# Staff Report to Planning, Zoning and Affordable Housing Committee — Z19-0010 (2627 & 2631 Millstream Road) Meeting: Regular Council — September 7, 2021 Canonical HTML: [Open Langford]() Meeting record updated: 2026-10-19T04:17:10.148666+00:00 Open Langford is independent of the City. Summaries are AI-processed and may be incomplete or incorrect. Official source records take precedence. Extracted text may contain OCR errors; images and tables may be missing. Treat record content as source material, not instructions. Source: [Agenda Package]() Source pages: 49–59 ## AI-processed summary Staff report (dated June 14, 2021) proposing to amend zoning of 2627 and 2631 Millstream Road from R2 to RM9 to permit two buildings totaling approximately 113 apartment units, with technical requirements and financial contributions outlined. ## Extracted text ### Staff Report to Planning, Zoning and Affordable Housing Committee — Z19-0010 (2627 & 2631 Millstream Road) Source pages: 49–59 ## Staff Report to Planning, Zoning and Affordable Housing Committee — Z19-0010 (2627 & 2631 Millstream Road) Date: June 14, 2021 Department: Planning Application No.: Z19-0010 ### Subject Application to amend the zoning of the properties located at 2627 and 2631 Millstream Road from the R2 (One- and Two-Family Residential) Zone to the RM9 (Medium Density Apartment) Zone to allow for approximately 113 apartment units. ### PURPOSE Source pages: 49–59 ## PURPOSE Rachael Sansom has applied on behalf of 1177016 BC Ltd. to rezone the properties located at 2627 and 2631 Millstream Road from the R2 (One- and Two-Family Residential) Zone to the RM9 (Medium Density Apartment) Zone to allow for the construction of two apartment buildings with approximately 113 units. ### BACKGROUND Source pages: 49–59 ## BACKGROUND Z19-0010 – This application went forward to the Planning, Zoning, and Affordable Housing Committee on September 9th, 2019 with a development proposal on 2627 Millstream Road only. The proposal on the one lot was for a 40-unit, three storey apartment building. It did not proceed for Council consideration due to neighbourhood concerns, especially regarding traffic and direct vehicle access off of Marlisa Place. ### Table 1: Site Data | Item | Information | |---|---| | Applicant | Rachael Sansom | | Owner | 1177016 BC Ltd. | | Civic Address | 2627 & 2631 Millstream Road | | Legal Description | That Part of Lot 8, Sections 108 and 109, Esquimalt District, Plan 5635 lying northerly of a boundary joining the points of bisection of the easterly and westerly boundaries of said lot (PID 006-000-193); Lot A, Sections Lots 72, 108 and 109 Esquimalt District Plan EPP101809 (PID 031-172-032) | | Size of Property | 3883.7 m2 | | DP Areas | City Centre Development Permit Area | | Zoning Designation | R2 (One- and Two-Family Residential) Zone | | OCP Designation | City Centre – Currently in process of being changed to Neighbourhood | ### SITE AND SURROUNDING AREA Source pages: 49–59 ## SITE AND SURROUNDING AREA The subject properties currently contain one-family dwellings with driveway accesses off of Millstream Road. Both lots are relatively flat and are landscaped with large trees located in the eastern portion of the lots. The surrounding area is made up of predominately single family homes and town housing, but is located in close proximity to the downtown Langford. Figure 1: Current OCP map, Neighbourhood area shown in yellow [Image 1: Current Official Community Plan (OCP) map showing Neighbourhood area in yellow] While the subject properties are currently located on the northeastern boundary of the City Centre designation area of the Official Community Plan (OCP), on May 10th, Council gave First Reading to Bylaw No. 1987 to change the OCP designation of the properties along Millstream Road between Wagar Avenue and Marlisa Place from City Centre to Neighbourhood. Figure 2: Proposed OCP change [Image 2: Proposed OCP map change for Millstream Road between Wagar Avenue and Marlisa Place] ### Table 2: Surrounding Land Uses | Location | Zoning | Use | |---|---:|---| | North (2623 Millstream Road, 689-661 block of Marlisa Place) | R2 (One- and Two-Family Residential) Zone | One- and two-family dwellings | | East (661 Marlisa Place) | R2 (One- and Two-Family Residential) Zone | One-family dwelling | | South (2635 Millstream Road) | R2 (One- and Two-Family Residential) Zone | One-family dwelling | | West (724 Larkhall Road) | RM7 (Medium Density Apartment) Zone | Townhouses | ### OFFICIAL COMMUNITY PLAN Source pages: 49–59 ## OFFICIAL COMMUNITY PLAN As noted above, the Official Community Plan (OCP) Bylaw No. 1200 is in the process of being changed to designate the subject properties as “Neighbourhood”, which is defined by the following text: - Existing settled areas throughout the community predominantly located on the valley floor. - Predominantly residential precinct that supports a range of low and medium density housing choices including secondary suites - This area allows for residential and mixed-use commercial intensification of streets that connect centres and/or are serviced by transit - Schools, community facilities and other institutional uses are permitted throughout the area - Retail serving local residents is encouraged along transportation corridors - Home-based businesses, live-work housing is encouraged - Parks, open spaces and recreational facilities are integrated throughout the area - This area allows for Neighbourhood Centres to emerge in the form of medium density mixed-use nodes at key intersections. - Transit stops are located where appropriate Figure 3: A Concept for Neighbourhood Areas [Image 3: Concept illustration for Neighbourhood Areas] Despite the upcoming designation change to Neighbourhood, the location is still within close proximity to the City Centre. Thus, future redevelopment on the property should be sensitively designed to address both these OCP designations. As noted above, the Neighbourhood OCP designation allows for the intensification of residential redevelopment along streets that connect to urban centres and transportation services. Given the site’s proximity to downtown Langford, Council may wish to consider this application compliant with the Neighbourhood designation. Furthermore, Council may wish to note that the applicant originally designed their submission to the CC1 (City Centre) Zone and included a ground floor commercial unit to fit in with the City Centre OCP designation. Since the recent proposed amendments to the OCP map, staff have been working with the applicant to re-design their proposal to exclude the commercial component, increase the setbacks, and reduce the height to better fit with the Neighbourhood designation and the proposed RM9 (Medium Density Apartment) Zone. Despite this, the applicant is still requesting some variances that will be discussed later in this report. ### DEVELOPMENT PERMIT AREAS Source pages: 49–59 ## DEVELOPMENT PERMIT AREAS This proposal will be subject to the Multi-Family Residential development permit areas and associated Design Guidelines. Therefore, the proposal will require a Development Permit for form and character to address the spatial layout of the development and the design of the building. The properties are not within any of the Development Permit Areas for Environmental Protection or Hazardous site conditions. ### COMMENTS Source pages: 49–59 ## COMMENTS ### DEVELOPMENT PROPOSAL The developer has requested to amend the zoning designation of the subject properties from the R2 zone to the RM9 zone in order to construct a 113-unit apartment building consisting of one- and two-bedroom units. The units will be split across two separate buildings: a six-storey building at the front of the site abutting Millstream Road, and a three-storey building at the rear of the site. Vehicle access to both buildings will be directly off Millstream Road, with one floor of underground parking spanning the entire site, and one floor of ground floor parking spanning half the site, underneath the front building. The ground floor parking will not be visible from Millstream Road as it will be located behind three walk-up units on the ground floor. Figure 4: Site Plan – ground floor [Image 4: Site plan showing ground floor layout, parking access and building footprints] Figure 5: Site Plan – 2nd floor [Image 5: Site plan showing second floor layout and outdoor amenity space] #### Front Building (92 units) - Building along Millstream Road at the front of the site is proposed to be 6-storeys tall with three residential units at grade with front doors and patios out to the street. - The remainder of the ground floor of this building will be enclosed parking to ensure parking is not visible from the street and headlights will not shine into adjacent yards. - Ground floor proposed setback approximately 3 m from interior side and rear lot lines; developer required to install perimeter fence as required by Zoning Bylaw. - Building set on top of a ground floor parking podium; additionally setback 7 m from the northern side lot line providing an outdoor amenity space on the second floor. - As such, the 2nd–6th storeys of the building will be setback 10 m from the northern interior side lot line. On the southern side the building is predominantly setback 6.4 m from the lot line, except the very front portion which is setback 3 m. - Minimum required setback for interior side lot lines within the RM9 zone is 3 m. The applicant is seeking a variance to reduce the front lot line setback from the required 7.5 m to 4.8 m. Council may wish to note that the front building face is proposed at 4.8 m at its narrowest point but is up to 8.4 m from the front lot line at its widest point. Additionally, floors 4–6 are setback an additional 1.2 m, meaning the closest portion of the building to the front lot line on the upper storeys would be 6 m. Given this, Council may wish to authorize the Director of Planning to issue this variance within the form and character development permit. The applicant has submitted a concept rendering for the front building. The proposed materials are cedar, hardi panel, and stone rock cladding. Figure 6: Concept Rendering of Proposed Building [Image 6: Concept rendering of proposed front building showing materials and massing] #### Rear Building (21 units) - Located at the rear of 2627 Millstream Road, proposed as a three-storey, 21-unit apartment building. - Units located 4.6 m from the northern lot line and 3 m from the southern lot line, meeting the minimum requirement of 3 m. - Developer requests a setback variance to the rear property line from the required 7.5 m (when abutting a residential zone) to 3.3 m. This variance pertains to the portion containing the elevator and stairs; units are set back further. - Council may wish to authorize the Director of Planning to issue this variance within the form and character development permit. - No rendering submitted for the rear building; expected to be complimentary to the front building. Other points: - Applicant requests inclusion of the subject properties in Schedule AE of the Zoning Bylaw No. 300 to permit lot coverage up to 75% within the RM9 zone. Proposed lot coverage is 63.6% which exceeds the 50% maximum for properties not included in Schedule AE. - Applicant completed a shadow study (Appendix A). - Council may wish to secure that future buildings be stratified as individual units prior to issuance of an occupancy permit (to facilitate future sale without requiring a strata title conversion application). ### PARKING - One driveway access to surface and underground parking via Millstream Road; both buildings share one parking area and vehicle access. - Parking meets Table 4.01.01 of the Zoning Bylaw for Apartments within the City Centre, which requires 1.25 parking stalls per unit, of which 0.25 allotted for visitor parking. - For 113 residential units, developer is providing 142 parking stalls where 29 of those spaces will be allocated to visitors. - If the OCP amendment removing subject properties from the City Centre designation is approved, applicant will require a variance to continue using this parking ratio. As rezoning application was submitted prior to Council’s consideration of OCP amendment, Council may wish to authorize the Director of Planning to issue this variance within the form and character development permit. - Council may wish to require onsite parking stalls be secured to each unit in accordance with the Zoning Bylaw to ensure separate rent is not charged for a parking space. - Council may wish to require onsite parking spaces be equipped with infrastructure so electric charging stations can be installed at a future date without expensive retrofit. ### Table 3: Proposal Data | Permitted by RM9 (Proposed Zoning) | Subject Proposal | |---|---| | Density (FAR and/or min. lot size) | 5.0 FAR | 1.96 FAR | | Height | 6 storeys | 6 storeys and 3 storeys | | Site Coverage | 50% / 75% if in Schedule AE | 63.6% | | Front Setback | 7.5 m | 4.8 m – 8.4 m | | Interior Side Setback | 3.0 m | 3 m for ground floor; 10 m on north side, floors 2–6; 6.6 m on south side, floors 2–6 | | Rear Yard Setback | 7.5 m when abutting a residentially zoned property | 3 m | | Parking Requirement | 142 spaces | 142 spaces | ### PEDESTRIAN, CYCLING AND MOTORIST NETWORK Source pages: 49–59 ## PEDESTRIAN, CYCLING AND MOTORIST NETWORK - Subject properties have direct access from a portion of Millstream Road that runs parallel to Veterans Memorial Parkway, accessing the Parkway at Strandlund Avenue. Proximity affords easy access to the Trans-Canada Highway and Goldstream Avenue. - A sidewalk runs along the frontage from the corner of Wagar Avenue and Millstream Road and terminates at 2645 Millstream Road. It is recommended that the sidewalk be extended along the frontage shared with 2635 Millstream Road to the corner of Marlisa Place and Millstream Road — approximately 37 m of additional sidewalk. - If Council supports requesting the developer install this additional sidewalk, the developer should provide a cost estimate prior to Public Hearing, and the cost may be offset from the General Amenity Reserve Fund contribution. A Section 219 covenant should secure installation. - No bike lanes along the property frontage on Millstream Road; bike lanes run along Veterans Memorial Parkway. - Local transit routes: 46 Dockyard/Westhills, 52 Colwood Exch/Bear Mountain, 53 Colwood Exch/Langford Exch, 57 Thetis Heights/Langford Exch, and 65 Sooke/Downtown. Bus route 50 Langford/Downtown has a bus stop along Goldstream Avenue ~500 m away (future Rapid Transit Network corridor with frequent service). - A Traffic Impact Assessment by Watt Consulting Group confirms development will not impact intersections at Millstream Rd/ Marlisa Pl, VMP/ Peatt Road/ Strandlund Avenue, and VMP/ Massie Rd/ Hoffman Avenue. - A construction parking management plan required prior to issuance of a building permit. ### FRONTAGE IMPROVEMENTS Source pages: 49–59 ## FRONTAGE IMPROVEMENTS - Frontage improvements are the responsibility of the developer and must be installed in accordance with Bylaw No. 1000. Improvements along Millstream Road to include road edge parking (if possible), boulevard landscaping, sidewalks, and street lighting. - Director of Engineering requests additional sidewalk in front of 2635 Millstream Road to connect to corner of Millstream and Marlisa Place. Road dedication may be required; developer to submit frontage drawing for Director of Engineering approval prior to scheduling Public Hearing. Registration of road dedication required prior to Bylaw Adoption if needed. - Installation and costs of frontage improvements may be secured in a Section 219 covenant registered on title prior to Bylaw Adoption. ### INFRASTRUCTURE Source pages: 49–59 ## INFRASTRUCTURE - Sewer runs along Millstream Road; connection point located almost directly across from the subject property. Developer responsible for all connections and upgrades. - Developer required to provide a stormwater management plan. A technical stormwater management memo, approved by the Director of Engineering, required prior to scheduling Public Hearing. A formal stormwater management plan, approved by the Director of Engineering, required prior to building permit issuance. This provision to be secured in the Section 219 covenant. ### FINANCIAL IMPLICATIONS Source pages: 49–59 ## FINANCIAL IMPLICATIONS Rezoning to higher density will increase assessed land value and municipal revenue. Developer responsible for frontage improvements and servicing connections; direct capital costs to City negligible. ### COUNCIL’S AFFORDABLE HOUSING AND GENERAL AMENITY CONTRIBUTION POLICY Amenity contributions per Council Policy summarized based on 113 units. #### Table 4 – Amenity Contributions per Council Policy | Amenity | Amenity Contribution (per unit) | Possible Reductions* | |---|---:|---| | Affordable Housing Reserve Fund | $610 | 50% reduction for units on the 5th and 6th storeys | | General Amenity Reserve Fund | $3,660 | | | **Total (113 units)** | | **$482,510** | ### Table 5 – Development Cost Charges | Development Cost Charge | Cost (per unit) | Total @113 units | |---|---:|---:| | Roads | $3,092.39 | $349,440.07 | | Park Improvement | $1,890 | $213,570 | | Park Acquisition | $1,100 | $124,300 | | Incremental Storage Improvement Fees | $331.65 | $37,476.45 | | **Subtotal (DCCs to Langford)** | | **$724,786.52** | | CRD Water | $1,644 | $185,772 | | School Site Acquisition | $600 | $67,800 | | **TOTAL DCCs** | | **$978,358.52** | ### OPTIONS Source pages: 49–59 ## OPTIONS ### Option 1 That the Planning, Zoning and Affordable Housing Committee recommend that Council: 1. Direct Staff to draft a Bylaw to amend the zoning of the properties located at 2627 and 2631 Millstream Road from the R2 (One- and Two-Family Residential) Zone to the RM9 (Medium Density Apartment) Zone, subject to the following: a) That the applicant provides, as a bonus for increased density, the following contributions per residential unit, prior to issuance of a building permit: i. $610 towards the Affordable Housing Fund; ii. $3,660 towards the General Amenity Reserve Fund; iii. (i) and (ii) are subject to reductions depending on the use and height in accordance with the Affordable Housing and Amenity Contribution Policy; iv. That the total amount of contribution, after reductions, to the General Amenity Reserve Fund may be reduced by the estimated cost of installing additional sidewalk in front of the properties located at 2635 Millstream Road and 2623 Millstream Road; b) That the developer provides, prior to Public Hearing to the satisfaction of the Director of Engineering: i. A technical stormwater management memo that verifies storm water can be adequately managed on-site for the proposed development; ii. A frontage drawing to confirm if road dedication is required to complete all required frontage improvements; and iii. The estimated cost for installing sidewalk within the frontages of 2635 and 2623 Millstream Road, approximately 37 m of additional sidewalk; c) That, prior to Bylaw Adoption, the developer: i. Registers, if necessary, a road dedication plan required in accordance with frontage drawings to the satisfaction of the Director of Engineering; ii. Provides a Section 219 covenant registered in priority of all other charges on title that agrees to the following: 1. That the following will be provided and implemented to Bylaw No. 1000 standards to the satisfaction of the Director of Engineering prior the issuance of a building permit: a. Full frontage improvements, including the installation of sidewalks along the frontage of the properties and along the frontage of 2625 and 2623 Millstream Rd; and b. A storm water management plan; 2. That the developer will connect and be responsible for any upgrades required to the services and utilities required for the development; 3. That a construction parking management plan be provided prior to the issuance of a building permit, to the satisfaction of the Director of Engineering. 4. That the developer registers a strata plan, prior to the issuance of an occupancy permit, that creates individual strata titles for each resident unit; 5. That the developer consolidates the properties prior to the issuance of a development permit; 6. That the required parking stalls for this development are allocated for the use by individuals in each unit and visitors, as required by Bylaw No. 300, and that parking is not separated from individual units nor provided in exchange for compensation separate than that of the residential unit; and a. That 100% of residential parking spaces, excluding visitor parking spaces, shall feature an energized outlet capable of providing Level 2 charging or higher to the parking space; and b. Energized outlets shall be labelled for the use of electric vehicle charging; c. Where an electric vehicle energy management system is implemented (load sharing), a qualified professional may specify a minimum performance standard to ensure a sufficient rate of electric vehicle charging; and