PUBLIC HEARING Zoning Amendment Bylaw No. 7645, 2013 (41 and 175 Duncan Street) To be considered at the June 23, 2014 Public Hearing 6:00 p.m. in the City Hall Council Chamber *Please note: For convenience, the contents of this package contains information relative to the Public Hearing. If you have any questions, please inquire with Development Services staff, or contact 604.527.4588.
Public Hearing Information for Zoning Amendment Bylaw No. 7645, 2013 41 and 175 Duncan Street Reports to Council Report Author Meeting/Document/Date Public Hearing Date # Legislative Minute Extracts June 23, 2014 R-1 Services Development CW, Report, November 18, 2013 June 23, 2014 R-2 Services Development CW, Report, November 4, 2013 June 23, 2014 R-3 Services APC CW, Report, November 4, 2013 June 23, 2014 R-4 Development Services Development Services Development Services CW, Report, September 20, 2010 June 23, 2014 R-5 CW, Report, May 5, 2008 June 23, 2014 R-6 CW, Report, February 12, 2008 June 23, 2014 R-7 Written Submissions Name Correspondence Date Date Received In Support/Opposed / Concerns None to date. # Legend: APC = Advisory Planning Commission CW = Committee of the Whole NWDP = New Westminster Design Panel OH = Open House PH = Public Hearing RM = Regular Meeting Doc # 485634 Page 2 Last updated: 6/9/2014
PROJECT DESCRIPTION: A proposal has been submitted to rezone 41 and 175 Duncan Street (outlined in bold in map) from Heavy Industrial Districts (M-2) to Comprehensive Development Districts (Duncan Street Townhouse) (CD-42), Comprehensive Development Districts (Duncan Street Apartment) (CD-43), Heavy Industrial Districts (M-2) and Park Districts(P-10) in order to develop 48 townhouse units, 425 apartment units, relocate the existing dyke to the perimeter of the site and construct a section of the perimeter trail on the dyke. PUBLIC HEARING 6:00 pm on June 23, 2014 in Council Chamber City Hall, 511 Royal Avenue New Westminster Zoning Amendment Bylaw No. 7645, 2013 (41 and 175 Duncan Street) WHAT IS ZONING AMENDMENT BYLAW NO. 7645, 2013 ABOUT? A rezoning is required to change the permitted uses on the property from industrial to multifamily residential and establish the permitted number of residential units on the property. The bylaw would establish the Comprehensive Development Districts (Duncan Street Townhouse) (CD-42), Comprehensive Development Districts (Duncan Street Apartment) (CD-43) zones and rezone the site to these zones. HOW DO I GET MORE INFORMATION? The bylaw and all pertinent material are available for viewing in the Planning Department at City Hall 10 business days prior to the Public Hearing, June 10 to June 23, 2014, Monday through Friday (except statutory holidays) between 8:30am and 4:30pm, and also online at www.newwestcity.ca/publicnotices HOW CAN I BE HEARD? The public is welcome to attend the Public Hearing on June 23, 2014, or send a written submission addressed to Mayor and Council prior to the closing of the hearing.
R-1 Minutes Extracts for 41 and 175 Duncan Street APC January 21, 2014 4.1 41 and 175 Duncan Street REZ00008 Jim Hurst, Development Planner, summarized the report dated November 4, 2013 regarding an application that has been received to rezone the property at 41 and 175 Duncan Street from Heavy Industrial Districts (M-2) to Comprehensive Development Districts (Duncan Street)(CD-42), Comprehensive Development Districts (Duncan Street) (CD-43), Parks Districts (P-10) and Heavy Industrial Districts (M - 2). The applicant proposes to develop 48 townhouses, 425 apartment units, leave a portion of the site under a modified industrial zoning to allow employment uses in the development and reconstruct the perimeter dyke with a portion of the perimeter trail located on the dyke. The dyke would be dedicated to the City. Mr. Hurst advised that notification was sent to: The surrounding neighbourhood within 100 metres (83 notices); All Residents Associations; The Board of School Trustees; Superintendent of Schools; and The New Westminster Heritage Preservation Society. Mr. Hurst noted that the Commission reviewed the project on May 24, 2013, and that the proposal has since been amended to include the addition of 100 apartment units, resulting in a floor space ratio of 1.5. Mr. Hurst reported that the application includes relocating the existing dyke to the perimeter of the site and constructing a walkway on the dyke which is dedicated to the City for park purposes. Gary Pooni, Brook Pooni Associates provided the following details regarding the application: A historical assessment completed indicated that there is no historical value on the site; There has been some work completed by Bunt and Associates regarding transportation to the site; Mitigating the rail noise remains a priority for the applicant; The applicant is offering the city $100,000, as there is no lift in land value with the increase of density; 561222
In response to resident s concerns regarding entry to the site, there have been discussions with Metro Vancouver regarding another entry to the site through the Port Metro side of the development; and, Residents have expressed concern over on-site visitor parking. Don Andrew, Creekside Architects, noted that the railway noise has been minimized through buffers such as the orientation of the buildings and landscaping. The Commission generally agreed that the increase of density included with the proposal is feasible, as it results in more parking and outdoor amenity space. It was noted that the main access to the site off Furness Street is the most practical option given the location of the railway and noted site constraints. Mary Broten, Resident, noted that she is in opposition the 100 additional units proposed in the application, and expressed the following concerns: It was suggested that the development will contribute to the traffic congestion in Queensborough, especially with the lack of transit service; It was questioned if a six-storey development will set a precedent for future development; and, It was suggested that the additional density will result in a negative social impact in regards to childcare and schools. Mr. Hurst offered the following points in response to Ms. Broten s concerns: The applicant proposes a six-storey development to reduce site coverage and increase the amount of parking space; The Queensborough Middle School was built to have a third floor; however, there is no funding to carry forward with it at this time; and, The goal is to increase transit service to the area, as the development could result in more users. MOVED and SECONDED THAT the application to rezone the property addressed as 41 and 175 Duncan Street to allow a 473 unit multifamily residential development and the extension of the City s perimeter walkway in Queensborough be supported. CARRIED. All members of the Commission present voted in favour of the motion. MOVED and SECONDED 561222
THAT the letter of January 19, 2014 from Norm Huey Re: 41 and 175 Duncan Street be received for information (On Table). CARRIED. All members of the Commission present voted in favour of the motion. CW November 4, 2013 8. Rezoning of 41 and 175 Duncan Street to Allow a 473 Unit Multi Family Residential development and the extension of the City s perimeter Walkway in Queensborough - Bylaw for First and Second Readings a) APC Report: 41 and 175 Duncan Street Results of May 21, 2013 Meeting MOVED and SECONDED THAT Council receive for information the Advisory Planning Commission s recommendations namely: THAT the Advisory Planning Commission supports the rezoning application for the property addressed as 41 and 175 Duncan Street which proposes to rezone the site from Heavy Industrial Districts (M-2) to Comprehensive Development Districts (Duncan Street)(CD-42) Comprehensive Development Districts (Duncan Street)(CD-43), Parks Districts(P-10) and Heavy Industrial Districts (M-2). b) Staff Report MOVED and SECONDED THAT Zoning Amendment Bylaw 7645, 2013, to establish the Comprehensive Development Districts (Duncan Street Townhouse)(CD-42) and Comprehensive Development Districts (Duncan Street Apartment)(CD- 43) zoning schedules and to rezone 41 and175 Duncan Street from Heavy Industrial Districts (M 2) to Comprehensive Development Districts (Duncan Street Townhouse)(CD-42), Comprehensive Development Districts (Duncan Street Apartment)(CD-43), Heavy Industrial Districts (M 2) and Park Districts (P-10) be forwarded to Council for consideration of First and Second reading. Regular September 10, 2013 f) 41 and 175 Duncan Street Preliminary Report on the Amended Rezoning Application 561222
APC May 21, 2013 MOVED and SECONDED THAT staff be directed to continue to process the application to rezone 41 and 175 Duncan Street once the revised site plan is submitted; and THAT staff report back to Council when the staff and committee review process is complete. CARRIED. All members of Council voted in favour of the motion. 4.1 41 and 115 Duncan Street REZ0008 An application has been received to rezone the property at 41 and 175 Duncan Street (from Heavy Industrial Districts (M-2) to Comprehensive Development Districts (Duncan Street)(CD-42), Comprehensive Development Districts (Duncan Street) (CD-43), Parks Districts (P-10) and Heavy Industrial Districts (M-2) in order to develop 48 townhouses, 325 apartment units and leave a portion of the site under a modified industrial zoning to allow employment uses in the development. Bev Grieve, Acting Director of Development Services reviewed the history of the project. It was noted there are several factors that complicate the processing of the subject site: The location of the property on the Fraser River, a significant ecological area and fishery resource; The location of the property next to Port Metro Vancouver Lands which were purchased by the Port after the rezoning application on the subject site was made; The location of the site adjacent to a rail line, which is becoming increasingly active due to the Port activities; The existence of site contamination from industrial operations; and The location of the site in a floodplain area. Ms. Grieve distributed On-Table the Mercer Landing Design Guidelines. The Committee Clerk advised that notification was sent to: the surrounding neighbourhood within 100 metres (86 notices); All Residents Associations; the Board of School Trustees; Superintendent of Schools; and New Westminster Heritage Preservation Society. 561222
Gary Pooni, Brook Pooni Associates, reviewed the area context, site history, the heritage assessment, the planning policy in December 2010, and the proposed site plan at that time. He noted the new proposal has come down in size. Mr. Pooni outlined the community benefits as follows: Public waterfront walkway Foreshore enhancement Remediation Stormwater management Employment lands and Dyke system Don Andrews, Creekside Architects, addressed the site plan updates noting that railroad activity has increased. Three storey townhouses will be located on the Fraser River side and the Port Royal side. Star Crescent has now been designated the primary access. The walkway has been rerouted around the Port Metro Vancouver lands. The dyke dedication has expanded with the walkway joining at Fairweather Lane. There will be a public plaza about midway on the Fraser River side of the site. This is the expected location of any historical artefacts. During the discussion, the following issues were raised: Parking there will be interior parking and there will be parking on the railroad side of the street. Pedestrian pathway most will be on Duncan Street Employment land This is a condition of Council to act as a buffer into the site. It was left as a placeholder. Emergency crossing over railroad tracks on Duncan Street Massing consider removing townhouses on Fraser River side and replacing with six storey apartment buildings to create more river views. MOVED and SECONDED THAT the Advisory Planning Commission supports the rezoning application for the property addressed as 41 and 175 Duncan Street which proposes to rezone the site from Heavy Industrial Districts (M-2) to Comprehensive Development Districts (Duncan Street)(CD-42, Comprehensive Development Districts (Duncan Street)(CD-43), Parks Districts(P-10) and Heavy Industrial Districts (M-2). CARRIED. Bart Slotman opposed. CHC April 6, 2011 5.1 Star Shipyard, 41 & 175 Duncan Street 561222
Bev Grieve, Manager of Planning, presented the overall development proposal for 41 and 175 Duncan Street, asking the Commission members to comment on the proponent s submitted design guidelines, in particular how the guidelines respond to the Donald Luxton Heritage Assessment report. Questions from the Commission: (Response in italics) What is the employment zone? An area to keep industrial employment. How do we insure future developers will do what is recommended? It will be incorporated into the rezoning. Comments from the Commission: Like to see carpenter shop preserved/renovated; Incorporate mosaics about the shipyard in the walkway; Keep ship boat-ways; Do creative things with ship-like items; Consider interpretive centre like Steveston; Nice to have a viewing platform; Support Luxton report; Work with Fraser River Discovery Centre and the Museum; Like the idea of placing the artefacts in a public sphere; Recommend relocating employment zone to where carpenter shop exists; Concerned about loss of jobs that service the river. Concerned land is being taken out of industrial; NWDP March 22, 2011 5.3 41 & 175 Duncan Street File: REZ00008 Bev Grieve, Manager of Planning, reported a rezoning application has been received for the property addressed as 41 and 175 Duncan Street. The application is to rezone the property to allow future development of a 406 unit multiple unit residential development and a small commercial or light industrial building. Andrew Mindell, Creekside Architects, reviewed the design guidelines as presented in the On Table document entitled Mercer Landing Guidelines. He noted the intent of the guidelines is to provide direction for the future development of the former Star Shipyards site. The historical nature of the site will be celebrated by encouraging historical naming and preservation of industrial artefacts where possible. Questions from the Panel: (Response in italics) Will underground parking cover the entire site? Primary parking will be under the buildings. A deck level will be established at the top of dyke level. 561222
Did you consider putting the two storey employment zone building on the other side of the property for more direct access? It was determined the building is a good buffer and it is better to have the walkway along residential where there are eyes on the street. Did you consider a six storey building? It was put forward at an early stage but it was decided four storeys is more achievable at this time. Comments from the Panel: Like how parking is being handled Consider separating two middle buildings Historical reference is not very specific; concerned the site planning does not reflect heritage value; like to see industrial heritage be brought into landscape. Need more definitive circulation plan; currently some weaknesses Suggest bringing employment building further into project Uncomfortable with underground parking being higher than the dyke Internal streets need more detail Open spaces need to be connected Consider how to connect walkways to the rest of community Would like to see some insurance in the guidelines that there will be an integration between existing public roads and pathways Circulation systems important need a lot of thought to satisfy needs Historic interpretive area should reflect industrial in content and presentation Green spaces seem disconnected Need more detail regarding circulation Historic artefacts could better be reflected in planning Need professional heritage consultant to do inventory of artefacts MOVED and SECONDED THAT the application for 41 and 75 Duncan Street be supported with the following site plan and design guideline considerations: Clarification on landscaping regarding off slab native plants Location of amenity spaces Historic references need to be more specific Schematic circulation plan needed Height of parking structure above dyke and roads Integration of open spaces CARRIED. Five members of the Panel voted in favour of the motion with one member opposed. NWDP February 22, 2011 561222
5.2 41 & 175 Duncan Street File: REZ 008 A rezoning application has been received for the property addressed as 41 and 175 Duncan Street. The application is to rezone the property to allow future development of a 406 unit multiple unit residential development and a small commercial or light industrial building (Don Andrews, Creekside Architects) Jim Hurst, Senior Planner reviewed the application and requested consideration of the following: Design Guidelines for Mercer Landing Landscape Concept Adequacy of landscaping Site Plan Panel Queries (Response in italics) How many residential units are planned for Phase 1, Port Royal? There will be approximately 50 small lot homes or approx. 150 units in the first phase. Will the new proposal to create a series of parcels for residential rather than employment property? The zoning will be defined for residential and employment use. If the application is approved, would the applicant be doing other amenity improvements? Yes, those are engineering offsite works i.e., dyke, streets. Why is this being proposal being presented as one site? It is to give the developer and people a certainty for the future. The project could be done in multiple phases, each with their own character. What is the definition of an employment zone? What is the genesis of the employment zone? Council is concerned about the loss of employment and/or taxation and is seeking to find a balance that will maintain employment and be a buffer against heavy industrial use. Are there any previous applications for this site? No. Will the amenities be done as a package or in pieces? There are two issues, the approval of the land use and then the design of the buildings. If public amenities are the issue (dyke is not coming to the City, it is dedicated and the walkway on top of the dyke is protected by an easement to the City for public purposes). Mr. Donald C. Andrew, Creekside Architects reviewed the project design as follows: The applicant has retained Westmar Consultants to review dyking guidelines with the Dyking Authority and Fraser River Estuary who will be commenting further at the time the property is rezoned. 561222
The conditions relating to contamination of the 100-year old shipyard are to be addressed. Board drawings of the site in detail and influences on it were reviewed. The old facilities has been given an historical assessment Inventory will be taken of the public amenity spaces on site. Duncan Street rail line will run two trains per day, but it is possible this will extend on the port side to 4-6 trains per day (on the railway right-of-way, not land). The dyke right of way currently dips into the property and must be reconstructed and relocated. The neighbourhood character of surrounding properties was addressed. The neighbouring Port Royal site was discussed, as well as the newer developments east of the site. The fee-simple townhouses, each on its own lot, will be a good fit for the neighbourhood. The dyke walkway will be on the existing natural boundary with the townhouse decks sitting adjacent. The dyke walkway will include a turnaround area for service vehicles. The railway buffer includes a 35 ft. setback with a berm and acoustic fence. The parking separation includes a berm embankment. Building orientation is planned to afford river views while minimizing the railway view at rear of building, creating indoor/outdoor quiet spaces. The building form will be compatible with Port Royal site. The small historical cove will be designed as an historical interpretive area. Details were also provided for the townhouse site, employment, industrial interface, views along Duncan, Furness, waterfront walk, Maritime Village Design Guidelines not to depart radically from the Port Royal character (gables, shakes, siding, wood fences, trellis entranceways, street views). Ms. Meredith Mitchell, DMG Landscape Architects, provided a brief overview of landscaping as follows: The cross section drawing indicated a 50-ft. pathway berm to buffer industrial noise. The planted berm will provide visual/sound buffering and fencing. The main concern is the overall circulation pattern for the site. The dyke walkway will an additional circulation pattern to connect with the southwest, the historical interpretative area, internal walkways, connections to residential units. As many existing natural plantings as possible will be retained. Examples of future views along Furness, plantings, trees, character of green areas (screening), amenity area, gazebo area to keep some existing wood structures on site and find placements for the industrial tools found on location was reviewed. 561222
The whole idea is to create a very definitive circulation pattern integrating the conceptual design with the landscape design and utilizing existing structures. Panel Queries: Can you explain the meaning of the colour coding on the map? In part, the river foreshore is in FREMP red zone which indicates that no work can be carried out outside of the existing dyke. Further explanations can be provided by Mr. Hurst as to colour/map/area designation along the river. Is there any relationship between the final dyke works and the legal plan dyke easement? The dyke will eventually be moved. The dyke location must be finalized prior to the rezoning bylaw preparation. Westmar reviewed this issue in 2008 during discussions with the Port Authority and came up with several options for following the modified high water line. The final conclusion will probably use the existing natural boundary originating from surveys of 1900. Is there an approved location for the dyke on the plan? There will be no official or approved location until the project goes through the City s rezoning process, in consultation with the Dyking Authority. The file was opened with the Fraser River Estuary Management to review, but is closed pending rezoning of the site. There may be sections that engineering has approved in principle, and a no built-covenants list final details in terms of identifying exact locations. Is this site considered one legal site? It is two legal sites. Will the property be subdivided into more than one residential site in the future? Yes. Could you describe the parking for the different building types? Parking will be taken to the outside edge of townhouses. There will be underground parking for almost 400 units. The top of the parking will be 4.4 metres high, roadway is 2.2 to 2.4 m, entry to site and underground parking roads will ramp up, to meet deck. Is it the intent to require the historical site to be cleaned up when the dyke is rebuilt? The intent is for everything to go. The Parks Department have asked for ideas for a new wharf along the river. Is riprap a type of dyke or pier structure, headwall material? Not clear, Westmar drawings indicate detail. Staff stated that a shear wall is at point at Port Royal. Is there a proposal for the section opposite Poplar Island? Port Royal is next door, combinations of riprap and headwall (vertical) have been in place the last 10-15 years. Staff advised the first house was built in 1997. Staff is of the opinion that the first section is all riprap. The beach area has headwalls surrounding it to access beach. 10-15 years of riprap has all grown in, it is not what we think of as riprap. 561222
Is there a reason the employment zone will have 2 storey buildings rather than 3 storey buildings or larger square footage buildings? In discussions with the City the intent is to replace 20 jobs which are determined to be roughly equivalent to 20,000 sq. ft. By defining the zoning now, will there be any flexibility in the future? Flexibility is always welcome. There could be more opportunity in 2-3 years for a bigger building. Shouldn t the guidelines be more specific? Yes, the guidelines could be more specific. Generally the applicant followed the Port Royal site for inspiration. With respect to massing, is the layout open to interpretation or are there guidelines on how they should be set up on the site? Staff indicated access points are fixed. Furness St. access points are approved. In terms zoning, it would be determined by townhouses vs. industrial. Staff stated the applicant must decide where the dyke is going to be and then the zoning line can be decided. What is the reason for not showing pathway connections? The pathways will be shown in the landscape plan. What is the status of those trees, do they preclude a path? Yes, as currently shown in landscape plan, the trees preclude a path. A gravel path would require more in depth review for allowable tree potential. When full inventory has been completed and full connection made, the intention is to be able to look down the site. The Chair noted this is an information submission only. The design guidelines for approval will come later, complete with a much more resolved site plan. Panel Comments: Need more specificity on guidelines with discussion on materials and colours. Suggest guidelines cover some items like pedestrian circulation, environmental issues such as storm water treatment, amount of open space, landscape concept, waterfront detail and public space aesthetics. Not happy with the way the project is buffered to future port industry (west side of site). Colours could be quite charming, quirky. Concerned about design guidelines. Need more details and guidelines on heritage elements and design. Seems more Georgian scheme far from a marine village. Question of adequacy of landscaping buffer. Sensitivity to industrial heritage is important. Landscape details and plan to be included in guidelines. Site plan and guidelines should show future subdivision or phasing of project. 561222
MOVED and SECONDED THAT the report prepared by Ms. Beverly Grieve, Manager of Planning, entitled 41 and 175 Duncan Street Report to the New Westminster Design Panel, dated February 22, 2011, be received for information. CARRIED. All members of the Panel present voted in favour of the motion. CW September 20, 2010 8. 41 and 175 Duncan Street Preliminary Report on the Amended Rezoning Application September 20, 2010 report providing preliminary information to Council on the amended application to rezone 41 and 175 Duncan Street. ** THAT staff be directed to continue to process the application to rezone 41 and 175 Duncan Street once the revised site plan is submitted; and THAT staff report back to Council when the staff and committee review process is complete. APC June 16, 2009 1. 41 & 175 Duncan Street File: REZ008 Jim Hurst, Senior Planning Analyst reported an application for rezoning has been received for the properties addressed as 41 and 175 Duncan Street. The applicant is proposing to construct 425 residential units. The site is designated medium density residential in the current Official Community Plan. Questions from the Commission Why is there no notification sign on the site? A sign on the site is not required until it comes forward for approval. This is an information only item at this time. Will there be consideration to some of industrial structures as heritage structures? That has not been considered at this time. Is the moratorium going to be lifted? Council has seen this application and feel since this was ongoing project at the time, it should go forward. Is there anything that makes this property unsuitable for M1 or M2? It is being used for industrial purposes now. Will the Port Authority be using the tracks? That would be a question for Southern Rail. The Port Authority will likely use this area for container storage. Would be a question for Southern Rail. 561222
Is Duncan Street a designated access? Engineering has reviewed the concept and are okay with this as planned now. They would require two accesses. The rail does not come into the site it is a spur line. What is the estimated population for 426 units? Could be anywhere from 1 to 1.75 people per unit or about 600 people. What are the next steps? The next steps are discussion of amenities and then the consultation process. Gary Pooni, Brook and Associates, gave a brief overview of the project with respect to site context, site history, policy context (housing, trails and open space, environment and urban design), the urban design rationale and the community benefits. MOVED and SECONDED THAT agenda item 4 - Rezoning of 230 Third Avenue be deferred until 6:45 p.m. CARRIED. All Commission members present voted in favour of the motion. Comments from the Commission Request a population estimate and circulation plan Concerned about loss of M2 land in NW If this project is approved as a residential development, it should be green and sustainable. Request evaluation of access to property Gavin Palmer, speaking on behalf of Queensborough Residents Association reported residents are feeling betrayed because the adjacent land was designated residential in the OCP and now is staying industrial. CW May 5, 2008 15. Proposed Rezoning of 41 and 175 Duncan Street - Preliminary Report The Director of Development Services and Jim Hurst, Senior Planning Analyst, responded to questions regarding the May 5, 2008, report seeking direction from Council on the processing of the rezoning application for the property addressed as 41 and 175 Duncan Street. ** MOVED and SECONDED and CARRIED, this Committee recommends THAT staff continue working with the proponent on the rezoning application for the property addressed as 41 and 175 Duncan Street. CARRIED. 561222
561222 All members of Committee present voted in favour of the motion.
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R-5 City of New Westminster REPORT DEVELOPMENT SER VICES DEPARTMENT To: Mayor W. Wright and Members of Date: September 20, 2010 Council in Committee of the Whole From: Lisa Spitale, Director of Development Services File: 7031 Subject: 41 and 175 Duncan Street - Preliminary Report on the Amended Rezoning Application RECOMMENDATION THAT Council direct staff to continue to process the application once the revised site plan is submitted, and report to Council when the staff and Committee review process is complete. PURPOSE A revised rezoning application has been received for the property addressed as 41 and 175 Duncan Street. The application now proposes to include employment uses in the development. The purpose of this report is to provide preliminary information to Council on this amended application. BACKROUND Property Owner: OCP Land Use Designation OCP Development Permit Designation Kesho Inc. and Sonjan Enterprises, (RM) Residential - Medium Density Residential Development Permit Area #11 East Queensborough Existing Zoning: Heavy Industrial Districts (M - 2) Proposed Zoning: Comprehensive Development District Allowing Multi Family
City of New Westminster September 20, 2010 Residential and Employment uses Site Characteristics: Site Area : 8.04 acres (3.3 Hectares) AREA MAP ' 'Z J Bis,, x ^ x r > - x smsi ^: i _' D < M.J' "% > jmr..- ^ mc <-*/ ^ 41 and 175 Duncan Street J 'I S or i S 2 Ml: ;LEY»SI Y* 4, li jjlr. t f ',<>. ts BSBi ^nt 'M-I I I ' I i T isi I r ^ ;3B ; <>, gg «" SITE CONTEXT The subject site is currently zoned (M-2) Heavy Industrial Districts and is occupied by a seven industrial users that range from Patent Construction and Fraser Shipyards to five small operations including a woodworking shop. The property to the east of the site is the first phase of the Port Royal Development constructed in 1997. This area zoned for residential development and has been built out with 45 compact lot houses and a low rise development with 70 apartment units and 14 townhouse units. Across Duncan Street to the south are properties with various lot sizes that are zoned Light Industrial Districts (M-l). Many of these properties are owned by the City. Most of
City of New Westminster September 20, 2010 these M-l zoned properties are either vacant or have low intensity industrial uses. The City's towing yard and animal shelter are located in this area. To the west is the vacant Interfor sawmill site which is zoned (M-2) Heavy Industrial. PROPOSAL The applicant proposes a mixed use development with 413 residential units on 7.4 acres of the site. The application has reduced the number of units proposed in the original application from 437 to 413 units. The housing would range from row house and townhouse to low rise apartment. The site would be remediated and the City's perimeter walkway would be extended. An employment use is proposed on a 0.6 acre portion of the site. The exact range of employment uses to be allowed has yet to be defined. A letter from the applicant's consultant on the amended application is attached to this report. OFFICIAL COMMUNITY PLAN CONSIDERATIONS The portion of the site inside the dyke is designated in the Official Community Plan as Residential Medium Density. The Plan describes this designation as: (RM) Residential - Medium Density: this area will contain medium density multi-family residential uses such as row houses, stacked townhouses and low rises. Depending on the provision of public amenities, a density bonus may be provided in order to reach the upper limits of density in this area. The portion of the site located on top of the dyke is designated as Walkway in the Official Community Plan. The Plan describes this designation as: Walkway System: this area will include walking trails. The portion of the site located outside of the dyke is designated as Intertidal Open Space in the Official Community Plan. The Plan describes this designation as: Intertidal/Open Space: this area will remain in a natural state in order to preserve the intertidal area of the Fraser River foreshore. This site is also designated as part of Residential Development Permit Area #11 East Queensborough. This Development Permit area:
City of New Westminster September 20, 2010-4"...is designated to accommodate a range of multi-family dwelling types. This Development Permit Area protects development from hazardous conditions arising from the floodplain and establishes objectives and guidelines for the form and character of multi-family development. PROCESS TO DATE 1. March 2007. Staff confirm the Medium Density Residential designation of the site and in conjunction with the owner, identified a list of reports that would be required prior to staff reviewing any redevelopment proposal for the site. This list included: Identification of Site Contamination issues and contact with the Ministry of Environment regarding their resolution. Identification of Dyke issues with the Dyke Authority and the City. Identification of foreshore environmental issues with FREMP Identification of foreshore use issues with Eraser Port 2. January 2008 - A number of sites in Queensborough, including the subject site, were placed into an industrial conversion "study area". 3. April 2008 - Council directed staff to commence with a new Queensborough Neighbourhood Plan. 4. May 2008 - On May 5, 2008 Council moved that staff continue working with the proponent on the rezoning application for the property addresses at 41 and 175 Duncan Street. 5. June 2009 - Land Use presentation to Advisory Planning Commission. 6. November 2009 - Presentation to Queensborough Residents Association. DISCUSSION In the time since this application was considered by Council, new issues have been identified. First, subsequent to the Queensborough Residents Association presentation, City staff and Council identified issues with regard to the retention of existing employment uses on the site that are still active and employ an estimated 25 full time equivalent workers. In response to Council and staff concerns regarding the loss of industrial jobs, the applicant met with staff and has discussed modified plans to address the employment issue. In addition, the applicant was asked to consider the use of the site in the context of the Employment Lands Strategy.
City of New Westminster September 20, 2010 The applicant has provided a modified site plan which allows for up to 27,600 square feet of floor space for office, commercial or light industrial use. The proposed site is adjacent to the Port Metro Vancouver land to the west and will provide a buffer to a portion of the Port land and take advantage of the road exposure and convenient access. It is expected that the commercial/industrial parcel would pennit a 2 to 4 storey building which would replace the 25 full time equivalent positions at the shipyards. The proposed green space buffer on the west side of the site will also soften the impact of the industrial use on the Port lands. The inclusion of this proposed employment use is in line with current direction in this area; however it will require an amendment to the Official Community Plan. The entire site is currently designated (RM) Residential - Medium Density and the proposed employment use would require a Industrial or Commercial designation in order to allow Council to consider that portion of the rezoning application. The second issue raised is the impact of sale of the adjacent Interfor site to Port Metro Vancouver. This portion of the Interfor site is currently designated for future residential development in the Queensborough Official Community Plan but was included in the Council direction that all lands zoned for Industrial Use not be considered for residential development until the new Queensborough Community Plan was finalized. Further, the purchase of the Interfor site by Port Metro Vancouver for port-related industrial uses likely secures the future use of this site for industrial purposes. Staff has learned that there is a strong likelihood that the east portion of the former Interfor lands (now Port Metro Vancouver) will be used for industrial purposes in the near future, and the rail line running along Duncan could be re-activated. As such, staff has asked the applicant to revise the proposed site plan to mitigate the impact of an active railway line which is adjacent to the new residential development by including a greater setback and consideration of a landscape berm. The revised site plan has not been submitted. OPTIONS There are two options for Council's consideration; they are: 1. Direct staff to continue to process the application once the revised site plan is submitted, and report to Council when the staff and Committee review process is complete; or 2. Provide staff with further direction in the processing of this application Staff recommend Option 1
City of New Westminster September 20, 2010-6- CONCLUSION A revised rezoning application has been received for the property addressed as 41 and 175 Duncan Street to include employment land use in the proposal. This report outlines, for Council's information, two changes in the context for this proposal - the inclusion of the employment land use and the likely re-emergence of an industrial presence to the west of the site. /! JaiWs Hurst / *** velopment Planner Beverly^Grieve Manager of Planning Approved for Presentation to Council (y Lisa Spitale, Director of Development Services Paul Daminato, City Administrator : jh
APPENDIX Location Map
s:: FAIRWEATHER STAR CV c D 111 a- 3 / ^ct' D( v rcx sr. i) ; r A LT'- "> FOUNDRY 3 1^*. Ui X ' LU > \> 5 c. cr>i r". s K Q I in m S A \X> < 1 o t? \ CO 2 51 and 175 Duncan Street Scale: 1:2000 p The Corporation of Date: September 16, 2010 The City of New Westminster Copyrighl & This drawing is provided as a convenience, for information purposes only. The City of 03 <' Development Services - GIS New Westminster disclaims all responsibility for accuracy or completeness of - - Ct - Information contained In this drawing. All map Information should be confirmed In the field. Map information is derived from sources with varying levels of accuracy and may < have changed since compiled. In no event will the Cily of New Westminster be liable for any indirect, special, consequential or other damages due to any inaccuracy or Incompleteness ol map information. 5 CL
Letter from Applicant
A BROOK Brook + Associates Inc Suite 4'0-535 Thurlow Street Vancouve;, BC V6E 3L2 www,brookdev.com T 604 73' 9053 F 604 731 9075 September 2, 2010 City of New Westminster 511 Royal Avenue New Westminster, BC (via email) Attention: Ms. Lisa Spitale, Ms. Bev Grieve, Mr. Jim Hurst City of New Westminster Development Services RE: Updates to Rezoning Application - 41 and 175 Duncan Street INTRODUCTION The purpose of this report is to provide an update to the City of New Westminster regarding the rezoning application in process for the 41 and 175 Duncan Street ("subject site"), also known as "Fraser Shipyards." The approximately 8 acres subject site is located immediately adjacent to the Fraser River, between the Port site to the west and the residential neighbourhood of Port Royal to the east. Kesho-Sonjan ("the proponent") had originally proposed a residential only development. Based on recent City feedback, the proposal has been revised to reduce the number of units and include an "employment" transitional zone to the Port site 'immediately west. This interim report provides: 1. Relevant background on the project; 2. Summary of previous updates to the City and Council; 3. Proposed changes to the project, namely the addition of a new "employment" area. BACKGROUND The Developer purchased the site in November, 2006, with the understanding an existing OCP designation for multi-family residential was in place. Subsequently, planning for the Subject Site has been underway since late 2006, and meetings with the City of New Westminster Development Services Department since early 2007. Based on the planning work undertaken on site and discussions with City staff, the proponent submitted a rezoning application for the subject property in April 2009. As presented previously to Council, the proponent has requested a change from the current zoning of Heavy Industrial (M-2) to Multi-Family Residential (CD) zoning. POLICY CONTEXT A number of policies and plans are in place in order to guide the planning and development associated with the subject site. The subject site is currently zoned M-2 - Heavy Industrial; however, the site is designated as RM - Residential Medium Density in the Official Community Plan, The RM designation slates that:
A BROOK Page 2 Fraser Shipyards, Update to Council - September 2, 2010 "this area will contain medium density multi-family residential uses such as row houses, stacked townhouses and low rises." The Queensborough Neighbourhood Plan designation for the subject site is RM - Residential Medium Density. Furthermore, the site is located in the East Queensborough Development Permit Area which "is designated to accommodate a range of multi-family dwelling types." COUNCIL RESOLUTIONS Throughout the history of this project Council has passed a number of resolutions and directives that have affected the subject property. January 2008 A number of sites in Queensborough, including the subject site, were placed into an industrial conversion "study area". This resolution prohibits commercial or residential redevelopment of identified properties until the Queensborough Community Plan had been reviewed. April 2008 Council directed staff to commence with a new Queensborough Neighbourhood Plan. This neighbourhood plan was initiated in June 2008 with a target completion in 2009. The proponent sought Council's direction regarding next steps and how to best proceed with the rezoning process and requested that Council consider the subject site independently of the Queensborough Plan review given the considerable amount of planning and design completed to date. Mav 2008 On May 5, 2008 Council moved that staff continue working with the proponent on the rezoning application for the property addresses at 41 and 175 Duncan Street. Based on that motion the proponent project team has continued to work with the City and move forward in the rezoning process. UPDATES TO PROJECT The proposed project updates respond to the adjacent land use context and are consistent with the spirit of the OCP policies and the City's employment objectives. Some of these proposed amendments to the plan are a result of post-rezoning application feedback received from the Development Services Department and the May 2008 Council resolution: Transitional Area The updated proposal contains a transitional buffer zone located at the western edge of the site. The goal of this area is to act as a transitional "buffer" to the Port site. Transition in this case has taken two forms: A parcel of land slated for employment related uses, commercial or industrial, or a mix of both. 2. A public open space located between proposed residential uses on the subject site and the Port site - and provides a park amenity to the riverfront.
icu BROOK Page 3 Fraser Shipyards, Update to Council - September 2,2010 The mixed commercial/industrial employment zone and greenspace along the western edge of the property will act as a transitional buffer area between the Port site to the west and the residential land uses to the east. Homes adjacent to the open space buffer could have an acoustical treatment for sound attenuation as a secondary measure to mitigate any potential sound nuisance from future industrial uses. The proposed employment zone located at the southwest corner of the site takes advantage of the road exposure/visibility and convenient access. Typically higher density commercial/industrial employment yields 1 employee per 800-1 OOOsf. Therefore an employment zone parcel zoned to allow for a 2-4 story building would replace the approximately 25 existing full-time equivalent jobs at the Fraser Shipyards site. The proponent is requesting the parcel be zoned to accommodate a 2 story future employment related building (e.g. industrial or commercial), with an opportunity to build up to 4 storeys. It should be noted that the developer has contacted a construction company to estimate the "man-years" involved with site construction, Including consultants such as architects, engineers, etc. required for the design and site planning, and NOT including employment such as realty services, accountants, or lawyers that would receive consultant fees involved with the project, and NOT including the ongoing service jobs for the project after completion (landscaping, maintenance, plumber, electrician, property management etc.) - it estimated that 612 to 734 "man-years" of employment would be generated by the site development. In other words, this would equate to approximately 40 to 50 jobs per year for 15 years. Reduction of Housing Units The number of proposed units has been reduced from 437 to 413. The original mix of residential housing types outlined in the preliminary proposal has been retained and is as follows: Four 4 storey waterfront apartment buildings (approx. 302 units) Eight 2 storey stacked townhouse buildings (approx. 96 units) A 2 storey row townhouse zone (approx. 15 units) (Note: approximate number of units shown reflect the reduced numbers from the original proposal). CONCLUSION The proponent and its project team would like to continue the planning process and public consultation that began last year. The team presented to the Advisory Planning Committee in 2009, followed by a presentation to the Queensborough Residents Association on November 17, 2009. If the proposed amendments are sufficient in dealing with City questions to-date, we would like to schedule an update to the Residents Association and a Public Open House in October. The proposed development will provide a variety of residential dwelling types and a zone for future employment opportunities on-site. This will result in a lasting, high quality development that responds to the residential context of the neighbourhood, and an industrial land use immediately adjacent. We believe the proposed development will be a positive addition to the Queensborough community and the City of New Westminster, and the proposed amendments to the plan are a welcome addition to the project
A BROOK Page 4 Fraser Shipyards, Update to Council - September 2, 2010 If you would like to discuss further, please contact either of the undersigned. Sincerely, Brook + Associates Inc K.'TZUIC Gary Pooni, MEDes, MCIP President t: 604,731.9053x108 e: qpooni(q)brookdev.com Kathryn Tonelli, MEDes Planner t: 604.731.9053x114 e: ktonelli(q)brookdev.com cc: Andrew Mindell, Sonjan Enterprises Randy Cooke, Kesho Inc. Donald Andrew, Creekside Architecture
1"- UlA-M? ittr. COPYRIQHT NOTICE B This drawing and design are al an hfpes to remain the exdusive property of Creekside Archiiccts and may nol bo used or reproduced vnihoui prtor wtijian consent W/itten dimensions shall have precedence over scaled dknensfons. A 11 is Iho r D responsidily of!he Contractor 10 notify IflS to.* Ihe Arch<et! m»he even! o» duc-eparv E 10E oea The Corlraclor shal contact the Architect in ah matters requiring mierprelaton ol this drawing. THIS DRAWING SMALL NOT BE USED FOR CONSTRUCTION PURPOSES UNTIL ISSUED FOR CONSTRUCTION. ' Li):r^sr r-7-> / b -V, 10? N I 1 " s v. PROJECT NAME WATERFRONT APARTMENT ZONE WATERFRONT APARTMENT ZONE i_u CBS um O PORT OPEN I r^i DRAWING TITLE UL. LXJ I I ZD LAND oo ca SPACE i IWATERFRQNT ACCESS n EMPLOYMENT CD C^L ZONE STACKED TOWNHOUSE ZONE PROJECT O O PROPOSED RESIDENTIAL DEVELOPMENT 41and 175 Duncan St East Queensborough New Weslminster BC CREEKSIDE ABCHIIbUIS No 27003 DR*WN APPROVED ::SJ: :::::: :r:... J...."V^^CZ SCALE N.T8. PLOT DATE NET SITE AREA 350291 SQF(8.04 ACRE) ROW TOWNHOUSE 15 STACK TOWNHOUSE 96 (FROM 120) APARTMENT 302 TOTAL 413 (FROM 437) UPA 55.8 APPROXIMATE FAR xx October 29. 2009 i
V 1 Mi/v-n 1? COPYRIGHT NOTICE A B used or re C ICS E drawi ng and design are at all (he e»c4u*lv«propeny ol Architects and may r»ol produced without prior written consent. Written dim unions shall have precescaled dimensions. It is the Contractor shall prelc THIS DRAWING SHALL NOT BE USED FOR CONSTRUCTION PURPOSES UNTIL ISSUED FOR CONSTRUCTION. - : A SCxllS" 6900 sf :-J4?WPARTljltNT ^ J:? r" t v J n n [ J- PROJECT NAME PROPOSED RESIDENTIAL DEVELOPMENT m. % n - r-i J ' T T- n r nmt m cds 41 and 175 Duncan St X Easl Queensborough New Westminster BC DRAWING TITLE.. SS2 V, -yrrfita-tt, xslr^ CREEKSIDE ARCHTTECTS 1 12 12 STACK TOWNHOUSE 12 12 12 12 -S-.. PROJECT No. - 27003 -rvr-tfj cx tlx Z J :::::::: "J I SCALE "RAIlWAYBUf FERGREEN BUT" N.T.S. DRAWN APPROVED PLOT DATE NET SITE AREA 350291 SQF (8.04 ACRE) ROW TOWNHOUSE 15 STACK TOWNHOUSE 96 (FROM 120) APARTMENT 302 TOTAL 413 (FROM 437) UPA 55.8 APPROXIMATE FAR xx October 29. 2009