Date: November 3, 2017 File No

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1 Council Agenda Information Regular Council November 14, 2017 Date: File No Submitted by: Subject: Development Services Department Planning Division Official Community Plan Amendment and Rezoning Application for St. Johns Street Purpose / Introduction To present an Official Community Plan amendment and rezoning application for a proposed 142-unit rental apartment project at St. Johns Street for Council s consideration. Recommended Resolutions THAT City of Port Moody Official Community Plan Bylaw No. 2014, No. 2955, Amendment Bylaw No. 9, 2017, No ( St. Johns Street) be read a first time as recommended in the report dated from Development Services Department Planning Division regarding Official Community Plan Amendment and Rezoning Application for St. Johns Street. THAT Bylaw No be read a second time; AND THAT Bylaw No be referred to a Public Hearing to be held on November 28, 2017 at City Hall, 100 Newport Drive, Port Moody. THAT City of Port Moody Zoning Bylaw, 1988, No. 1890, Amendment Bylaw No. 240, 2017, No ( St. Johns Street) be read a first time. THAT Bylaw No be read a second time; AND THAT Bylaw No be referred to a Public Hearing to be held on Tuesday, November 28, 2017 at City Hall, 100 Newport Drive, Port Moody. THAT City of Port Moody Housing Agreement Bylaw, 2017, No ( St. Johns Street) be read a first time. THAT Bylaw No be read a second time. Executive Summary Woodbridge Properties has applied to redevelop an existing commercial lot at St. Johns Street to enable the development of a 142-unit rental apartment project. The subject property is designated Mixed Use Moody Centre in the Official Community Plan (OCP) and is zoned Comprehensive Development Zone 55 (CD55). Implementation of the EDMS#

2 proposal requires an amendment to the OCP to change the land use designation to Multi-Family Residential, rezoning of the site to a new Comprehensive Development Zone 67 (CD67), and issuance of a development permit. A Housing Agreement Bylaw is also proposed to ensure that the project remains rental housing for a minimum period of 20 years. The application was reviewed by the Advisory Design Panel on July 6, 2017 and the Panel supported the application subject to amendments to the satisfaction of staff. The applicant has amended the project to address the key issues identified by the Panel. A Community Information Meeting was held on July 26, The meeting was attended by 17 residents and there was support for the project, although there were concerns over the perceived traffic congestion on Moray Place. The application was considered by the Community Planning Advisory Committee (CPAC) on September 5, 2017, at which time the application was supported, but staff were asked to report back on site access and egress, measures to mitigate traffic congestion, and a transit pass subsidy. Background Woodbridge Properties has submitted an OCP amendment and rezoning application for the property located at St. Johns Street. The application proposes the construction of a 142-unit rental apartment project with underground parking. An application fact sheet is included as Attachment 1. The application was reviewed by the CPAC on September 5, 2017 at which time, the following recommendation was passed: CPAC17/029 to 030 THAT the Official Community Plan Amendment and Rezoning Application be supported as presented in the report dated August 18, 2017 from Development Services Department Planning Division regarding Official Community Plan Amendment and Rezoning Application St. Johns Street ; AND THAT staff report back with details on the transit pass subsidy and how access and egress and traffic congestion issues will be mitigated. This report addresses the issues identified in the CPAC motion. Discussion Site and Conditions The subject site consists of a single commercial property, zoned CD55, located on the south side of St. Johns Street as shown on the Location Plan (Figure 1). The property is 345m 2 (36,006.46ft 2 ) in size and a portion of the building is used as a real estate office. The remainder of the building is vacant. The site slopes approximately 3m (10ft) from south to north. EDMS #

3 Figure 1 Location Plan Official Community Plan As shown on Figure 2, the Official Community Plan (OCP) designates the subject property as Mixed Use Moody Centre which is intended to accommodate a variety of retail, service, office, and stand-alone commercial activities. Multi-family residential uses will also be permitted in association with commercial uses. A range of building heights are permitted up to a maximum of six storeys. The applicant has expressed concern that it may be difficult to lease commercial space in this location and did not wish to have unoccupied storefronts on St. Johns Street and is proposing a residential-only project. Therefore, implementation would require an amendment to the OCP to change the land use designation to Multi-Family Residential. Figure 2 OCP Land Use Designations EDMS #

4 The site is included within Development Permit Area 1: Neighbourhood Residential, which is intended to regulate the form and character of multi-family residential uses. The project has been reviewed against the applicable development permit area design guidelines. The site is also included within Development Permit Area 5: Hazardous Conditions due to the potential for soil liquefaction during a seismic event. A geotechnical assessment has been provided and accepted by staff. Zoning As illustrated on Figure 3, the subject property is presently zoned Comprehensive Development Zone 55 (CD55), which permits a range of community commercial uses. The surrounding properties consist of a Dairy Queen restaurant (C5) to the east, a property used for religious purposes (P2) to the west, developed multi-family (RM1 and RM3) properties to the south and southwest, and commercial properties, primarily used for automobile sales/servicing (C5), to the north. Figure 3 Existing Zoning Analysis Development Proposal The proposed project is an L-shaped, six-storey apartment building consisting of 142 units as shown on the Site Plan (Figure 4). Parking is provided underground with access off Moray Place. EDMS #

5 The project incorporates a range of unit types as summarized in the following table: Unit Type Number of Units Unit Size Studios m 2 (512.5ft 2 ) 1 bedroom + den m 2-69m 2 (631.5ft 2-742ft 2 ) 2 bedroom + den 72 69m m 2 (742ft ft 2 ) 3 bedroom m 2 (852.6ft 2 ) Total 142 The total gross floor area is 10,713.3m 2 (115,317.4ft 2 ), which results in a Floor Area Ratio of 3.2. The lot coverage is approximately 59% and the building is 18.4m (60.4ft) in height measured to the highest point. Figure 4 Site Plan The building setbacks, measured to the principal building face vary due to the building s shape and articulated elevations, but are generally as follows: West 2.6m (8.5ft) to 6.3m (20.7ft) East 2m (6.6ft) to 17.7m (58ft) South 5m (16.5ft) to 7m (23ft) North 4.5m (14.8ft) to 6m (19.7ft) EDMS #

6 The rendering (Figure 5) illustrates the general massing and form of the proposed building as viewed from St. Johns Street. Figure 5 North (St. Johns Street) Elevation Parking Based on the Zoning Bylaw requirement of 1.5 spaces per unit plus 0.2 spaces per unit for visitor parking, a total of 241 spaces would be required consisting of 213 spaces for the residential units and 28 visitor spaces. Given that the site is approximately 600m from the Inlet Centre station, the availability of bus transit service on St. Johns Street, and the fact that rental residential projects typically have a lower parking demand, the applicant has proposed to provide 151 resident parking spaces and 29 visitor spaces for an overall total of 180 spaces. This represents a ratio of 1.26 spaces per unit. Metro Vancouver has recently undertaken a study of vehicle ownership in residential projects throughout the region in the vicinity of SkyTrain stations. Based on the results of the analysis, the study identified parking ratios based on the number of bedrooms in a unit and suggested an average of 1.28 spaces per unit as being adequate. This study was not specific to rental housing projects, but it did recognize that rental apartments typically experience a lower vehicle ownership rate, so the suggested average rate of 1.28 spaces per unit may be conservative when applied to rental projects. The suggested average was also exclusive of visitor parking demands, but the study recommended an additional 0.1 spaces per unit. Applying the average of 1.28 spaces per unit plus 0.1 spaces per unit for visitor parking, this project would result in a requirement for 196 spaces; 180 spaces are proposed. EDMS #

7 In order to offset this reduction and, in addition to the transportation demand management strategies discussed later in this report, the project includes: a storage locker sized to accommodate bicycles for each unit; and two on-site car share spaces on Moray Place, which could be used by building residents or the general public. As the parking for this project would be unbundled and rented separately from the units, if there are unsubscribed resident spaces and there is a demand for more car share spaces for building residents, the developer could convert some unused spaces to additional car share spaces. Landscaping The proposed Landscape Plan (Figure 6) is based primarily on the provision of perimeter tree and shrub planting which results in a significant improvement to the surrounding public realm along St. Johns Street and Moray Place. Figure 6 Landscape Plan An on-site children s amenity space, approximately 96.3m 2 (1,036ft 2 ) in size is located on the east side of the site which provides a variety of play opportunities and seating. An interior amenity space, approximately 72m 2 (776ft 2 ) in area, is also provided. Each ground floor unit EDMS #

8 has a generous patio of at least 17m 2 (183ft 2 ). The upper floor units, excluding the studio suites, have balconies which are approximately 4.6m 2 (48ft 2 ), in size, consistent with the development permit area guidelines. Copies of selected architectural and landscape drawings illustrating the project are included as Attachment 2. Traffic Impact Assessment (TIA) In response to the direction from CPAC, the applicant s traffic consultant has provided a report which: updates expected background and future traffic conditions, taking into account the subject project and the potential redevelopment of the Dairy Queen site; examines the performance of the St. Johns Street/Moray Street intersection; identifies potential safety enhancements at the Moray Street/Moray Place intersection; comments on the provision of driveway access on St. Johns Street; and identifies potential transportation demand management strategies. In order to determine the impacts of additional traffic on the St. Johns Street/Moray Street intersection, the consultant updated both the current and future (2027) expected volumes by including traffic arising from a potential redevelopment of the Dairy Queen site at 3141 St. Johns Street. This would include retention of the existing restaurant with a residential component similar in form and density to that proposed in the subject application. Based on the analysis, the consultant has estimated that both projects would add in total approximately 64 total trips in the morning peak hour and 82 total trips in the afternoon peak hour. These volumes equate to about 1 total vehicle trips per minute in the morning peak hour and about 1.4 total trips in the afternoon peak hour. In order to address the impacts of the traffic generated by both the subject proposal and the redevelopment of the Dairy Queen site, the consultant recommended several improvements to the intersections at St. Johns Street/Moray Street and at Moray Place/Moray Street. These measures are illustrated on Figure 7 Proposed Traffic Improvements and include: Optimizing traffic signal timing at St. Johns Street/Moray Street. At the present time, the existing signal has a stop condition for the northbound to eastbound right turn movement. Optimizing the signal timing would provide a green arrow indication enabling the northbound to eastbound movement to occur at the same time as the westbound to southbound left turn protected green arrow movement. Therefore, the stop condition would not be required when the right turn green arrow is active. According to traffic signal modeling completed as part of the TIA report, this would reduce northbound queue storage lengths on Moray Street; however, the queue lengths in the peak PM hour will extend past Moray Place due to volumes and tight intersection spacing; Installing signage on Moray Street to keep the intersection at Moray Place clear; and EDMS #

9 Trimming the existing vegetation on the west side of Moray Street, south of Moray Place to increase visibility and improve vehicle safety. Engineering staff have estimated that the cost of these improvements, including interim street light improvements at the St. Johns Street and Moray Street intersection, to be approximately $20,000 and those costs would be borne by the developer. Figure 7 Proposed Traffic Improvements At the CPAC meeting, staff were asked about the provision of a driveway access on St. Johns Street. As St. Johns Street is envisioned as a pedestrian and bicycle friendly, mixed-use corridor, the OCP includes a policy that the City shall reduce the number of driveways on arterial and collector corridors such as Ioco Road and St. Johns Street to improve road safety and mobility, which augments other existing policies relating to the provision of safe pedestrian and cycling routes and improved pedestrian environments. Also, this would be a right-in, right-out driveway, which does not provide appropriate access/egress. Therefore, staff do not support a new access driveway off St. Johns Street. In the September 5, 2017 CPAC report, it was noted that the traffic consultant suggested that a transit pass subsidy be provided to new residents as a way to incentivize transit usage to augment the provision of bicycle parking spaces and two car-share spaces as measures to off-set the proposed parking variance. The consultant suggested that this subsidy could consist EDMS #

10 of a six-month, two-zone pass. In response to the CPAC motion, staff met with the applicant to discuss this possible strategy and it was concluded that this measure may not be equitable as some residents may only travel one zone while others may travel more than two zones, and the costs of the pass would be passed on to renters. As an alternative to a transit pass subsidy, the traffic consultant recommended several transportation demand management measures to reduce the need for car ownership and incentivize transit usage by new renters in the project, including: the provision of a $50 subsidy for new residents who sign up for the car-share program; and the provision of marketing materials for residents including information about local transit services, pedestrian/cycling routes, car pooling, and car-sharing services. In addition to these measures, the developer has agreed to provide one compass card preloaded with a $100 credit for each unit at the time the units are initially rented as a way to further incentivize transit usage. The total cost to the developer of this initiative will be $14,200. The overall objective of these transportation demand management strategies is to implement practical measures to make walking, cycling, and transit preferable to driving. To conclude, the existing St. Johns Street/Moray Street intersection operates above capacity at the present time and will continue to do so in the future. The existing northbound right-turn queue length will continue, although, with the introduction of changes to the intersection signal timing, the queue length can be reduced. The proposed signage and trimming of existing vegetation, will increase visibility and improve the safety for vehicles wishing to enter and exit Moray Place. Staff are also supportive of the proposed transportation demand management strategies to incentivize transit usage and off-set the parking variance proposed, and if the project proceeds, a covenant will be required to ensure these measures are implemented. Development Permit Design Guidelines The project has generally responded to the applicable Development Permit Area design guidelines, including: the use of durable building materials; façade articulation and a varied colour scheme; provision of a usable children s play area with seating; transition to the lower density multi-family use to the south; perimeter landscape buffering; the provision and size of outdoor patios/balconies; and the location of access to the underground parking. EDMS #

11 Development Permit for Hazardous Conditions In addition to the Development Permit for the Form and Character of Development, a Development Permit for Hazardous Conditions would also be required, due to the potential for soil liquefaction that may occur during a seismic event. Based on a geotechnical assessment, no soils prone to liquefaction were identified. However, the report makes recommendations for excavation and foundation design and drainage to address potential seismic issues. The report would be registered as a covenant on title to ensure the recommendations are adhered to if the project proceeds. If the OCP amendment and rezoning bylaws are supported, a separate report on the Development Permit will be provided for Council s consideration at the time of bylaw adoption. Advisory Design Panel The proposal was reviewed by the City s Advisory Design Panel on July 6, Following the discussion, the following recommendation was passed: THAT the project be accepted subject to the applicant addressing the following items to the satisfaction of staff: stairwell materials; revising the design of the exterior amenity space; replacing the bike rack with a more appropriate design; relocating the amenity room closer to the front of the building; shortening the long halls; increasing the number of handicapped parking spaces; reconfiguring the grade and design of the parking ramp; incorporating rain gardens rather than lawn boulevards along St. Johns Street; and incorporating a caretaker suite. In response to these comments, the project has been revised by: improving the interior stairwell finishing; relocating the interior amenity room to the front of the building; creating a more usable exterior children s play space; revising the interior hallway design to add some visual relief to the halls, but they cannot be shortened as suggested by the Panel; providing three handicapped parking spaces; and providing an on-site office for a property manager. A specific suite may be made available to a property manager if that is the individual s choice of living. In addition, the architect has introduced more white panelling and a lighter grey panel color. These changes are reflected in the plans included as Attachment 2. EDMS #

12 Community Amenities/Affordable Housing With respect to community amenities, the applicant was asked to provide a voluntary community amenity contribution and either provide on-site public art or make a voluntary financial contribution to the City s Public Art Reserve Fund. The applicant has respectfully declined to provide a community amenity contribution, as he is of the opinion that this rental project should be considered as an amenity in itself. Notwithstanding that the new CAC Policy has been adopted, it does not apply to applications in stream prior to Policy adoption. With respect to public art, there is little usable space for an on-site public art installation and as the policy is voluntary, the developer has also declined to contribute to the Public Art Reserve Fund. In terms of affordable housing, the developer was asked to provide a voluntary contribution to the Affordable Housing Reserve Fund or, as an alternative, to reserve some units at below-market rents for a period of time. The developer indicated that the project s financing model would not allow either the contribution or the provision of below-market rental units. Although Council has a Strata Conversion Policy (Corporate Policy ) which would preclude the conversion of existing rental buildings with three or more units to strata title, to augment that Policy and ensure that the project is developed as a rental project, it is recommended that a Housing Agreement be registered on title; Housing Agreement Bylaw No is recommended for first and second reading. The Agreement includes a 20-year term at which time, the developer or a future owner of the building could apply to the Council of the day to stratify the building and that application would be considered in light of any applicable policies existing at the time. Sustainability Checklist The completed Sustainability Checklist for the development proposal is included as Attachment 3. Application Sustainability Pillar St. Johns Street Environment Economic Social Cultural Total Concluding Comments With respect to the request to amend the OCP land use designation to eliminate the need for a commercial component, the developer had expressed concern that it may be difficult to lease commercial space and did not wish to have unoccupied storefronts along St. Johns Street. Staff concur with the applicant s rationale and support the proposed OCP amendment which would provide an opportunity to add more rental units in place of the commercial space. This project responds positively to OCP housing policies relating to the provision of rental housing tenure and it is consistent with the built form policies and development permit area EDMS #

13 design guidelines established in the OCP for this site. Staff, therefore, recommend that it be supported by Council. Implementation In order to implement this application: 1. Bylaw No (Attachment 4) proposes to amend the Official Community Plan from Mixed-Use Moody Centre to Multi-Family Residential; 2. Bylaw No (Attachment 5) proposes to rezone the site from Comprehensive Development Zone 55 to Comprehensive Development Zone 67 (CD67), and establishes the range of permitted uses and the following development regulations: lot coverage: 60%; density: not more than a 3.2 FAR and not more than 142 units; building height: not more than six storeys and 18.4m; and parking requirements, including the maximum number of small car spaces; and 3. Bylaw No (Attachment 6) authorizes Council to enter into a Housing Agreement to ensure that the project is developed and marketed as a 100% rental apartment project for a minimum of 20 years. Other Options THAT the Official Community Plan Amendment and Rezoning application, as presented in the report dated from Development Services Department Planning Division regarding Official Community Plan and Rezoning Application St. Johns Street, not be supported. Communications / Civic Engagement Per the City s Community and Stakeholder Consultation Policy, Woodbridge Properties held a community information meeting on July 26, 2017 to engage the public about the redevelopment proposal and solicit feedback. In total, 17 people signed in over the course of the evening. A summary report from the meeting facilitator, including copies of the meeting notification and comment sheets/ s from the public, is included as Attachment 7. The comments at the meeting and those submitted on the comments sheets and in s primarily cited the need for rental housing. Other comments related to: project amenities; building setbacks; whether the project included subsidized rental units; the availability of accessible units; whether wood frame construction for a six-storey building was appropriate; project timelines; concerns regarding access off Moray Street; EDMS #

14 the provision of car share spaces; a concern over the size of the three-bedroom units; and a concern that this site is not being redeveloped in conjunction with the properties on either side. One person was opposed to the project citing concerns over traffic congestion on Moray Place. In accordance with the City s Development Approval Procedures Bylaw, the application was considered by the Community Planning Advisory Committee (CPAC) on September 5, At the CPAC meeting, five residents spoke on the application, with two speakers in support of the project and the remaining speakers voicing concerns primarily around parking, potential traffic problems, and the absence of an affordable housing component. Should this rezoning application proceed to a Public Hearing, additional notices will be sent to adjacent properties within the required notification area and advertisements placed in the local newspaper in accordance with the City s Development Approval Procedures Bylaw and the Local Government Act. Council Strategic Plan Objectives The proposal is consistent with the goals of the Council Strategic Plan as they relate to Community Planning and the creation of a livable, vibrant, sustainable, orderly, and coordinated community. Attachments: 1. Application Fact Sheet. 2. Architectural and Landscape Plans. 3. Sustainability Checklist. 4. Draft City of Port Moody Official Community Plan Bylaw, 2014, No. 2955, Amendment Bylaw No. 9, 2017, No ( St. Johns Street). 5. Draft City of Port Moody Zoning Bylaw, 1988, Amendment Bylaw No. 240, 2017, No ( St. Johns Street). 6. Draft City of Port Moody Housing Agreement Bylaw, 2017, No ( St. Johns Street). 7. Community Information Meeting Facilitator s Report. EDMS #

15 Prepared by: Reviewed by: Doug Allan, MCIP, RPP Senior Planner Mary De Paoli, MCIP, RPP Manager of Planning Eric Vance, FCMC, MCIP, RPP Acting GM of Development Services Reviewed for Form and Content / Approved for Submission to Council: City Manager s Comments Tim Savoie, MCIP, RPP City Manager EDMS #

16 APPLICATION FACT SHEET St. Johns Street Applicant: Woodbridge Properties (St. Johns Street) Application No. and Type Official Community Plan Amendment Rezoning From Comprehensive Development Zone 55 (CD55) to Comprehensive Development Zone 67 (CD67) Project Description: Existing OCP Designation: Development Permit Areas: A rental apartment project consisting of 142 units with underground parking Mixed Use Moody Centre Development Permit Area 1: Form and Character of Neighbourhood Residential Development Advisory Design Panel Meeting: July 6, 2017 Community Information Meeting: July 26, 2017 Community Planning Advisory Committee Meeting: September 5, 2017 Development Permit Area 5: Hazardous Conditions (Soil Liquefaction)