, as detailed in the Housing Needs Assessment Report and Housing Capacity Assessment Report from July 2020. |
| Building Locations | The two lots had building placement where one building was parallel to the CRD right of way and the other building was parallel to the parcel exterior boundary. | The proposed submission shifts the building on Lot A to have the buildings for an ‘L’. This not only makes the site access more efficient, but allows for more trees to be conserved. The building on Lot B, parallel to the 7 Erskine lot, has been shifted closer to the other proposed building on Lot B. This not only increases the site access efficiency, but also provides more setback area and privacy for the 7 Erskine Lane development. This also allows more trees in this area to be maintained. |
| Landscaping & Site Amenities | We had included extensive landscaping and adventure trails. | We will still provide extensive landscaping, outside of the natural urban forest areas. We have also included a play structure that can be used for residents. If View Royal would prefer this structure to be accessible to the public, we can donate the structure and it could be installed on Game Road, which is a nearby town owned lot. |
| Infrastructure Upgrades | We had planned to build the sidewalk along Erskine Lane, dedicate the land to widen Erskine Lane and construct or pay for the required intersection upgrades along Watkiss Way. | We now propose to build the sidewalks along both Erskine Lane and Watkiss Way, dedicate the land to widen Erskine Lane, build the bus pad/stop, and construct the roundabout/traffic circle at Watkiss Way/Erskine Lane. |
| Building Amenities | WestUrban originally proposed EV charging stations, a 10 -year rental covenant with the municipality, shared bikes and a diverse rental unit mix – Studios, 1-bedrooms, 2-bedrooms and 3-bedrooms. | We now propose full pre-wiring for EV charging stations, a 20-year rental covenant with the municipality, shared bikes, 4 carshare cars (1 per building), and a diverse rental unit mix – studio, 1-bedrooms, 2-bedrooms and 3-bedrooms. |
Compliance with the Official Community Plan:
The subject property is currently designated “Mixed Residential (M-R)”, supporting for up to four storeys and a Floor Space Ratio (FSR) of 1.6. Further, the subject property is located within “Neighbourhood Centre” area of the Hospital Neighbourhood that supports higher density housing that benefits from and supports the Victoria General Hospital. The OCP supports the development of higher density housing types and encourages the development of rental accommodation with emphasis on projects that support a variety of key goals, objectives and policies. Below is a table summarizing how WestUrban Developments has addressed various policies in the OCP through our new proposal.
COMPLIANCE WITH THE OFFICIAL COMMUNITY PLAN
| Policy Area | Policy | How Proposal Addresses |
|---|---|---|
| LAND USE AND URBAN DESIGN | Policy LU1.1 Neighbourhood Centres: Create a network of neighbourhood-serving, mixed-use centres. Encourage the majority of new and infill residential and commercial growth into these areas to create compact, walkable and cycling-friendly activity hubs. | The proposed development is located within the Hospital Neighbourhood Centre. |
| Policy LU1.2 Connected Centres: Ensure each neighbourhood centre is served and connected to the surrounding area by a range of transportation choices including transit, and bike and pedestrian pathways. Similarly, ensure that residential densities at neighbourhood centres increase the viability of transit, bike and pedestrian travel modes. | The 336 residential units proposed for the subject site significantly increases the viability of transit, bike and pedestrian travel modes. | |
| Policy LU1.4 Diversity of Forms and Uses: Support a variety of residential forms and uses to encourage socio-economic diversity, and provide for the diverse needs of youth, families and an aging population. | The proposal is for purpose-built rental housing in a variety of types including studio, 1-, 2- and 3-bedroom units that appeals to diverse demographics. | |
| Policy LU4.2 Support Walking, Cycling and Transit: Encourage higher density 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. | The proposal is a higher density purpose-built rental development adjacent to transit, provides walking and cycling and proposes to reduce parking. | |
| Policy LU4.4 High-quality Development: Promote high-quality design, planning, construction and maintenance of private development projects. | WestUrban Developments builds high-quality, well designed buildings with attention to detail. | |
| Policy LU4.13 Sustainable Structures and Buildings: Encourage the design and construction of sustainable and environmentally responsible structures and buildings that reduce demand for services, create less waste, make efficient use of resources and create healthier living environments. | WestUrban constructs all buildings to a minimum of a Step 2 standard under the current Step Code. | |
| Policy LU11.2 Hospital Neighbourhood Centre: Explore possibilities for developing a transit-oriented Hospital Neighbourhood Centre on the land immediately west of the Victoria General Hospital and abutting the planned regional rapid transit stop. Development in the Hospital Neighbourhood Centre should be carefully reviewed to consider the following: ▪ Uses and development forms that benefit from and support the Victoria General Hospital. ▪ Appropriate land uses and densities for supporting transit use. ▪ Location and design of parking facilities to minimize surface parking and promote a safe and enjoyable pedestrian environment. |
The proposal is to create a higher-density rental development within the Hospital Neighbourhood Centre that will benefit the Victoria General Hospital and the greater community. The proposed densities and rental occupant demographics support transit use. The compact development form also respects the current urban forest on the property and maximizing the retention of trees. All parking is proposed to be under the buildings on the site to minimize site disturbance and retain the maximum number of trees possible. The remaining trees will foster a sense of place for local residents through its distinct natural feel. | |
| ENVIRONMENT, ENERGY AND CLIMATE CHANGE | Policy NE1.6 Native Trees and Vegetation: Encourage the protection of native trees and vegetation in natural and developed areas. | The site has been redesigned to move parking under the proposed buildings to maximize the retention of native trees and vegetation on the subject site. |
| Policy NE1.7 Urban Forest: Maintain a healthy urban forest by encouraging the retention of trees and ecological features, promoting tree coverage expansion and enhancing wildlife biodiversity. | The site will retain a significant proportion of the urban forest through redesigning the proposed development. This will enhance wildlife diversity. | |
| Policy NE4.6 Climate Change Impacts: Consider the impacts of climate change as a key determinant in community planning and land use management decisions. Consider if mitigation has been adequately addressed in subdivision and development proposals, and if further measures are required. | By redesigning the site, the proposed development will help mitigate the impacts of climate changes by maintaining a significant portion of the urban forest onsite. | |
| TRANSPORTATION AND MOBILITY | Policy TR1.2 Pedestrian Improvements: Enhance pedestrian access and movement through the development of a system of sidewalks, multi-use trails and pedestrian paths integrated with public transit in all areas. | We are proposing to build the sidewalks along both Erskine Lane and Watkiss Way to enhance pedestrian access along the perimeter of the site. We are also proposing to build an accessible pathway onsite to enhance pedestrian access. |
| Policy TR1.3 Cycling Infrastructure: Promote cycling for commuting, personal transport and recreation purposes through improvements to infrastructure and facilities. The inclusion of bicycle parking areas and facilities shall be encouraged at multi-family residential development sites. | Providing shared bikes and secured bike storage for future resident to promote cycling and a healthy lifestyle. | |
| Policy TR1.4 Transit Services: Promote transit use as a viable alternative to car travel. | Providing all future residents with free bus passes for 1-year to promote the use of transit. A bus stop is located on Watkiss adjacent to the site. | |
| Policy TR1.8 Transportation Demand Management: Encourage Transportation Demand Management (TDM) measures for new developments. TDM plans and strategies should include education, incentives and disincentives, and travel options to support walking, cycling, ridesharing and transit, and reduce single occupancy vehicle trips and private car ownership. Consider decreasing parking requirements for development proposals that incorporate site-specific TDM strategies and that can demonstrate a decrease in the demand for car travel and an increase in the use of other travel options. | The proposed development is integrating a variety of TDM measures including shared bicycles, secure bicycle parking, carpooling, carshare and providing residents with a free transit pass for a year. The site is also located within walking distance to a major employer and neighborhood commercial center. | |
| Policy TR3.1 Transportation Master Plan: Support the safe and efficient movement of vehicles, cyclists and pedestrians throughout View Royal in accordance with the priorities and strategies established in the Transportation Master Plan. | We are proposing to construct the roundabout/traffic circle at Watkiss Way and Erskine Lane to enhance vehicle and pedestrian movement. The sidewalks along Watkiss Way and Erskine Lane will also be constructed and the road along Erskine Lane will be widened to ensure safe traffic flow. | |
| Policy TR3.6 Traffic Calming: Incorporate traffic calming techniques and controls in road design to ensure safe and non-congested roadways, while facilitating ease of movement for pedestrians, vehicles and bicycles. | (Combined with TR3.1 above) | |
| Policy TR3.11 Encourage Environmentally Friendly Transportation: Support more environmentally friendly vehicular alternatives to single occupancy vehicles and private car ownership. This includes encouraging vanpooling, carpooling and ridesharing; car co-ops; and high efficiency or clean energy vehicles. | Purchasing 4 vehicles (1 per building) for car share to promote non-vehicle ownership and reduce vehicle trips. | |
| Policy TR3.12 Electric Vehicle Infrastructure: Encourage new developments to install infrastructure that will serve plug-in electric or hybrid vehicles. | Installing full pre-wiring for all parking spaces and 5 spaces per building for electric charging stations to promote alternative fuel use. | |
| HOUSING | 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 apartments, and other typologies that meet the housing needs of current and future residents. | The rental vacancy rate is currently below 1%. The proposed development offers a variety of unit types in four, purpose-built, rental buildings that will help serve the needs of current and future residents. |
| Policy HS1.7 Multi-Unit Housing: Support the development of multi-unit market housing in conjunction with the provision of public amenities and park space in appropriate locations. | WestUrban is proposing to integrate a playground into this multi-unit rental development to meet the needs of future residents. Extensive landscaping with community gardens, open spaces, nature trail and a healing garden will be provided. | |
| Policy HS1.10 Affordability Through Design: Promote “affordability through design” by encouraging housing forms that are less expensive to build and maintain such as apartments. | The proposed development seeks to maximize the construction of high-quality rental buildings in an apartment form. |
Zoning Considerations:
The development application proposes a zoning amendment to a Comprehensive Development (CD) zone. A CD zone would be ideal as the site is quite large and the proposed development contains unique elements that do not fit under any existing zone. A CD zone would also provide more definition and certainty around what will ultimately be developed on the subject site. The site has been designed in a way to minimize the building and parking area impacts on the existing urban forest. To accomplish this, the thought is to increase the height of the buildings to 5 storeys (15 m) in order to reduce the building footprint. The parking will also be placed under the buildings’ footprints to protect and retain the maximum number of mature trees on the site and around the perimeter. The other thought is to slightly reduce the parking requirements on the site to minimize the impact on the trees and to help encourage alternative modes of transportation such as walking cycling, transit and car share. This slight reduction in parking is supported by OCP policies (Policy LU4.2, Policy TR1.8), by lower average car ownership by typical renter demographics, and by the access to transit (Watkiss Way bus stop), and shopping and employment in proximity to the subject site. The buildings will be setback from the road to preserve the mature vegetation along the road. The vegetation will also provide screening for the proposed buildings from the road. The full summary of the unit types is provided on Sheet PR2 (Schematic Plan).
Development Permit Design Considerations:
Even though we are not submitting a Development Permit application at this time, WestUrban wanted to show how the proposed development meets all of the design guidelines of the Mixed Residential Development Permit Area of the Official Community Plan as shown in Attachment 1. The proposal addresses all of the elements – Design Character; Public & Pedestrian Realm; Siting, Design and Massing; Parking, Access and Circulation; Lighting; Safety; Other – in significant ways to ensure the development is successful. The buildings are proposed to sit on top of the underground parkade to minimize site disturbance and retain the maximum number of trees. This will contribute to the community-wide urban forest and will result with the development situated in a park-like setting. WestUrban also recognizes the prominence of the site and has adjusted the location of the buildings onsite to ensure there is visual interest within the site and to the buildings. Further, WestUrban builds high-quality, well designed buildings that are sensitive to the local context and integrates a “West Coast” architectural style and feel.
Benefits of the Proposal:
WestUrban Developments has done extensive background research related to this development proposal. The following are significant benefits for the Town of View Royal:
- We propose to install sidewalks along the Erskine Lane and Watkiss Way development frontage