REPORT TO: Council



REPORT TO: CouncilFOR:RegularREPORT FROM: Development ServicesPRESENTED: May 5, 2015FILE:SUBJECT: Squamish Oceanfront Lands draft Zoning Amendment Bylaw (Comprehensive Development Zone No. 69 – Squamish Oceanfront) No. 2386, 2015Recommendation:That Council approve the following resolutions: THAT the District of Squamish give second reading to the District of Squamish Zoning Bylaw 2200, 2011, Amendment Bylaw (Comprehensive Development Zone No. 69 – Squamish Oceanfront) No. 2386, 2015 as amended; andTHAT the District of Squamish Zoning Bylaw No. 2200, 2011, Amendment Bylaw (Comprehensive Development Zone No. 69 – Squamish Oceanfront) No. 2386, 2015 is referred to Public Hearing, to be conducted on May 20, 2015.Purpose/desired OutcomesTo present the Zoning Amendment Bylaw (Comprehensive Development Zone No. 69 – Squamish Oceanfront) No. 2386, 2015 for Council consideration of First, Second and Third reading. The Bylaw establishes the regulations for the development to proceed on the Squamish Oceanfront Development Corporation owned lands of the Oceanfront Peninsula. It has been drafted to align the policies and guidelines of the Squamish Oceanfront Peninsula Sub Area Plan (SAP), changing the zoning from Light Industrial (I-1) and Industrial General (I-3) to a Comprehensive Development (CD) zoning.BackgroundIn 2002, the District commenced the Squamish Oceanfront planning process, which resulted in the Squamish Oceanfront SAP. Adopted by Council in 2010, the plan developed through intensive community engagement. The SAP establishes the policies, guidelines, and land uses for the future development of the Oceanfront lands. In 2011, the Squamish Oceanfront Development Corporation (SODC) submitted a rezoning application covering the portion of the peninsula owned by the SODC. The application received First and Second reading by Council later that year, along with Council direction to prepare a Phased Development Agreement (PDA) and a zoning amendment bylaw; however, the project did not proceed further for lack of a development partner.Through a Request for Proposal (RFP) process, Newport Beach Developments Limited Partnership (NBD) was subsequently identified as the preferred development partner for the SODC owned lands. Respectively, in June 2014 and July 2014, the District, SODC, and NBD signed a Memorandum of Understanding (MOU) and a Purchase and Sale Agreement (PSA). The PSA is conditional on the rezoning of the SODC lands, accompanied by a PDA, as well as several other planning and infrastructure agreements, to be completed by June 2015. Project Information The subject lands include 11 legal lots owned by the District of Squamish located on the Oceanfront Peninsula at the south end of Downtown Squamish (see Attachment 2 – Subject Lands).Comprehensive Development FrameworkThe proposed CD 69 zoning includes nine Blocks (see Attachment 3), organized to reflect the land use pattern and development aspirations established by the SAP. The primary regulations – permitted uses, maximum densities, heights and lot coverage – within each Zone Block are in accordance with the SAP policies, ensuring consistency between the official community policies and regulation. Inconsistencies uncovered between various SAP policies have been reconciled in the draft zoning, in discussion with NBD. The CD zoning framework includes the following Block precincts: The Oceanfront Village (CD 69 Block A) envisioned as a local hub and regional destination offering an inviting mix of food, beverage, boutique retail, entertainment, and tourist accommodations.The Primary Employment neighbourhood (CD 69 Block B) provides commercial space for primary employment. The Waterfront Employment neighbourhood (CD 69 Block C) will provide employment space relating to boat building, marine repair, retail, services, and training. The Mamquam Waterfront Residential neighbourhood (CD Block D) includes a mixture of lower buildings along the Mamquam Blind Channel, with mid-rise apartments rising behind along the Main Access Road. Retail uses may be provided at-grade.The Education and Institutions neighbourhood (CD 69 Block E) is earmarked for new education facilities and is programmed to accommodate classrooms, administrative and associated housing use.The Cattermole Waterfront Residential neighbourhood (CD 69 Block F) will accommodate low-rise townhome and apartment units close to both downtown and the Oceanfront Village, providing a mix of housing options.The Cattermole Interior Residential neighbourhood (CD 69 Block G) is a medium density residential district, intended for a mixture of townhomes and apartments. The precinct is located in close proximity to both the Village Centre and Downtown, providing residential uses in close proximity to both employment destinations. The Mixed Use Marine area (CD 69 Block H) includes marinas and the possible location for a deep-sea cruise ship terminal. The marina will likely provide areas for tourist operators, short- and long-term berths, and a possible community sailing center.The Cattermole Natural Marine area (CD 69 Block H1) is a marine protected area, with limited public use. Observation decks and a non-motorized boat access point will provide opportunities to connect with the Cattermole Slough.The Parks, Public Spaces and Community Facilities (CD 69 Block I) are comprised primarily of the Oceanfront Park, which includes a wind sport beach, and additional open space, including a second, family-oriented park, the Village Commons and the Oceanfront Walk. The waterfront trail network provides direct access to the water and offer seamless connections within and surrounding the peninsula. Finally, several small civic parcels are included, accommodating community facilities that will serve the resident and greater Squamish population.Consistent with the SAP, two of the Blocks (C and E) have flex areas, in which residential uses can be accommodated providing they are consistent with the regulations outlined for Block F. In addition, Block B allows for up to 25% of the total gross floor area to be developed as residential. The intent is to allow the District and developer flexibility to respond to changing market demand over the 20+ year build out period. ParkingOff-street parking is regulated based on the Zoning Bylaw 2200, 2011. Parking may be provided through surface and above grade garages for commercial and office type uses. Residential parking is provided underground.Bicycle parking, including both Class A (secured / permanent) and Class B (visitor) spaces are required for all residential buildings. Class B spaces are required for all non-residential uses. SODC Residential Gross Floor Area (GFA)A total of 291,000 m2 of outright residential gross floor area, plus an additional 40,000 m2 of conditional GFA, is regulated in the draft Bylaw, in order to ensure the form of development on SODC lands is consistent with the SAP. The outright residential floor space allocated to the SODC lands supports the envisioned build out population of 6,500 residents established through the SAP. The conditional area represents the area if the three flex areas (Blocks C1, E1 and E2), as well as 25% of the total GFA of the Primary Employment district, were developed as residential. Squamish Oceanfront Peninsula Sub Area Plan (SAP) Amendment & Phased Development Agreement (PDA)Concurrent with the draft Zoning Amendment Bylaw, a Sub Area Plan (SAP) amendment is proposed, in order to address inconsistencies within the SAP and provide greater flexibility for the interpretation by Council of the SAP given the long build out timeframe of the development. Regarding the inconsistencies within the SAP, the draft Zoning Bylaw attempts to provide the greater entitlement permitted where two conflicting figures are presented in policy or the associated Schedules, without exceeding the spirit of the overall SAP.In addition, a PDA has been drafted to secure the zoning and servicing regulations for a 20-year period, in exchange for the provision of amenities, the dedication of parkland, and other specific requirements. The PDA also includes sustainability requirements, which are a key requirement of the SAP.The accompanying reports discuss the SAP Amendment and PDA in more detail.Department CommentsThe Zoning Bylaw establishes the regulatory framework enabling the re-development of the former industrial site into a diverse, mixed-use area. The proposed Zoning Amendment Bylaw aligns with the core principles, objectives, and policies outlined within the Squamish Oceanfront SAP. ImplicationsBudgetThe adoption of Bylaw 2386, 2015 is a condition for the sale of the District owned Oceanfront Lands, as outlined in the Purchase and Sale Agreement, signed by SODC, the District of Squamish, and NBD. Organizational ImpactFacilitating the Public Hearing process requires staff time and resources, as well as finalization of the Bylaw based on Council recommendations.The development of the Oceanfront Lands will substantially increase required Development Services resources. Compensation for these resources itself will be partially recovered through fees and increased tax revenue in the future.PolicyIf adopted, the Bylaw would amend the District of Squamish Zoning Bylaw 2200, 2011. Key OCP Policies that relate to the Oceanfront Lands include: Downtown18 - 11 The Oceanfront Peninsula is considered a functional extension of Downtown. It is critical that new development achieve a high level of physical and visual connectivity between it and the Downtown. Therefore, adoption of a Sub-Area Plan that demonstrates how these objectives will be achieved, shall be required prior to any new development on the Peninsula.18 - 38 Subject to an approved Sub-Area Plan, the Oceanfront Peninsula shall include mixed-use residential/commercial development that is context sensitive and provides unobstructed public waterfront access.18 - 43 Future planning and development on the Oceanfront Peninsula south of Vancouver Street in the Downtown achieves a waterfront that:Enhances the sense of community and celebrates the uniqueness of Squamish; Is safe and healthy for residents and visitors;Is accessible by all;Blends a mix of land uses;Protects and enhances natural systems;Demonstrates leadership in environmental stewardship;Enhances the connection with the natural world;Has many and diverse economic opportunities;Is economically stable and sustainable;Is a model of “green” development;Is based on an inclusive and effective public involvement process;Is based on a long-term vision; andLinks to broader development initiatives. EnvironmentAs a brownfield redevelopment site adjacent to downtown, the redevelopment of the Oceanfront Peninsula allows the District to advance its initiatives related to the protection of the environment, as guided overall by the Squamish Oceanfront Sub Area Plan. This includes the protection, enhancement, and rehabilitation of ecological features.GHG’sThe development of the Oceanfront into a dense, mixed-use precinct in close proximity to downtown, with the inclusion of a network of cycling trails and pedestrian pathways, should result in a reduction of vehicle trips and facilitate further walking, hiking, and biking in the District, all of which could help reduce GHG emissions related to personal transportation.In addition, compact, multi-family residential buildings are more energy efficient than single-family dwellings. Therefore, the development results in a reduction of GHG emissions from home heating/energy use compared to a similar number of units developed in a lower density context.Council Priority and Strategic Plan AlignmentRezoning of the Oceanfront Lands aligns with Council priorities of Economic Development, Community, and Environment.Citizen EngagementPart of the development of the Sub-Area Plan included extensive public engagement.Two public events conducted in October 2014 at the Squamish Farmer’s Market updated residents regarding the rezoning application and process, Purchase and Sale Agreement, and Phased Development Agreement (PDA).A public information meeting, hosted on April 23, 2015, to discuss the proposed Oceanfront Development including the amendment to the Squamish Oceanfront Sub Area Plan, details of the rezoning, PDA and other bylaws.ImplementationBylaw amendment requires administrative support to update the bylaw. The development process itself will fall under current Development Services systems.AttachmentsDraft Zoning Bylaw Amendment Subject Lands Zoning BlocksAlternatives to Staff RecommendationThat Council approve the following resolutions:THAT additional public consultation be conducted with regards to the proposed draft Zoning Amendment Bylaw (Comprehensive Development Zone No. 69 – Squamish Oceanfront) No. 2386, 2015 prior to proceeding to Public Hearing.Staff Review_______________________________Linda GlendayDeputy CAO_______________________________Robin ArthursGM, Corporate Services_______________________________Gary BuxtonGM, Development Services & Public Works_______________________________Joanne GreenleesGM, Financial ServicesCAO Recommendation:That the recommendation of the Development Services Department be approved._______________________________C. Becker, CAO ................
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