REPORT TO: Council - Squamish



REPORT TO: CouncilFOR:SpecialREPORT FROM: Development ServicesPRESENTED: April 28, 2015FILE:SUBJECT: Squamish Oceanfront Peninsula Sub Area Plan (SAP) Amendment Bylaw No. 2385, 2015Recommendation:That Council approve the following resolution(s): THAT the District of Squamish OCP Bylaw No. 2100, 2010, Oceanfront Peninsula Sub Area Plan (SAP) Amendment Bylaw No. 2385, 2015 be given second reading; andTHAT the District of Squamish OCP Bylaw No. 2100, 2010, Oceanfront Peninsula Sub Area Plan (SAP) Amendment Bylaw No. 2385, 2015 is referred to Public Hearing, to be conducted on May 20, 2015.Purpose/desired outcomes:To present the Squamish Oceanfront Peninsula Sub Area Plan (SAP) Amendment Bylaw No. 2385, 2015, for Council consideration of First and Second reading. The draft Bylaw would resolve inconsistencies identified within the SAP, which forms Schedule N of the District’s Official Community Plan, ensuring consistency between the draft Zoning and the OCP.Background:In 2013, through a Request for Proposal (RFP) process, Newport Beach Developments Limited Partnership (NBD) was identified as the preferred development partner for the SODC owned lands on the Oceanfront Peninsula. A Memorandum of Understanding (MOU) and a Purchase and Sale Agreement (PSA) were signed between the District, SODC, and NBD in June 2014 and July 2014, respectively. 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 SAP was developed with extensive public input, beginning in 2002 with final Council adoption in 2010. The SAP establishes the objectives and policies for the development of the peninsula, including land uses, densities, and built form. The purpose of the proposed SAP Amendment is to resolve inconsistencies within the SAP, most notably between policy language and Schedule I, as well as to provide greater flexibility of the siting of uses, as described below.SAP InconsistenciesThrough a review of the SAP, several inconsistencies were identified within the plan by both the District and NBD. The primary inconsistencies identified within the SAP rest between the policy language used throughout the plan and the more detailed Schedules (especially Schedule I), making it difficult to reconcile the intent of the plan with the differing permissions set out in policy. In order to resolve the inconsistencies, and to provide greater flexibility for the project to respond to market changes over the 20+ year build out timeframe, NBD requested an SAP amendment in October 2014.FlexibilityThe SAP is prescriptive in places with regard to the types of uses contemplated and where the different uses are to be situated across the peninsula. The proposed SAP Amendment would allow Council, at its discretion, to consider rezoning requests that may involve the future shifting of some of the proposed areas of the prescribed land use ‘Blocks’, subject to complying with the SAP principles and a number of conditions to honour the purposes and intent of the SAP. Specifically, should this proposed SAP amendment be approved, future rezoning by Council could shift the land use block boundaries as seen on Schedule G, without necessarily triggering a further OCP amendment, so long as the existing gross floor area for each use is honoured. There would be no limit on the ability of Council in the future to adjust the boundaries for the Interior Residential, Education and Institutions or Civic Uses indicated in the area outlined in yellow on Schedule AC, and or for a highway or parking area boundary.In all cases, future rezoning requests to shift block boundaries towards reconciling any SAP inconsistencies must demonstrate:Environment opportunities or constraints;Social, economic or environmental benefits; and/orTechnical opportunities or constraints.The proposed SAP Amendment protects the Oceanfront Park and public open spaces, including the waterfront walkway, as generally seen on Schedule H. SAP Land Uses: Gross Floor AreaThe proposed SAP Amendment is intended to resolve inconsistencies and allow for flexibility for siting of uses; however, it is not intended to allow for an increase in the amount of total floor space considered under the SAP. As the SAP does not establish maximum gross floor area (GFA) values, an analysis was conducted to determine the maximum areas of each of the different uses. An explanation of that analysis is attached.?OCP Amendment (m2)Flex provision (m2)Residential133,000 SODC 158,000 Other Peninsula lands 40,000* (SODC)Commercial27,666 SODC3,419 Other Peninsula Lands7,895** (SODC)5,000*** (SODC)Employment58,000 (100% SODC)0Institutional59,000 (100% SODC)0*40,000 m2 of marine employment or institution may flex to residential (net)**7,895 m2 of primarily employment may flex to Village Centre commercial (net)***5,000 m2of Mamquam Residential may flex to Main Street commercial (net)With the public spaces remaining constant, the distribution of the residential, public space and commercial/employment/institutional remains within the general 1/3 - 1/3 - 1/3 principle.Department Comments:The proposed SAP Amendment will retain Council’s discretion to consider alternate development concepts towards providing greater flexibility in the implementation of the plan, while ensuring both the total GFA and the general Block configurations of the land uses envisioned are in keeping with the intent of the SAP. The Oceanfront Park, its related perimeter walkway and the rest of the parks and open space network are maintained in the proposed SAP amendment. It is also noted that, while the proposed SAP amendment would allow Council the ability to consider future rezoning applications without warranting a further OCP amendment, a public hearing process would still be required. As well, it is acknowledged that the proposed CD-69 zoning (as outlined in an accompanying report) will be secured by a Phased Development Agreement (PDA) requiring both parties to agree to any changes in the future. Lastly, as the land use block boundaries are restricted in the extent of how much they can shift, the development permit guidelines outlined in the SAP still apply.Implications:Budget: Implementation of the amended OCP does not increase the operational budget. The adoption of Bylaw XXXX, 2015, as requested by NBD, would ensure the rezoning of the Oceanfront Lands is consistent with the SAP. The rezoning is a condition for the sale of the SODC owned oceanfront lands, as outlined in the Purchase and Sale Agreement, signed by SODC, the District of Squamish and NBD. Organizational Impact: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.Policy: If adopted, the Bylaw would amend Schedule “N” of the District of Squamish Official Community Plan 2100, 2009. 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 will achieve the following goals:To create a downtown waterfront that enhances the sense of community and celebrates the uniqueness of Squamish; To create a downtown waterfront that is safe and healthy for residents and visitors;To create a downtown waterfront that is accessible by all;To create a downtown waterfront that blends a mix of land uses;To create a downtown waterfront that protects and enhances natural systems;To create a downtown waterfront that demonstrates leadership in environmental stewardship;To create a downtown waterfront that enhances the connection with the natural world;To create a downtown waterfront with many and diverse economic opportunities;To create a downtown waterfront that is economically stable and sustainable;To create a downtown waterfront that is a model of “green” development;To create a downtown waterfront that is based on an inclusive and effective public involvement process;To create a downtown waterfront that is based on a long-term vision; andTo create a downtown waterfront that is linked to broader development initiatives. Environment: As a brownfield redevelopment site adjacent to our 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. The SAP Amendment would enable the development of the peninsula to respond to environmental opportunities or constraints.GHG’s: The development of the Oceanfront into a dense, mixed-use precinct in close proximity to the 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 will help reduce GHG emissions related to personal transportation.In addition, compact, multi-family residential buildings are more energy efficient than single family dwellings. The development will therefore result in a reduction of GHG emissions from to home heating/energy use compared to a similar number of units developed in a lower density context.Council Priority and Strategic Plan Alignment:The SAP Amendment and concurrent rezoning of the Oceanfront Lands aligns with Council priorities of Economic Development, Community and Environment.Citizen EngagementExtensive public engagement was conducted as part of the development of the Sub-Area Plan.A Public Information Meeting occurred on April 23, 2015, to discuss the proposed amendment to the Squamish Oceanfront Sub Area Plan, which is a statutory requirement of an OCP amendment. The details of the rezoning, PDA and other bylaws were also presented.ImplementationBylaw amendment will require administrative support to update the bylaw. The development process itself will fall under current Development Services systems.Attachments:Draft Squamish Oceanfront Peninsula Sub Area Plan AmendmentOceanfront Peninsula Gross Floor Area Analysis Policy language excerpts from the SAPSAP Schedule ESAP Schedule G SAP Schedule ISAP Schedule HAlternatives to Staff Recommendation:THAT the draft Squamish Oceanfront Peninsula Sub Area Plan Amendment is referred to Public Hearing, to be conducted on a date other than May 19, 2015.THAT additional public consultation is conducted with regards to the proposed Squamish Oceanfront Peninsula Sub Area Plan Amendment 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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