Rockland Neighbourhood Association:  Land Use Committee

This file has three parts relating to 1322 Rockland:

1.  Letter from RNA to the City September 29, 2007

2.  Reply by the City, October 5, 2007

3.  Land Use Committee Report, Rezoning Proposal 1322 Rockland,  22 August 2007

Earlier information about rezoning of this property may be found here.

1.

ROCKLAND NEIGHBOURHOOD ASSOCIATION

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Mayor and Council
City of Victoria
#1 Centennial Square
Victoria, BC  V8W 1P6
                                                                                                                                29 September 2007
Mayor and Council:

RE: Rezoning Application, 1322 Rockland Ave. and 950 Royal Terrace

This application proposes the construction of 25 condo units plus the restoration of the Macklem mansion and coach house to contain 4 units. On September 5, the Rockland Neighbourhood Association sponsored a community meeting that was attended by roughly 190 people. Based on feedback from this gathering, and the attached analysis of the RNA Zoning Committee, we respectfully request that you reject this application.

At the meeting, several attendees spoke in favour of the proposal's configuration and the possibility of single-level dwellings. A large majority opposed the proposal, particularly because of the proposed density. Additional questions were raised about the projected costs, scope of the interior mansion restoration, and benefits of the proposal for the neighbourhood; and the short and long-term effects of blasting and increased traffic. Many remarks addressed the Rockland Neighbourhood Plan. A majority expressed support for the principles of the current plan, while a significant minority encouraged a robust planning review that would incorporate more perspectives.

In addition, we respectfully draw your attention to the following points:

•    Committee of the Whole postponed a proposal with a similar configuration and comparable density (30 units instead of 29) on 6 April 2006. Some of the concerns raised then by councillors and the Director of Planning apply to this proposal as well.
•    The most significant amenity this proposal offers, restoration of the mansion, would be privately enjoyed by the occupants of three units. The proposed "pocket park" and vaguely defined Pemberton trail are not commensurate with the multi-million dollar uplift that is envisioned or suitable substitutes for the existing landscape.
•    The application proposes several precedent-setting variances: apartment-style dwellings in the heart of an R1-A neighbourhood; large-scale development in the front yard of a mansion; 4 units placed on a single R1-A lot (950 Royal Terrace) after it is amalgamated; and building heights over 2 metres above the R1-A limits for attached dwellings. It is not clear why a single application should be allowed so many exemptions in exchange for modest community benefits.

The Planning Department has repeatedly recommended low-density townhouse clusters and units in the heritage structures, a strategy that has been very profitable on similar Rockland properties. While the property may warrant a resourceful approach to zoning, it is difficult to contemplate 25 condos and underground parking on property currently zoned for 7 townhomes.

Despite the obvious development promise for this property, the density and configuration envisioned by this plan is not acceptable. It was vigorously rejected by the majority of community meeting attendees. We respectfully note that Rockland residents have diligently considered multiple scenarios for this property that far exceed the current community standards.

We urge you to encourage a change of course by rejecting this application outright. If any version of this proposal does receive further consideration, the proposed mansion renovations should be legally guaranteed by a master development permit or heritage revitalization agreeement.

Respectfully submitted,


Rockland Neighbourhood Association


cc: Deb Day
      Brian Sikstrom
      Steve Gauley
      Penny Ballantyne
      Earl Large

2.  Reply from the City of Victoria, October 5, 2007

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  3.
Land Use Committee Report
<>Rezoning Proposal 1322 Rockland
DT: 22 August 2007

SUMMARY:
"1322 Rockland" is a parcel of roughly 2.19 acres made up of 2 lots: the Carolyn Macklem mansion and coach house, zoned RN-2 (the standards of R1-A apply), and an adjoining R1-A lot facing Royal Terrace. The mansion and coach house are protected by a 1985 heritage covenant. The property is in the heart of a residential neighbourhood of heritage buildings and single-family homes.

The applicants propose 29 units total: two 3-story condo buildings with 21 units, a quadplex with 4 units, and 4 units in the mansion and coach house. The plans designate 50 resident parking spaces--38 in an underground parkade and 12 in garages for mansion, coach house, and quadplex--plus driveways for the quadplex and 5 stalls of visitor parking. The proposal would demolish later additions to the mansion and restore/preserve heritage aspects of the mansion interior and façade (as yet unspecified). A "Rockland Station" pedestrian display next to Rockland Avenue would provide information about the mansion. A "Pemberton Trail" route that runs northeast through the property would provide public access. The available plan does not designate site coverage.

This proposal meets a neighbourhood objective with restoration of the Macklem mansion (a master development permit or heritage revitalization agreement may be considered). However, other basic objectives and principles are not met. In Rockland, low-density townhouses have successfully accompanied robust heritage conversions (for example, the "Wilmar" on St. Charles). In this proposal, the density in existing buildings is relatively low, but the envisioned uplift for new condos (250%) far exceeds the usual allowance for residential rezoning. The loss of Garry Oak habitat, the increased traffic and safety concerns, and the diminished status of the mansion are all inconsistent with the principles of the Rockland Neighbourhood Plan (RNP). The proposal would set several precedents, including the introduction of condos into a neighbourhood of ground-oriented dwellings; the siting of attached dwellings in a mansion's front yard; and a 4-fold uplift in density for an R1-A lot by amalgamating it into a larger development. These precedents would have a far-reaching effect if they were followed in the numerous settings in Rockland where they might be applicable.

COMPARISON WITH THE NEIGHBORHOOD PLAN:
The goals of the Rockland Neighbourhood Plan (RNP) are that new construction be consistent with an R1-A zoned, single-family neighbourhood; preserve and enhance Rockland's heritage buildings and streetscapes; and retain private green space and distinctive landscape features (Rockland has no public parks). Issues include departures from R1-A zoning, other policies of the RNP, and from Planning Department recommendations recently endorsed by Council (Aug 2006). 

Density: R1-A/B zoning and current Planning policies theoretically allow construction of 7 townhouses or 8 single-family homes and up to 15 units in existing buildings. The proposal is for 25 new condos, an uplift of over 250% for new construction of attached dwellings.

Unit Type: The R1-A zone supports ground-oriented homes (townhouses, single-family dwellings), and preservation of heritage buildings with robust conversions for multiple dwellings. This proposal combines relatively low occupancy in the mansion with condo buildings.

Height: The R1-A maximum for townhouses is 2 1/2 stories and 10.5 m. The condo proposals, for 3 full stories, assume an average grade above actual ground level and designate heights to mid-roof line of 12.5 m and 12.76 m.

Setbacks: The R1-A front-yard setback is 10.5 m. The proposed setback for the quadplex from Royal Terrace is 7.5 m. Planning has affirmed a 10.5 m setback here as a siting principle (11 August 2006).

Attached dwelling siting: R1-A zoning and the RNP require side or rear-yard siting of townhouses. The proposed front-yard siting (of condos) would be a significant precedent.

Green space and landscape: The proposal would remove protected Garry Oak habitat and distinctive rocky outcroppings. This would likely include a large oak noted on the western line, as both condo buildings and the parkade footprint fall within the tree's drip line. It is questionable that this exchange of mature attractive landscape for turf over the parkade is a "green space amenity."

Blasting impact: The parkade footprint is within 12 m. of three different heritage buildings: the Macklem mansion, Galt House and 1015 Gillespie. A full analysis should assess the possible impact on these structures and on any underground water courses or springs on the property.

Mansion "breathing room:" Planning notes a minimum site area of 2800 sm for the mansion as a siting principle (11 August 2006). While no subdivisions are designated on the available plan, the proposed siting does not appear to allow 2800 sm. The proposed distance between the mansion and condo bldg. B is between 7 m and 10.5 m.

View of mansion in context: Planning has proposed a "view corridor" as a siting principle for this property (11 August 2006), although this departs both from R1-A zoning and the RNP. The proposed view corridor is narrower than Planning's principle, particularly on the south side. The mansion's stature would be diminished in context since the footprints of all three new buildings are larger than the mansion and the two condo buildings exceed it in building height. The floor area of condo bldg. B (25,318 sf) is roughly 2 1/2 times that of the mansion (10,275 sf).

Lot amalgamation: Lot 35717, facing Royal Terrace, is an R1-A lot that by itself can accommodate one single-family dwelling. Upon incorporation into the larger property, it becomes the site of a quadplex. This maneuver would change the existing streetscape and the precedent of uplift through amalgamation could have substantial implications for future development proposals.

Driveway: The proposed entrance assumes access through City property and places a parkade entrance near a curve on Rockland Ave. The safety issues of available sight lines and the scale of parkade ingress/egress merit a traffic study.

Pemberton Trail: A public-access route is proposed to allow access to the mansion façade and the property's landscape. This amenity should be considered in the context of its proximity to new townhouse walls and the substantial changes to the landscape that the parkade blasting will require. It is not clear that public access could be enforced if the new owners deemed it undesirable.