Municipality of North Cowichan Committee of the Whole AGENDA · 2017. 3. 10. · Municipality of North Cowichan Committee of the Whole AGENDA Wednesday, March 15, 2017, 12:00 p.m

Municipality of North CowichanCommittee of the Whole

AGENDA

Wednesday, March 15, 2017, 12:00 p.m.Municipal Hall - Committee Room

Pages

1. CALL TO ORDER

2. APPROVAL OF AGENDA

Recommendation:That the Committee approve the agenda as circulated [or as amended].

3. BUSINESS

3.1 Severne Street Subdivision 2 - 19

Purpose: To discuss a revised redevelopment option for the old Chemainuselementary school property owned by North Cowichan.

Recommendation:That Council

1. rescind its October 5, 2016 resolution approving option 3 for theredevelopment of 2970 Severne Street (the old Chemainus ElementarySchool site), as shown in the August 10, 2016 staff report, and

2. ask the Chemainus Advisory Committee to gauge public support for thenew option described in the staff March 6, 2017 report (to create 10 lotson Severne Street and a residual multi-family lot).

3.2 Closed Session

Purpose: To close the meeting to the public to consider a potential propertydisposition (under section 90 (1) (e) of the Community Charter).

4. NEW BUSINESS

5. ADJOURNMENT

Report

7030 Trans-Canada Highway | Box 278 | Duncan, BC V9L 3X4

Ph 250.746.3100 Fax 250.746.3133 www.northcowichan.ca

Date March 6, 2017 File:

To Council

From Mark Ruttan, Director of Corporate Services / Deputy CAO Endorsed:

Subject Severne Street Subdivision

Purpose

The purpose of this report is to recommend a new option to Council to redevelop the old Chemainus

Elementary School site.

Background

On August 17, 2016, Council discussed 3 options to redevelop the old Chemainus Elementary School

site, as set out in the Assistant Manager of Planning and Sustainability’s August 10, 2016 report

(attached), as well as community feedback received from Chemainus residents and municipal

committees. Council then voted 4-3 to approve subdivision option 1 for 2970 Severne Street and

directed staff to draft the necessary zoning amendment bylaw to rezone the property from Public Use

(PU) to Residential One and Two Family (R3). As a reminder, Option 1 allows for 12 lots by

interconnecting Severne, Lang and Elliott streets.

On October 5, 2016, Council rescinded its August 17th decision and voted 5 -1 (Councillor Walker was

absent) to proceed based on option 3. As a reminder, Option 3 allows for 13 lots to be created by

extending Severne Street through to Elliott Street. Staff has now prepared detailed costs estimates

based on option 3 which appear excessive on a per lot basis.

Discussion

Given the split nature of the votes and the high construction costs, staff has come up with another

redevelopment option that merits consideration. This option reduces the amount of road and other

required servicing costs. It also incorporates a multi-family site which some members of the public have

recommended. It still leaves a good-sized area near the skate park for “food forest” and off-leash dog

park. These were considered desirable components of each of the previous 3 options considered.

Under the suggested new option, 10 lots would be created by extending Severne Street and creating a

culdesac (with pedestrian access only between Lang Street). The multi-family site’s internal servicing

requirements would be left to the successful purchaser to design and construct based on the

purchaser’s development plan. The strata lot would be approximately 3,000 m2 and could potentially

permit approximately 13. Not having to build a road to connect to Elliott Street and transferring

servicing costs on the multi-family site to a developer, could yield an estimated net profit for this option

of approximately $944,000, compared to $156,000, $540,000 and $490,000 under options 1, 2 and 3,

respectively.

2



Options

1. Stick with Option 3 (13 lots)

2. (Recommended) choose new option (10 lots and 1 multi-family parcel)

3. Choose another option

Implications

The recommended option will result in anticipated profit of approximately $944,000 which will help pay

for Council’s planned capital projects, including the Chemainus Boardwalk (est. $650,000) and Maple

Bay wharf improvements (est. $500,000).

The project has had a fair amount of public scrutiny and Council may wish to invite further input from

the Chemainus Advisory Committee before proceeding to public hearing.

Recommendation

That Council

1. rescind its October 5, 2016 resolution approving option 3 for the redevelopment of 2970

Severne Street (the old Chemainus Elementary School site), as shown in the August 10, 2016

staff report, and

2. ask the Chemainus Advisory Committee to gauge public support for the new option described

in the staff March 6, 2017 report (to create 10 lots on Severne Street and a residual multi-family

lot).

Attachment(s):

3

MON

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ELLIOTT STREET

SEVERNE STREET

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LOT 1

455m²

LOT 2

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LOT 3

450m²

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495m²

LOT 7

700m²

LOT 8

472m²

LOT 10

543m²

LOT 11

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13 UNITS

2999m²

(EXCLUDING

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REMAINDER FOR PARK

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Drawn by

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Design by

Date

Date

Date

Date

Description

Project

2970 SEVERNE SUBDIVISION

OPTION 2a

CONCEPTUAL SITE SERVICING

Eng. Project No.

Scale

horiz.

Scale

vert.

Sheet of

1:500

11

Feb 14, 2017RJC

NC 1987

4

Report



Date August 10, 2016 Prospero No. SPP00036 Folio No. 25005-100

File No. 6750-20 To Council

From Kyle Young, Assistant Manager of Planning and Subdivision Endorsed:

Subject Chemainus Elementary School Site Redevelopment – 2970 Severne Street, Chemainus

Purpose

The purpose of this report is to provide Council with information, analysis and recommendations

regarding the proposed redevelopment of the old Chemainus Elementary School property at

2970 Severne Street in Chemainus.

Background

The Chemainus Town Centre Revitalization Plan (2011) identifies the subject property as a key

community revitalization project for Chemainus (see plan excerpt in ATTACHMENT 1). After the

Municipality took ownership of the property in 2013, public consultation was undertaken to seek input

on redevelopment options for the site. In 2014/2015, a new skate park was constructed in the

northwest portion of the property.

Based on the initial public input received, three redevelopment options were presented to the

Chemainus Advisory Committee in March 2016 (see ATTACHMENT 2). The Committee endorsed

seeking further public input on the three options. A community meeting was subsequently held at the

Chemainus Secondary School in May 2016. Approximately 70 people attended the meeting, 45 (64%)

of which completed a 2-page survey. Since the meeting, 3 additional e-mails with comments were

received. Most respondents selected their preferred redevelopment option and provided comments on

that option. A summary of the preferences and comments is included in ATTACHMENT 3. The

following table indicates preferences for the redevelopment options:

Option 1 13 28%

Option 2 18 39%

Option 3 8 18%

None 7 15%

Property Details

The subject property is approximately 1.5 ha (3.8 ac) in area and is currently zoned Public Use (PU) in

the Zoning Bylaw. The property contains the old Chemainus Elementary School and the newly

constructed skate park, with the remainder of the site comprised of fields. Overall, the property fronts

three public roads, including Severne Street, Elliot Street and Lang Street.

The property is surrounded to the north, east and south by established urban residential development.

The property to the west contains the Chemainus Secondary School.

5



Discussion

Official Community Plan

The OCP contains the following policies which are relevant to this redevelopment project:

Policy 2.5.1.5(a) – The Municipality will encourage development that makes North Cowichan a more

walkable community.

Redevelopment of the site would include significant pedestrian trail connections to link Elliot Street to

Severne, Seaview and Lang Streets, and provide access to the food forest, open space and park areas.

Creating a more walkable community and promoting active transportation requires creating multiple

convenient and safe options for cyclists and pedestrians.

Policy 2.5.3.1(b) – The Municipality will design new civic buildings, facilities and other public projects

that enhance the physical connectedness of the surrounding community, reflect community identity and

meet high standards for environmental protection.

All three options enhance the physical connectedness of the neighbourhood by providing public

greenways and space for community amenities that will be used by residents in the area. Option 2

provides less connectedness in two ways. First, this option maintains the existing configuration of three

dead-end streets. Second, the park space is partly isolated from main public road network and would

be hemmed in by residences to the north, east and south. Options 1 and 3 provide greater

connectedness by connecting the local road network and configuring the park space to be more

accessible to residents outside the immediate surrounding area.

As an off-leash dog park (i.e. special purpose recreation use), it is anticipated that this space would be

used by the broader community as well as local residents. Similarly, the skate park is a community

amenity that is used by residents beyond the immediate neighbourhood. It is important that these

spaces look and feel like community park space areas that are accessible and welcoming to the all

residents (in this case with the special purpose of being an off-leash dog park), rather than the

perception being that these are local park areas that are for the enjoyment of local residents only. This

is reflected in some of the input received:

“Maximize community green space that will benefit the whole town”

“Would like a community garden (not just for residents, but for anyone in town)”

Policy 2.5.4.10 – The Municipality will encourage food production in urban areas.

Each option for redevelopment includes a “food forest” component. The details of what the food forest

would look like would be determined at the detailed design stage. At its July 20, 2016 meeting Council

passed the following motion:

6



That Council approve, in principle, Transition Chemainus' proposal to develop a forest garden near the

Chemainus Skate park, subject to approval of the overall concept plan for the old Chemainus Elementary

School site.

Transition Chemainus would be included in the detailed site design stage, should Council approve an

overall, conceptual redevelopment plan for the site.

Policy 2.5.6.6 – The Municipality will continue long-term planning for road network improvements (a)

When new connecting roads are required, the Municipality will first undertake a robust public consultation

process. (d) Increases in roads, or the road network more generally, are a last resort after other

transportation management options have been explored. Future network road possibilities include: (iii)

urban street network upgrades, with priority given to projects that complete street connectivity (e.g.,

Festubert St. to James St. connection).

With respect to Policy 2.5.6.6(a) above, application of the policy is important in this instance because

the current configuration is three dead-end public roads that are used only by the residents living on

those roads. Option 2 maintains that configuration but provides more significant turn-around areas

(cul-de-sacs) at the ends of Severne and Elliot Streets. Options 1 and 3 provide new public road

connections. The summary of public input in ATTACHMENT 3 provides some insight into the traffic

concerns raised by residents.

Policy 2.5.6.6(d)(iii) indicates that there is a desire to complete gaps in the local urban street network.

Option 1 provides the greatest level of connectivity by eliminating the three dead-end streets. This

connectivity is important from an emergency services perspective because it provides more options and

direct access to properties in the neighbourhood without the need to travel more lengthy and

circuitous routes. One of the other benefits of the through-streets is increased access to the

community amenities that would be provided as part of the redevelopment project. In Option 2, the

cul-de-sacs provide only limited on-street parking, which could be an issue if residents are driving to

the ends of Elliot Street, Severne Street or Lang Street to use the park. Options 1 and 3 provide space

for on-street parking next to the park.

Policy 2.5.8.2 – The Municipality is committed to supporting and enhancing its park system, with parks of

varying size and function (e.g., neighbourhood parks, smaller play-lots, and community parks). The

Municipality’s park standards and types are based on the report Park and Open Space Strategy for the

District of North Cowichan.

Redevelopment of the site includes the provision of parks in the form of an off-leash dog park and

passive open space areas that would serve the Chemainus community. Options 1 and 3 provide the

greatest accessibility to the parks and open space areas and, given the nature of a dog-oriented park

(e.g. noise), provides separation between the park area and nearby properties.

Overall, Option 1 is the most consistent with OCP policies because it results in a complete urban local

street network, provides the greatest accessibility for emergency services, enhances the physical

connectedness of the neighbourhood (rather than isolation of residential and community land uses),

and provides a community park configuration that is more accessible and convenient for all

7



transportation types (pedestrians, cyclists and motorists). As an alternative, Option 3 is also consistent

with OCP policies but not to the same degree as Option 1.

Lang Street

Lang Street is currently constructed to a sub-standard urban local road cross-section. The street is

paved but does not include a sidewalk. The images below show the current state of Lang Street.

8



If Option 1 is chosen, it is anticipated that Lang Street would need to be improved to accommodate

anticipated vehicular use and new pedestrian and cycling connections. The timing of these required

upgrades would be taken into consideration relative to the timing of the redevelopment project (i.e.

when new street connections are constructed and new residential parcels are created).

Options

Council could choose to select one of the three conceptual plans that have been presented to the

public or pursue a different redevelopment plan. If a significantly different redevelopment plan is being

contemplated, such a plan should be reviewed by the Chemainus Advisory Committee and the public

should be provided with an opportunity to review and comment on the plan at a new community

meeting.

Staff recommends that Council pursue Option 1 for the following reasons:

The mix of land uses, including a skate park, off-leash dog park, open space, food forest and

residential meets a number of the Municipality policies and encourages interaction between the

users of the different land uses. A residential component is included in order to place additional

population in close proximity to services and community amenities. The revenues from the sale of

the new parcels would finance demolition of the elementary school and redevelopment of the site

(i.e. road and infrastructure construction, trails and park development).

The site concept and land use configuration in Option 1 most closely aligns with OCP policies by

ensuring a connected and complete urban local street network and providing park space that is

accessible, convenient and welcoming to all residents.

As an alternative, and to address the concerns regarding use of Lang Street as a through-street, Staff

are also prepared to support Option 3 as a secondary option. Staff do not support Option 2.

Implications

Should Council choose one of the three redevelopment options, the next step would be to bring

forward a zoning amendment bylaw to rezone the subject property to Residential One and Two Family

Zone (R3) to facilitate a subdivision application that is consistent with the concept plan. Plans to

demolish the elementary school could run concurrently with the zoning amendment bylaw, as well as

preliminary discussions on the detailed site design for the non-residential areas of the site.

Communications and Engagement

The zoning amendment bylaw process provides opportunities for the public review and comment,

including advertisements in the newspaper, notices to surrounding properties owners and occupants

(within 60 m), and a public hearing where residents and other members of the public can express their

views to Council.

9



Recommendation

That Council:

1. approve redevelopment Option 1 for 2970 Severne Street, as shown in the staff report dated

August 10, 2016; and

2. direct staff to prepare the necessary zoning amendment bylaw to rezone the subject property from

Public Use Zone (PU) to Residential One and Two Family Zone (R3).

Attachments:

1. Chemainus Town Centre Revitalization Plan Excerpt

2. Redevelopment Options

3. May 2016 Community Meeting Feedback

10

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this

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as p

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spac

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Che

mai

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the

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revi

taliz

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loca

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•W

ill h

ave

a be

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ffect

but

not

unt

il th

ese

deve

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ATTACHMENT #111

kyle.youngRectangle

OP

TIO

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Key F

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g, Severn

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AIL

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ATTACHMENT #212

OP

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N #

2

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eatu

res:

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new

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ad

co

nn

ect

ion

s

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pate

d 1

0-1

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le f

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est

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tra

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AIL

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TR

AIL

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eatu

res:

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nn

ect

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e a

nd

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tt S

treets

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tici

pate

d 1

0-1

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ily lo

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ace

pri

mari

ly a

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ark

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d a

fo

od

fo

rest

New

ped

est

rian

tra

il c

on

nect

ion

s

14

ATTACHMENT #315

19

Agenda3.1 Severne Street SubdivisionBack to Agenda

3.1 Severne Street SubdivisionBack to Agenda





Documents

Municipality of North Cowichan Committee of the Whole AGENDA · 2017. 3. 10. · Municipality of North Cowichan Committee of the Whole AGENDA Wednesday, March 15, 2017, 12:00 p.m