Staff Report — OCP21-0006: Various 2021 Official Community Plan Review Amendments — Climate Action

Proposed revisions

Objective 2.6 is amended by striking out the targets above and substituting with 1 – 11 below.

Overarching Targets

1. Decrease per-capita community GHG emissions from residential energy consumption by 10% below 2020 levels by 2030
2. Reach Net-Zero in corporate operations by 2050
3. Decrease per-capita community-wide GHG emissions by 61% from 2007 levels by 2038
4. Work with BC Transit to increase the proportion of residents within a 5-minute walk to frequent transit stations by 25% by 2030
5. Increase the proportion of local jobs to 0.36 jobs per person by 2038. This will reduce personal vehicle driving distances
6. All areas of Langford’s City Centre will have a walk score of 70 or higher by 2038 (indicating most errands can be accomplished on foot)
7. Discourage urban sprawl by supporting residential density in the City Centre with a Floor Area Ratio (FAR) between 3 and 6
8. Achieve an active transportation system where 42% of all trips are made by walking, cycling and transit by 2038
9. Require 100% of residential parking stalls in new multi-family buildings to be “EV-Ready” for Level 2 Charging
10. Encourage all new buildings and structures to use materials composed of low embodied carbon (e.g mass timber, low carbon concrete)
11. Implement policies that support 25% of all vehicles in Langford to be electric by 2030 (between 7,500 and 8,000 vehicles)

Objective 2.7 Implementation Actions

Existing Provisions

1. Monitor and adapt the strategies contained in CEERS over time to ensure the city is on track to meet the GHG and energy use reduction targets and Climate Action Charter commitments.
2. Increase public awareness and provide informational material on the City’s website and other outlets about the benefits of CEERS

Staff Comments: Use of the best available datasets is fundamental to achievable climate action policy. Council may wish to replace the CEERS targets and policies with revised datasets provided by the CRD and Province in 2021 and a new DP Area for Climate Action.

Staff will report progress annually, and assess whether actions need to be adapted, shifted or updated to reflect changing context or opportunities.

Proposed Revisions and Additions

Objective 2.7 is amended by striking out 1-2 above and substituting A-B below.
A. Monitor GHG reduction targets and policies annually to ensure the City is on track to meet the GHG and energy use reduction targets and Climate Action Charter commitments.
B. Increase public awareness and provide informational material on the City’s website and other outlets highlighting annual GHG emissions.

Appendix W: Development Permit Area for Climate Action

Staff Comments: As a community with a strong development market and a positive working relationship with the development/building sector, Langford is well positioned to adopt a new DP Area for Climate Action.

Much of the work to date around GHG reductions has centred on the siting of buildings, proximity to transit, or equipment and systems external to buildings and other structures (e.g., rainwater collection systems, geothermal systems). The next big step is to focus on a reduction of total embodied carbon in buildings. Embodied carbon in a building context refers to the total GHG emissions created through a building’s lifecycle – from material extraction through manufacturing, transportation, construction, maintenance, and end-of-life disposal or reuse.

The Province’s CleanBC Roadmap 2030 Strategy makes low embodied carbon a key strategy for 2023 and beyond.

The City is already ahead of the curve through its recently adopted Carbon Mineralization Policy (POL-1067) and the EV-Ready policy. These policies are designed to help the City reach its targets for residential GHG emissions and on-road transportation by 2030 and become net-zero by 2040.5

However, the specific powers for DP Areas with respect to climate action is still under legal review. It is not yet clear if carbon mineralization falls under the regulatory powers of DP Areas. Council may wish to support the adoption of a DP Area for Climate Action in principle, subject to a full legal review, and then staff will report back prior to implementation. It is expected the DP Area would apply to the entire City, which will capture all future multi-family buildings as well as other types of buildings as deemed appropriate by Council. Additional climate action strategies could also be added over time.

5 Net-zero in this case refers to operations that remove (sequester) more GHG from the atmosphere than they produce over their lifecycle.

Proposed Changes:

1. The following applies to those lands identified as being within the Climate Action Development Permit Area:

I. The use of low embodied carbon building materials in all City-led capital improvement projects and private construction projects, using post-industrial CO2 mineralization technology, or an equivalent which offers concrete with lower embodied C02 than all other competing bids, where use of such materials does not significantly increase costs or delay the project (Subject to a legal review)

II. Track total embodied carbon for all new concrete projects, using Type III Environmental Product Declarations, where applicable (Subject to a legal review)

III. Require 100% of resident parking stalls in new developments containing multi-family residential units to be energized and capable of providing L2 charging in the future.

IV. Where EV charging is required, the following must be included at the time of building permit application: a. A site plan that shows the location, number and specifications of all energized parking spaces; and
b. A memo from an electrical engineer that verifies that the load capacity of the building can provide L2 EV charging to all residential stalls.

V. Where load sharing is employed, an electrical engineer shall verify that Level 2 charging can achieve at least 12kWh per vehicle over an eight-hour period when all vehicles are charging simultaneously (i.e. allocate at least 8A per vehicle on a 208V or 240V circuit, if all vehicles are sharing power equally).

VI. No more than 1 vehicle should be able to charge on a 20A circuit and no more than 2 vehicles on a 30A circuit.

VII. Greater allowable levels of sharing are possible beyond 80A (See Table 1 below).

VIII. Where Environmental Management Systems are employed, the developer shall provide and install all communications equipment, control systems, and other devices required to operate the EVEMS and include a covenant that requires the strata to maintain the EMS in perpetuity.

IX. The developer shall ensure that all necessary permits, authorizations and variances under the Safety Standards Act, SBC 2003, c. 39, and the Electrical Safety Regulation, BC Reg. 50/2017, have been obtained for the installation and operation of the EVEMS, prior to occupancy permit.

X. Prior to occupancy permit, the owner shall provide a compliance form certified by a registered professional or qualified electrician, confirming that the energized spaces, and equipment meet the requirements of the EV plan.

XI. Where an EVEMS is implemented (Load Sharing), provisions for management and maintenance should be provided to the building owner, strata and/or dwelling unit owner.

XII. Where load sharing is employed, the following table (Table 1) provides the minimum performance standard:

New MURB Developments EV Ready Level 2 Performance Requirements for Langford

ADDITIONAL HOUSEKEEPING

Sand and Gravel
In accordance with the Local Government Act Section 473(1)(c), an OCP must include statements and map designations for the area covered by the plan respecting sand and gravel deposits. Considering the above, Council may wish to add the following as section 13.20 to the OCP:

• As a fully urbanized municipality, there are no sand and gravel deposits suitable for sand and gravel extraction in the City of Langford.

FINANCIAL IMPLICATIONS

There are no financial implications for the above noted amendments. While many of the actions discussed in this report can be accomplished within existing service levels, any increased service adjustments would be vetted through Council prior to implementation.

LEGAL IMPLICATIONS

Tracking and Reporting GHG emissions
The City of Langford is bound by the Local Government Act (LGA) and its commitments as a Signatory to the BC Climate Action Charter and its statutory obligations under Bill 27 with respect to setting GHG reduction targets and tracking emissions. However, only one target must be defined as the emissions reduction target; others may include targets related to land use, transportation or other planning activities that have an effect on energy use in the community. This is typically expressed as either a percentage reduction, or a number of tonnes reduction. Bill 27 does not require an inventory to be included within the OCP. It is possible to identify actions in an OCP without having an inventory.

Establishing Development Permit Area for Climate Action
The LGA provides the authority for local governments to designate areas and/or specify circumstances in which development approval information can be required. The DPA authority is intended to apply to specific features or equipment that are exterior to buildings. It’s possible that carbon mineralization will not fall under these DP powers as this policy is considered internal to the building. Staff have consulted with the city’s legal team and will report back to Council as soon as possible.

OPTIONS

Option 1 THAT the Planning, Zoning and Affordable Housing Committee recommend that Council:

Direct staff to prepare a bylaw to amend to the Official Community Plan such that:

1. Objective 2.4 is amended by striking out the existing provisions and substituting the following:
   a. In order to implement the objectives of this OCP and fulfill the Climate Action Charter and Bill 27 requirements, the City will align long-term emissions reduction targets with Provincial and Regional energy and emissions strategies, where appropriate, in collaboration with local industry and institutions, other levels of government, neighboring municipalities, and First Nations, for the development and execution of climate action and resiliency initiatives.
   b. Set targets for reducing GHGs within the City and track and maintain these targets. Integrate these measures into the decision-making process.
2. Objective 2.5 is amended by striking out the existing provisions and substituting the following:
   a. Align GHG reduction targets with energy and emissions targets set by the Regional and Provincial governments, where appropriate. Continue to create and maintain mechanisms to incorporate emission reductions and overall climate considerations into municipal decision-making process.
   b. Collaborate with neighbouring municipalities and other external agencies to implement related GHG reduction targets.
3. The following is added as section 13.20:
   a. As a fully urbanized municipality, there are no sand and gravel deposits suitable for sand and gravel extraction in the City of Langford.
4. Objective 2.6 is amended by striking out the OCP overarching targets and substituting with the following:
   a. Decrease per-capita community GHG emissions from residential energy consumption by 10% below 2020 levels by 2030;
   b. Reach Net-Zero in corporate operations by 2050;
   c. Decrease per-capita community-wide GHG emissions by 61% from 2007 levels by 2038;
   d. Work with BC Transit to increase the proportion of residents within a 5-minute walk to frequent transit stations by 25% by 2030;
   e. Increase the proportion of local jobs to 0.36 jobs per person by 2038. This will reduce personal vehicle driving distances;
   f. All areas of Langford’s City Centre will have a walk score of 70 or higher by 2038 (indicating most errands can be accomplished on foot);
   g. Discourage urban sprawl by supporting residential density in the City Centre with a Floor Area Ratio (FAR) between 3 and 6;
   h. Achieve a transportation system that sees 42% of all trips made by walking, cycling and transit by 2038;
   i. Require 100% of residential parking stalls in new developments containing multi-family residential units to be “EV-Ready”;
   j. Implement policies that support 25% of all vehicles in Langford to be electric by 2030 (between 7,500 and 8,000 vehicles);
   k. Encourage all new building and structures to use materials composed of low embodied carbon (e.g mass timber, low carbon concrete).
5. Objective 2.7 is amended by striking out 1-2 above and substituting a-b below.
   a. Monitor GHG reduction targets and policies annually to ensure the City is on track to meet the GHG and energy use reduction targets and Climate Action Charter commitments.
   b. Increase public awareness and provide informational material on the City’s website and other outlets highlighting annual GHG emissions.
6. By creating a new Climate Action DP Area designation;
   AND Direct staff to prepare a bylaw to amend to the Zoning Bylaw:
7. By adding the following as Appendix W – DP Area for Climate Action:
   a. Require the use of low embodied carbon building materials in all City-led capital improvement projects and private construction projects where use of such materials does not significantly delay the project (this will be subject to legal review);
   b. Track total embodied carbon for all new concrete projects, using Type III Environmental Product Declarations, where applicable (subject to legal review);
   c. Require 100% of resident parking stalls in new developments containing multi-family residential units to be energized and capable of providing L2 charging in the future;

d. Where EV charging is required, the following must be included at the time of building permit application:

i. A site plan that shows the location, number and specifications of all energized parking spaces; and

ii. A memo from an electrical engineer that verifies that the load capacity of the building can provide L2 EV charging to all residential stalls;

e. Where load sharing is employed, an electrical engineer to verify that Level 2 charging can achieve at least 12kWh per vehicle over an eight-hour period when all vehicles are charging simultaneously (i.e. allocate at least 8A per vehicle on a 208V or 240V circuit, if all vehicles are sharing power equally;

f. The developer shall ensure that all necessary permits, authorizations and variances under the Safety Standards Act, SBC 2003, c. 39, and the Electrical Safety Regulation, BC Reg. 50/2017, have been obtained for the installation and operation of the EVEMS, prior to occupancy permit;

g. Prior to occupancy permit, the owner shall provide a compliance form certified by a registered professional or qualified electrician, confirming that the energized spaces, and equipment meet the requirements of the EV plan;

h. Where an EVEMS is implemented (Load Sharing), provisions for management and maintenance should be provided to the building owner, strata and/or dwelling unit owner;

i. No more than 1 vehicle should be able to charge on a 20A circuit and no more than 2 vehicles on a 30A circuit;

j. Greater allowable levels of sharing are possible beyond 80A (See Table 1 below);

k. Where Environmental Management Systems are employed, the developer shall provide and install all communications equipment, control systems, and other devices required to operate the EVEMS and include a covenant that requires the strata to maintain the EMS in perpetuity;

l. Where load sharing is employed, the following table (Table 1) provides the minimum performance standard:

New MURB Developments EV Ready Level 2 Performance Requirements for Langford

OR
Option 2
THAT the Planning, Zoning and Affordable Housing Committee recommend that Council:

1. Do nothing at this time with respect to amending the OCP and establishing a new Development Permit Area for Climate Action.

SUBMITTED BY: David Sametz, MCIP, RPP, Long Range Planner II

Concurrence:
Leah Stohmann, MCIP, RPP, Deputy Director of Planning and Subdivision
Concurrence:
Matthew Baldwin, MCIP, RPP, Director of Planning and Subdivision
Concurrence:
Donna Petrie, Manager of Business Development and Events
Concurrence:
Matthew Baldwin, MCIP, RPP, Director of Planning and Subdivision
Concurrence:
Michelle Mahovlich, P.Eng, P.Geo, Director of Engineering and Public Works
Concurrence:
Michael Dillabaugh, CPA, CA, Director of Finance
Concurrence:
Marie Watmough, Acting Director of Corporate Services
Concurrence:
Darren Kiedyk, Chief Administrative Officer

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Staff Report to Council

t 250.478.7882
e administration@langford.ca
2nd Floor, 877 Goldstream Avenue
Langford, BC V9B 2X8

DATE: Monday, March 21, 2022
DEPARTMENT: Planning
APPLICATION NO.: OCP21- 0006 – Bylaw 2031
SUBJECT: Various OCP Amendments

BACKGROUND

On February 14, 2022, the Planning, Zoning and Affordable Housing Committee (PZAH) recommended that Council direct staff to make various amendments to the Official Community Plan to align the City’s climate action strategies with the Provincial and Regional government’s broader action on climate change. These strategies include setting specific targets for decreasing the City’s carbon footprint as well as recommendations for establishing a new Development Permit Area (DPA) for Climate Action.

The purpose of this report is two-fold: 1) to present Council with Bylaw 2031 for First Reading with the addition of requiring all City-owned vehicles (excluding emergency vehicles) to be electric by 2027 as drafted, and 2) seek Council direction with respect to providing additional consultation to developers and members of the public prior to bringing forward draft DPA guidelines for Council’s review.

COMMENTARY

Following PZAH’s resolution of February 14, 2022, staff have reviewed best practices for establishing DPAs for Climate Action and are now recommending additional collaboration with the local development community prior to drafting new guidelines.

If Council supports these changes, they may wish to provide First Reading to Bylaw 2031 as drafted, and direct staff to host an information session regarding establishing a DPA Climate Action guidelines prior to bringing forward options for Council’s review. Staff will work with the West Shore Developers Association and other stakeholders to develop options for green building strategies and present this information to the public. Examples of various strategies include installation of solar panels, water conservation measures, landscape design, pedestrian and cycling routes, building orientation, or other specific features of the building that conserve energy. The key to an effective DPA strategy relies on meaningful consultation with builders, developers, and members of the public.

FINANCIAL IMPLICATIONS

A breakdown of the costs associated with converting the City’s vehicle fleet to electric, including installation of electric vehicle (“EV”) charging stations, was beyond the scope of this proposal. These costs will be evaluated during existing budget cycles and vetted through Council prior to implementation.

The remaining actions discussed in this report can be accomplished within existing service levels.

LEGAL IMPLICATIONS

The Local Government Act (LGA) provides the authority for local governments to designate areas and/or specify circumstances in which development approval information can be required. The DPA Climate Action authority is intended to apply to specific features or equipment that are exterior to buildings, related to energy conservation, water conservation and GHG reduction provisions. The LGA powers do not apply to features internal to the building or other features specifically prohibited under sections of the Building Act.

OPTIONS

Option 1
THAT Council consider giving First reading to Bylaw No. 2031 as drafted;

AND

THAT Council direct staff to host an information session with members of the development community and public to establish DP Area Climate Action parameters prior to bringing forward draft DP guidelines for Council’s review;

OR Option 2
THAT Council
Do not provide First Reading to Bylaw No. 2031 or instruct staff to prepare a bylaw establishing a DP Area for Climate Action.

SUBMITTED BY: David Sametz, MCIP, RPP, Long Range Planner II

Concurrence:
Leah Stohmann, MCIP, RPP, Deputy Director of Planning and Subdivision
Concurrence:
Donna Petrie, Manager of Business Development and Events
Concurrence:
Matthew Baldwin, MCIP, RPP, Director of Planning and Subdivision
Concurrence:
Michelle Mahovlich, P.Eng, P.Geo, Director of Engineering and Public Works
Concurrence:
Michael Dillabaugh, CPA, CA, Director of Finance
Concurrence:
Marie Watmough, Acting Director of Corporate Services
Concurrence:
Darren Kiedyk, Chief Administrative Officer