2017-09-06 Growth Committee Agenda Packet - Open SessionCity of Saint John
Growth Committee - Open Session
AGENDA
Wednesday, September 6, 2017
11:15 am
8th Floor Boardroom, City Hall
1. Call to Order
Pages
1.1 Approval of Minutes - August 1, 2017 1 - 2
1.2 Discussion on 1671 Sandy Point Road and Tucker Park (Deputy Mayor McAlary) 3 - 3
1.3 Population Growth Progress
1.3.1 Initial Overview: Population Growth 4-12
1.3.2 Update on NB Immigration - Rob Kelly 13-17
1.4 1671 Sandy Point Road Development 18-110
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MINUTES - OPEN SESSION GROWTH COMMITTEE MEETING
AUGUST 1, 2017 AT 3:00 P.M.
Stn FLOOR BOARDROOM, CITY HALL
Present: Mayor D. Darling
Deputy Mayor S. McAlary
Councillor G. Lowe
Councillor J. MacKenzie
Councillor B. Armstrong
Absent: Councillor R. Strowbridge
Also
Present: City Manager J. Trail
Commissioner Growth and Community Development J. Hamilton
Deputy Commissioner Growth and Community Development P. Ouellette
Deputy Commissioner Building and Inspection Services A. Poffenroth
Director Strategic Real Estate Services S. Carson
Population Growth Manager A. MacKinnon
Senior Financial & Economic Analyst B. Zirobwa
Development & Research Co-ordinator K. Davis
Planner J. Kliffer
Administrative Assistant K. Tibbits
1. Meeting Called To Order
Mayor Darling called the Growth Committee open session meeting to order.
1.1 Approval of Minutes
1.1.1 Minutes of June 6, 2017
Moved by Councillor Lowe, seconded by Councillor Armstrong:
RESOLVED that the minutes of June 6, 2017 be approved.
MOTION CARRIED.
1.1.2 Minutes of July 5, 2017
Moved by Councillor Lowe, seconded by Councillor Armstrong:
RESOLVED that the minutes of July 5, 2017 be approved.
MOTION CARRIED.
to be incorporated into the Roadmap for Smart Growth.
Mr. Kliffer commented on the Development Award Program, noting that it is modeled after the
Heritage Awards. The idea is to highlight citizens within the community that have completed
work on their properties. It would broaden the scope of the Heritage Awards program and
include properties that have gone through the Beautification and/or other incentive programs.
Ms. Davis commented on the Property Matching Program. It would provide an opportunity for
the City to promote vacant buildings and lots in the uptown core to the development
community to increase density, development and tax base growth. Owners would be required
to complete a waiver in order to participate. The City would not be involved in the actual sale
between the owner and developer, but it would provide owners an avenue to promote their
properties. The City currently cannot release the names of property owners to potential
developers, however this program would provide an avenue to legally allow for this.
Moved by Deputy Mayor McAlary, seconded by Councillor Lowe:
RESOLVED that the Growth Committee adopt the following changes to the Roadmap for Smart
Growth for Common Council's consideration:
1. Addition of "ESJ is targeting to create 250 new jobs from external investors, 500 new
and retained jobs from high potential businesses and 40 new jobs from start-ups and
entrepreneurs by end of 2017";
2. Addition of "HDC to establish the Saint John Local Immigration Partnership Council by
end of 2017";
3. Replace Action Item #14 "Release of Saint John's Immigration Strategy" with "HDC to
establish a Local Immigration Partnership Strategy for Saint John be the end of 2018";
4. Addition of "The City of Saint John will launch a development award program by the end
of 2017";
5. Addition of "The City of Saint John will launch a vacant property and lot matching
program by end of 2017";
6. Addition of "The City will review and pursue development opportunities for 90-102
Mecklenburg St., 45 Boars Head Road, 50 Carleton Street and the parking structure at
the southwest corner of Grannan Lane and Canterbury Street."
AND BE IT FURTHER RESOLVED, that the Growth Committee recommend to Common Council
that the City Manager be directed to allocate a maximum of $15,000 from the remaining
Growth Reserve Fund to support the development of the Development Award Program.
MOTION CARRIED.
Adjournment
Moved by Councillor Armstrong, seconded by Councillor Lowe:
RESOLVED that the open session meeting of the Growth Committee be adjourned.
MOTION CARRIED.
The open session meeting of the Growth Committee held on August 1, 2017 was adjourned at
4:30 p.m.
Recording Secretary
-----Original Message -----
From: McAlary, Shirley
Sent: August 3, 2017 8:27 AM
To: Trail, Jeff; Darling, Don; Lowe, Gerry; MacKenzie, John; Armstrong, Blake; Strowbridge, Ray;
McAlary, Shirley; Hamilton, Jacqueline; Ouellette, Phil
Subject: Re: Item for the Growth Committee Agenda
Hi Everyone:
I am requesting that we place on the next Growth Committee Meeting an item for in depth
discussion on two of the items on our Roadmap for Growth; those being, city owned land at Tucker
Park and land on Sandy Point Road near Rockwood Park.
It would be better to have this discussion before recommendations are made by staff however if the
majority of members would prefer not to have this item placed on the next agenda or have a special
meeting arranged to discuss it then whatever happens will be.
In all fairness when we created this Roadmap and announced it to the public, I feel that we as a
committee didn't have much or very little discussion on some of the items that we placed on the
Roadmap.
Many thanks, Shirley
Shirley McAlary
Deputy Mayor / Mairesse suppleante
CIty of Saint John, N.B. / N. -B.
(506) 977-3852 or (506) 648-0487
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GROWTH COMMITTEE REPORT
M&C No.
# fol"tild cm sharel.roint
Report Date
August 23, 2017
Meeting Date
September 06, 2017
Service Area
Growth and Community
Development Services
His Worship Mayor Don Darling and Members of the Growth Committee
SUBJECT: 1671 Sandy Point Road Development
OPEN OR CLOSED SESSION
This matter is to be discussed in open session of Common Council.
AUTHORIZATION
Primary Author
Commissioner/Dept. HeadCity
Manager
Jody Kliffer/Phil
Ouellette
Jacqueline Hamilton
Jeff Trail
RECOMMENDATION
Staff recommends that the Growth Committee make the following
recommendation to Common Council:
1. Initiate the Municipal Plan Amendment and Rezoning process for
a parcel of land with an area of approximately 5.18 hectares,
located at 1671 Sandy Point Road also identified as being PID No.
00418129 on September 18, 2017. The Municipal Plan
Amendment and Rezoning would seek to:
• Redesignate, the parcel of land on Schedule A of the Municipal
Plan from Park and Natural Area to Stable Area;
• Redesignate, the parcel of land on Schedule B of the
Municipal Plan from Park and Natural Area to Stable
Residential Area; and
• Amend the Zoning By -Law by rezoning the parcel of land from
Park (P) to Mid -Rise Residential (RM).
2. Direct the City Manager to undertake additional public engagement, as
defined in this report, with the community and key stakeholders in order
to enhance public awareness, clarify the scope of the rezoning and plan
amendment and details of the intended and future use.
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EXECUTIVE SUMMARY
The purpose of this report is to present the options for the subject site at 1671
Sandy Point Road. The site is a 15 hectare lot located in the northern part of
Sandy Point Road between the golf course and Cherry Brook Zoo. The site is a
predominantly cleared site located on the perimeter of Rockwood Park that is
capable of supporting future development. Staff have researched various
options for the site and based on a sound planning rationale are recommending
Council consider the option of developing the site for medium -density
residential. This option infills a vacant property on a developed corridor within
the Primary Development Area where infrastructure exists, is compatible with
adjacent development, provides an opportunity to improve public access into
the Park while creating a boundary to conserve the Park and generates revenue
and tax -based growth which can support future investment in the park. Staff
recommend that several conditions be considered as part of the purchase and
sale agreement that would regulate the form of development to ensure a high
quality development, and that Rockwood Park benefits from the development.
PREVIOUS RESOLUTION
Direct the City Manager to report back to the Growth Committee by August 2017
with a detailed plan to initiate necessary approvals, public engagement,
timelines and other considerations for potential development of PID No.
00418129 on Sandy Point Road.
STRATEGIC ALIGNMENT
Common Council has adopted a new set of Council Priorities: 2016-2020 in early
November 2016, and under the heading of "Growth and Prosperity," the
following is stated: "Saint John is recognized by residents and businesses as a
positive and supportive city. We grow in a smart way and attract talent,
innovation and opportunities so all people can thrive." In addition, Council
adopted key performance indicators to evaluate its ability to Grow SJ, including,
among others: "Building permit value," "Change in tax base assessment within
the City," "Change in population." Finally, Saint John Common Council adopted
the Roadmap for Smart Growth on Monday March 27t", 2017.
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REPORT
Background: History of Events
Prior to the installation of water and sewer services along Sandy Point Road in
2004, the water pressure in the northern part of Sandy Point Road and
Kennebecasis Drive was poor. The land owners of what is now Fieldstone Estates
stated that they would not be able to go forward with the development of the
proposed subdivision if the servicing was not enhanced. In addition, several
private wells along this section of Sandy Point Road were reportedly in poor
condition. Allowing these residents the opportunity to hook into City
infrastructure provided a more reliable service delivery of water and sewer.
The City consulted with the community during this time to get feedback on
rezoning a portion of the road to single-family residential in order to maximize
the city's investment made in the installation of piped water services to the area.
The community largely supported the concept, and the process to amend the
Municipal Plan and rezone the property was advertised and vetted through a
public hearing process at Common Council. The properties between Cranberry
Hill and the Zoo were rezoned to low-density residential in 2005 as a result.
The property at 1671 Sandy Point Road was owned by the City and functioned
well for a laydown area for the reconstruction of the road. The rock placed on
the site from the street reconstruction was graded in a way to facilitate future
development as that was the intention with the rezoning of the area to low-
density residential. Water and sewer services were stubbed to the edge of the
property to support eventual development.
In 2008, a proposal for a high-density development came forward for the
property at 1671 Sandy Point Road. The developer began the rezoning process
that would place the site in a high-density residential zone to construct two
buildings that would have a total of approximately 160 units.
The public reacted strongly in opposition to the proposed rezoning, which led to
t the withdrawal of the application and the City to undertake a planning study
for the corridor to better understand the highest and best use for the entire
length of Sandy Point Road.
The study was conducted in 2010 by ADI on behalf of the City, which included a
public workshop, an open house, one-on-one meetings with interest groups, and
a public survey as engagement tools used to solicit public feedback.
The consultant's recommendations reflected themes that arose during the public
engagement and included a proposed expansion of Rockwood Park, proposed
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development along Sandy Point Road in areas that were already disturbedto
capitalize on previous infrastructure investment, and increased access to the
park for the general public. The recommendation was to use the proceeds from
the sale of the land to enhance the trail systems of the Park, including trails that
would integrate the proposed developments and link to Harrigan Lake. The
report also recommended that the boundary of Rockwood Park be formally
established, and that no development beyond medium residential density be
permitted. The recommendations included a set of design guidelines to ensure
environmentally sensitive design would be incorporated into a unique
'Rockwood Park' design style.
Staff generally supported the findings of the ADI report, with modest changes
proposed to the recommendation. The Rockwood Park Advisory Board also
approved of the concept, with minor changes recommended.
In April, 2011 Council rejected the staff recommendation and voted in favour of
beginning the process to rezone the lands on Sandy Point Road to "P-2" Park,
which did not allow for residential development. For more detail on the
sequencing of events as it relates to the ADI proposal, please see the attached
presentation (Appendix 1) given to Growth Committee in July 2017.
Previous reports and presentations to Growth Committee
In March 2017, Growth Committee and Common Council adopted the Roadmap
for Smart Growth, which included action item number 30: "Review and pursue
Sandy Point Road municipal property development opportunities."
At the June 2017 meeting of the Growth Committee, Staff prepared a
presentation of past research and considerations associated with development
of municipal lands along Sandy Point Road. The presentation included:
• A Chronology of events since 2004;
• Summary of the consultant's recommendation;
• Staff 2011 recommendation;
• Staff current recommendation.
Staff committed to providing the Committee with the following information that
outlines next steps to proceed with development 1671 Sandy Point Road (PID
No. 00418129):
• Analysis on maximum and best use;
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• Proposed municipal approvals;
• Key zoning considerations;
• Necessary public engagement;
• Timelines.
During the July Committee meeting of the Growth Committee, the Friends of
Rockwood Park were invited to present before Committee Members and share
their feedback and concerns associated with the proposed development of the
subject site. Among various feedback, representatives from Friends of Rockwood
Park stated during that presentation that they had reservations about the
development of the site and questioned whether there was adequate market
demand for new residential development.
Building a Recommendation
In order for staff to bring forward an evidence -based and professional
recommendation to the Growth Committee and Common Council, staff have
investigated various filters (Section A) to inform a recommendation, including:
1. Interpretation of existing development trends;
2. Direct feedback from existing local developers;
3. Legal feedback;
4. Water and sewer capacity feedback.
In addition to the above broad -level review, staff have also completed the
following more detailed assessment (Section B):
1. Planning analysis of different site development scenarios with
corresponding sample renderings as well as assessment of land -use
compatibility, which include options for:
a. Status Quo;
b. Low -Density Residential;
c. Medium -Density Residential;
d. High -Density Residential;
2. Recommended conditions on future developments;
3. Why proceed with a proactive rezoning and plan amendment.
Finally, in order to effectively define the parameters, timelines and engagement
associated with the staff recommendation, another section (Section C) will
include:
1. Timelines;
2. Necessary public awareness.
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Site Context: 1671 Sandy Point Road
The site at 1671 Sandy Point Road is approximately 5.15 hectares with
approximately 184 metres of lot frontage (see Appendix 2: Site Location).
Harrigan Lake is located to the rear of the site. The lot contains a predominantly
forested area to the lake, and a large area in the middle of the property that was
cleared several years ago and graded for potential development (see Appendix 3:
Site Photos). The surrounding context of Sandy Point Road has urbanized over
the past several decades given its proximity to Tuckey Park University and
hospital campus.
The property is bookended by existing residential developments to both the
north and south. These properties are located in the One -Unit Residential (R1)
zone, and are in the Stable Residential future land use designation on Schedule B
of the City's Municipal Plan. Residential dwellings also exist across the street
from 1671 Sandy Point Road. Although there is visual access into the Park, given
the higher elevation of the site, it is physically separated from the Park, and lacks
a formal connection to the remainder of the Park.
In addition, it should be noted that site -prep work was completed on 1671 Sandy
Point Road during the road reconstruction in 2004 was designed, constructed
and inspected to be strong enough to build on. Good quality blast rock only was
used in the fill. An engineering firm supervised the work. Only the top few inches
of the soil have changed in the last decade.
Section A — Overview of Market and Development Trends
1. Interpretation of current development trends
Through engagement with several developers in the region and current market
research, staff have heard that high-end rental options for people predominantly
in the baby -boomer generation are in short -supply in the City. This is consistent
with national trends that reflect similar housing style choices from Vancouver to
Halifax. Baby -boomers or "empty nesters" are downsizing from their large
suburban homes and are seeking smaller housing or rental options with less
maintenance requirements. As identified in Appendix 4, the national and local
trends reflect a demographic shift towards a larger percentage of the Canadian
population being comprised of the baby -boomer cohort. In addition, projections
also indicate that millennials will comprise 50% of the Canadian workforce by
2020 (see Appendix 5: Canadian Workforce). Both of these cohorts prefer
smaller dwelling sizes in comparison to previous generations.
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2. Direct feedback from local developers
Staff have reviewed the option to develop 1671 Sandy Point Road with six
developers from the Saint John region who have been active in various forms of
residential developments around the community, from single detached dwellings
to the construction of new neighbourhoods. The majority of the developers
consulted have led successful projects in the Millidgeville area in the past. The
intention was to better understand if there is existing demand to develop the
site, and what challenges, if any, should be considered through a plan
amendment and rezoning process.
Of the developers engaged, two stated that they would have an active interest in
developing the property if Council were to positively consider the rezoning of the
site. It was also expressed that a medium -density residential development would
be a good form of development that would offer a return on investment
reasonable enough to consider the project.
The following insights were offered by the developers, which provide valuable
perspective that will be useful if Council wishes to contemplate development for
1671 Sandy Point Road.
• The proximity of the Park and the recreational opportunities offered is
the differentiating feature of the property. Access to the park in terms of
a trail system would create a unique selling proposition which competing
developments do not have.
• The target market for the development mentioned would likely include
professionals that work at the university or hospital and have an active
outdoor lifestyle.
• Concern that low density housing on the site would not be economical
for developers given the site infrastructure requirements of installing
new streets and services.
• The highest return on investment would undeniably be high density
residential. Further, it was noted that the Harrigan Lake site is not an
ideal high density location as it is removed from amenities and bus
routing.
• Support for mid -scale development was consistent in most
conversations. There is a general lack of mid -scale offerings in the area,
which creates immediate opportunity in terms of supply. A medium -
density development could be designed in a manner that is respectful to
the surrounding context of Sandy Point Road. It would also provide a
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reasonable tax lift for the City, and would likely provide a return on
investment to a prospective developer.
• Developers consistently noted there is significant risk with a conditional
purchase and rezoning requirement. The existing lobby to prevent
development in this location would preclude most if not all potential
developers from undertaking such a project. By -right development would
create a scenario that removes risk and creates value in the land. The
consensus was the site would generate considerable interest by at least
two of the interviewed developers if the site was zoned for medium -
density residential development.
3. Legal Feedback
There is no legal impediment to Council's ability to rezone and sell the subject
parcel for development. The parcel was never owned by the Saint John
Horticultural Association and, consequently, is not fettered by their legislation
restricting the use of the Association's lands.
It should also be noted that the subject site was included in the area subject to
the development moratorium that was placed on publicly -owned lands along
Sandy Point Road by Council in 2010. This moratorium was lifted once the new
Municipal Plan was adopted in 2012.
4. Water and Sewer Capacity Feedback
Staff engaged CBCL to conduct some analysis on the capacity of water and sewer
pipes that exist in the area of the subject site. Analysis indicates that existing
infrastructure can support the build -out of 1671 Sandy Point Road.
Section B — Review of Site Options
1. Building four different scenarios:
In order to generate a greater awareness of the appearance of potential
development options on the site of 1671 Sandy Point Road, this report includes
sample renderings of low, medium and high density residential. These
renderings are not being proposed by any developer at this time, as they are
simply meant to provide a much needed perspective on the site in the event a
plan amendment and rezoning was granted. These renderings should be
referenced in conjunction with the written rationale for each of the following
four options.
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i. Status Quo Option
As mentioned in the previous staff report, staff believe that 1671 Sandy Point
Road (PID 00418129) is an ideal first step for development focus along Sandy
Point Road. It is the only site among the several municipally -owned properties
along Sandy Point Road that has a pre-existing water and sewer connection
running into the site. As stated above, it is also the only site that has already
received significant site preparation for development, which includes clearing
the site, grubbing the land and adding fill where necessary. Also, as previously
mentioned, there was past geotechnical assessment of the soil, and it was
deemed suitable for development.
The option to proceed with no residential development on the site would result
in no new investment, and no taxed -based growth on the subject property. The
Park (P) zone does permit the development of the site as it would relate to land
uses permitted in the Park (P) zone, which does not include a residential dwelling
among the options. However, considering the existing state of the property, the
immediate context of residential development on both sides of the subject site,
and the investment the City made in placing services in the ground to support
development, this option is not recommended by staff. As the site has been
subject to pre-existing site preparations, it is geographically sandwiched
between two existing private dwellings, and it has no formal connection to the
existing pathways of Rockwood Park, this site will remain ambiguous and
underutilized for years to come without a proactive approach.
The existing parcel of land at 1671 Sandy Point Road is far from reaching its
potential of value for the community, and recognizing that there was and
remains some interest in the site from the development community, staff
believe a decision to leave the site in its existing condition is a missed
opportunity.
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ii. Low -Density Residential
Option Description (see Appendix 6 for reference)
The low density development scenario consists of various single family
dwelling types. This scenario ensures public access to the park and utilizes the
existing topography. A ring road brings vehicles and pedestrians into the site,
following the top of the slope which overlooks the parkland below. In keeping
a public road to this edge, the new trailhead and access to Rockwood Park is
retained as part of the public realm and the public view to the lake is
preserved. Semi-detached homes border the site's southwest while detached
homes dominate the northern edge, consistent with the scale of neighbouring
residences. In this scenario, approximately 86% of the site is retained as green
space. The small footprint of the single family dwelling typology creates
opportunity to follow the land, building into the topography and thus adding
to the visual interest and diversity of the development.
The second option is to permit low-density residential development to occur,
which is generally defined as single -unit or two -unit dwellings. If development
were to occur on the site at this scale, it could accommodate nine single family
homes at approximately 2,200 square feet each, and 24 semi-detached units at
approximately 1,800 square feet each.
Approximate Tax Revenue
The "low scenario" projection for the low-density build -out scenario shown
above assumes an average quality new construction for the proposed single -unit
dwellings, whereas the "high scenario" assumes high-quality new construction.
This option, while in keeping with the existing development context, would
disturb a greater site area, potentially provide a less marketable product, and
generate less revenue as higher density options.
The development of the site for low-density residential dwellings would still
require the construction of a public right-of-way to access the new units,
including the extension of City services. From feedback collected during the
developer engagement to formulate this report, the cost associated with form of
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Low Scenario
High Scenario
Assessment
Assessment
Value
Tax Revenue
Value
Tax Revenue
Low
Density
$7,920,000
$141,372
$11,850,000
$211,523
The "low scenario" projection for the low-density build -out scenario shown
above assumes an average quality new construction for the proposed single -unit
dwellings, whereas the "high scenario" assumes high-quality new construction.
This option, while in keeping with the existing development context, would
disturb a greater site area, potentially provide a less marketable product, and
generate less revenue as higher density options.
The development of the site for low-density residential dwellings would still
require the construction of a public right-of-way to access the new units,
including the extension of City services. From feedback collected during the
developer engagement to formulate this report, the cost associated with form of
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development may not provide the return that a developer would need to pursue
this option. Further, the tax lift after the development is finished would be
minimal, while there would be costs associated with the upkeep of the new
infrastructure and the provision of regular City services over time.
Appendix 6 provides a rendering of what a low-density build -out would look like.
iii. Medium -Density Residential
Option Description (see Appendix 7 for reference)
The medium density development scenario offers a mix of semi-detached
homes and multi -unit buildings. A tree -lined public boulevard brings vehicles
and pedestrians into the site and terminates with a cul-de-sac and entrance to
the trailhead. Proceeding into the trail, there is a signature public look off to
the lake. Similar to the low density scenario, semi-detached homes border the
site's edges, and are consistent with the scale of neighboring residences. The
small footprint of this form of development also creates opportunity to follow
the land, building into the topography and thus adding to the visual interest
and carefully placed midrise density of the development. Three to four storey,
walk up multi -unit buildings are located at the heart of the site and oriented
to the ground. Furthermore, the height of these units is buffered from the
street by trees and semi-detached homes. In this scenario, approximately 85%
of the site is retained as green space. Community green space and walking
paths link the site to new trails and access points to Rockwood Park.
The third option is to pursue a medium -density residential development. A
development of this nature could result in 60 units with a mix of housing types,
including 32 semi-detached dwellings at approximately 1,800 square feet each
and 28 apartment units.
The "low scenario" projection for the medium -density build -out scenario shown
above assumes an average quality new construction for the proposed row and
semi-detached dwellings, whereas the "high scenario" assumes high-quality new
construction.
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Low Scenario
High Scenario
Assessment
Assessment
Value
Tax Revenue
Value
Tax Revenue
Medium
Density
$9,440,000
$168,504
$13,900,000
$248,115
The "low scenario" projection for the medium -density build -out scenario shown
above assumes an average quality new construction for the proposed row and
semi-detached dwellings, whereas the "high scenario" assumes high-quality new
construction.
11
28
-12 -
The development of the site at this density threshold would remain at a scale
that can accommodate construction that limits the impact on the surrounding
environs, while generating significant benefit to the City.
This option is most appealing as it would be compatible with the site context,
minimize site disturbance, would match current market demands and could
generate fairly significant tax revenue for the City, while providing a good return
on investment for a prospective developer. The option for a medium -density
build -out would include a mixture of housing types. The area abutting Sandy
Point Road could be subdivided into three or four new lots for single -unit
dwellings to match the existing residential context to the north and south of the
subject site. As stated above, the existing infrastructure along Sandy Point Road
has capacity to easily support this scale of development.
Entering the site from Sandy Point Road, a medium -density development would
include a right-of-way leading from the road to the developed area largely
sheltered by a bank of trees. The area would be developed with a mixture of
garden homes, townhouse units, and a low-rise, multi -unit dwelling. Feedback
from the development community indicates that two-bedroom high-end rental
units with off-street parking and access to green spaces are in low -supply in the
Saint John area. A development satisfying this niche would provide a housing
form that is competitive to the baby -boomer age cohort who are actively seeking
to down -size their housing needs.
As well as providing positive tax -based growth on the existing vacant lot, a
medium -density residential development could also be constructed to a scale
and massing that minimizes the impact on the surrounding environment and is
sensitive to the context of the Park located to the rear of the site.
It should be noted that any development along the edges of a significant regional
park must be sensitive to the surrounding context of a valued green space for
the community and the built environment in the immediate vicinity of the
subject site. How a new development interfaces with an existing park area can
play a large role in defining the edge of the park and contributing to its function
for the broader community.
Appendix 7 offers an illustration of what a medium -density build -out would look
like.
12
29
-13 -
iv. High -Density Residential
Option Description (see Appendix 8 for reference)
The high density development strategy could yield a variety of unit types
including apartments, condominiums and townhomes. Four to five storey
buildings along the road edge terrace down to two stories at the park edge
breaking up not only the building massing, but softening development as it
nears the park edge. A public boulevard flanked by a mixture of midrise
buildings brings vehicles and pedestrians to the rear of the site, where there
are multiple access points to trailheads. By building up, the footprint of the
development is reduced, allowing for the retention of park and communal
green space. In this scenario, approximately 88% of the site is retained as
green space. This contributes to a maximized forested buffer to Rockwood
Park, which is connected to the site by way of new trails and public access
points.
The final option would be to contemplate a high-density residential
development, which would involve the greatest degree of change from the
existing developed context.
The development of the site in this format would include 100 apartment units,
the site would consist of a mix of townhouse units, semi-detached housing
options and four -storey apartment buildings situated at a high -point on the site
that would offer commanding views of the Park and Harrigan Lake.
The "low scenario" projection for the high-density build -out scenario shown
above assumes an average quality new construction for the proposed row and
semi-detached dwellings and apartment buildings, whereas the "high scenario"
assumes high-quality new construction. It is noteworthy that the high density
option yields lower tax revenue than the medium density option (see high
density option for comparison). This is due to lower property assessment values
for rental apartments than owner occupied homes. At the densities proposed for
the high density option, the additional number of units is not significant enough
to overcome the lower assessment value per unit for rental apartments.
13
30
Low Scenario
High Scenario
Assessment
Assessment
Value
Tax Revenue
Value
Tax Revenue
High
Density
$8,000,000
$142,800
$12,500,000
$223,125
The "low scenario" projection for the high-density build -out scenario shown
above assumes an average quality new construction for the proposed row and
semi-detached dwellings and apartment buildings, whereas the "high scenario"
assumes high-quality new construction. It is noteworthy that the high density
option yields lower tax revenue than the medium density option (see high
density option for comparison). This is due to lower property assessment values
for rental apartments than owner occupied homes. At the densities proposed for
the high density option, the additional number of units is not significant enough
to overcome the lower assessment value per unit for rental apartments.
13
30
-14-
A high-density development would most likely appear out of place in the
surrounding context. It is much more of a challenge to 'blend' a large number of
units into the boundary of a municipal park and preserve the character of the
park. An appealing component of a proposed development is to create a
definitive edge to the Park that is non -intrusive and provides added value to the
general function of the Park. As such, a maximum of four storeys, or
approximately 14 metres, is recommended for any development that should
occur on the subject site. A height of 14 metres is not an uncommon height for
trees in this area of the City, which provides opportunity for some level of
screening from the road. Further, a development that provided high-quality
design features, and incorporated sustainable material components, would be
appropriate for a development at the edge of Rockwood Park.
Appendix 8 offers an illustration of what a high-density build -out of the site
would look like.
2. Recommended conditions on future developments
Parks and green spaces are more functional if they have clearly defined edges
that illustrate definitive boundaries. The boundaries often offer a transitional
space that is framed by residential buildings and animated with passive
recreational opportunities, such as walking paths and trails. More active features
are also common along the edges of parks, such as bicycle paths. However,
spatial relationships between the public and the park become confused without
a proper public zone that separates the public from the private realm.
There are several houses that currently exist along the eastern side of Sandy
Point Road, including the properties immediately adjacent to the subject site,
which creates an ambiguous boundary separating the park from private
property. Staff recommend that, if any of the above options for development of
the site were to go forward, a trailway that straddles the rear yard of the
property and the edge of the park be established that connects to Harrigan Lake.
The trailway, as proposed by the report submitted by ADI in 2010, would
function as a boundary of the park, granting an edge feature that would be also
help animate the northern part of the park, which is currently underutilized. As
the ADI report argued, "Within Rockwood Park's 'edges' it is appropriate to
encourage park activities such as walking, hiking, bird watching, and other
activities that reflect the interests of our aging demographic. Appropriate
residential land uses immediately adjacent to, and somewhat integrated with
the park landscape helps to ensure that the elderly have safe and secure access
to the park."
14
31
-15 -
In addition, staff recommend that conditions be established for any
development that occurs on the subject site to ensure a high-quality
development that is sympathetic to the surrounding environment. Because the
site is adjacent to Rockwood Park, sustainable design features that tastefully
reflects the surrounding natural context should be required.
Staff recommend additional conditions be placed on the rezoning of the site to
ensure that an appropriate development is constructed with high quality
finishes, mature landscaping and that it incorporates environmental features
that consider the ecological sustainability of the site. The mass and scale of the
development should not be beyond the typical height of a mature tree to help
ensure that the development blends with the surrounding environment, and
does not dominate the aesthetics of the site.
Should the property be considered for a plan amendment and rezoning, the
following features would be considered as conditions of approval:
• Any development should be medium density residential;
• The height of any structure on the property shall not be greater than four
storeys;
• All finishes shall be high-quality finishes in keeping with the Rockwood
park design guidelines;
• That a park buffer / boundary be established and no development shall
encroach beyond a distance of 180 metres from the Sandy Point Road;
• development of the land shall include the establishment of a public look -
off to view Harrigan Lake and a formalized walking trail that connects the
site into the Park and forms a part of the Park boundary;
• Funds from the sale of the land be directed toward the upkeep of the
park, which could include costs associated with the establishment of the
walking trail mentioned above;
• That high-quality landscaping be established throughout the site, and
including the front yard abutting Sandy Point Road;
• A traffic study will be required for any development on this site.
3. Why proceed with a proactive rezoning and plan amendment
Staff are recommending that the Municipal Plan Amendment and Rezoning
process for the site begin prior to a specific proposal coming forward from the
private sector. This approach provides Council with the opportunity to engage
with the public and consider appropriate parameters for development that are in
15
32
-16 -
the public interest up front before marketing the site and will in turn create
greater certainty for investors, making the site more marketable.
It is proposed that Common Council initiate a Municipal Plan Amendment and
rezoning of the site. This would seek to change the Municipal plan designation
from Park and Natural Area to Stable Residential and rezone the site from Park
(P) to a zone which would allow for residential development such as Mid -rise
Residential (RM).
There is strong planning rationale supporting the potential rezoning of the site to
accommodate medium -density residential development. The site is a previously -
disturbed site that has been prepped for development with servicing stubs
reaching the front property line. Geotechnical tests of the site have illustrated
that it is in good condition to support development. There are several existing
dwellings along Sandy Point, including other areas disturbed by development
impacts, such as the golf course. The sale of the lands would increase the
revenue stream for the Park, which would be directed in part to the construction
of a trail system that connects to Harrigan Lake and other existing trails in this
area of Rockwood Park. Finally, after the build -out of the site has occurred, the
tax benefits to the City would be substantial.
Section C —Timeline and Engagement
1. Timelines
The following timelines identified the important milestones in the event
Common Council chooses to proceed with a proactive rezoning and plan
amendment for the site. Staff are recommending that a formal public
information session be held within the 30 -day objection period that is required
prior to a Plan amendment. This session will help inform the public of the details
of the development proposals and how it complements the park. Within this
scenario, it is important to acknowledge that Council will be given six (6)
decision -points before development occurs at1671 Sandy Point Road, including:
16
33
-17-
The public will be offered the following formal opportunities to provide input to
the six milestone decision -points from Common Council, including:
1. 30 Day Public Presentation Period which will include public awareness
program and the opportunity for written submissions to Council
(September 18,2017 to October 18, 2017);
2. Planning Advisory Committee Meeting (December 12, 2017);
3. First and Second Reading (January 8, 2018).
17
34
II
I111
I�
�
®
. ®
iu
iu
Y
iu
Report to Growth Committee
06 -Sep -17
Report to Common Council (Initiate Public
Engagement / Commence Municipal Plan
Amendment)
18 -Sep -17
Yes
Public Presentation Ad in Newspaper
21 -Sep -17
Proposed Public Presentation
22 -Sep -17
Public Presentation (at Common Council Meeting)
02 -Oct -17
Expiry of 30 -day Objection Period
01 -Nov -17
Council consideration of input received from
14 -Nov -17
Yes
Public presentation period
Potential Referral of Application to PAC
PAC Meeting
12 -Dec -17
Public Hearing
08 -Jan -18
Yes
Third Reading
22 -Jan -18
Yes
Presentation of draft RFP for 1671 Sandy Point
Date: TBD
Yes
Road for Common Council's consideration
Signed agreement from successful proposal
Date: TBD
Yes
through RFP process for Council ratification
The public will be offered the following formal opportunities to provide input to
the six milestone decision -points from Common Council, including:
1. 30 Day Public Presentation Period which will include public awareness
program and the opportunity for written submissions to Council
(September 18,2017 to October 18, 2017);
2. Planning Advisory Committee Meeting (December 12, 2017);
3. First and Second Reading (January 8, 2018).
17
34
-18-
2. Public engagement
As indicated in the Timelines illustrated below, there are several points in which
Council and the public are able to get involved in the process to offer input on
the proposed rezoning. Staff recommend that Council direct the City Manager to
establish an additional opportunity for the public to learn more about the
recommendations and provide input through a public information session and
related public awareness campaign during the 30 day Public Presentation period
where staff can share with the public: (1) a profile of the existing site and
surrounding area, (2) a rendering that illustrates what development on the site
would look like, and (3) options for conditions for development. As with any Plan
amendment process, Council retains the option to not proceed with the rezoning
of the site after the 30 -day objection period has expired. Hosting a public
information session prior to this allows the public access to all relevant
information regarding the development of the site.
There are multiple opportunities for public input and Council decision
throughout the Plan amendment process. If the Council were to vote after the
30 -day Public Presentation period to move forward with the Plan amendment
and rezoning of the property, Council would still have the opportunity to re-
consider the rezoning of the site following the Public Hearing. Beyond this point,
Council would still have the opportunity through the RFP process to negotiate,
and re -consider, any applications that they did not wish to entertain. The
timelines for the process are presented below.
Alternative timeline
Staff understand that development on 1671 Sandy Point Road is a challenging
matter for Council and the community. As such, and alternative to the above
recommended sequencing of the process to consider a Plan amendment for the
subject site would be to test the recommended development approach with the
public prior to initiating the plan amendment. A public information session
could be hosted within the next month along with social media public awareness
campaign to solicit feedback that could inform Council in its decision to pursue
the plan amendment process. If done this way, the process would be lengthened
by approximately one month, but it would introduce an opportunity for input
that could shape Council's decision to move forward with the process.
18
35
-19 -
SERVICE AND FINANCIAL OUTCOMES
The objective through the Roadmap for Smart Growth to pursue and review key
parcels of municipal property is to investigate the potential of suitable
development opportunities in order to generate tax base growth for Saint John.
INPUT FROM OTHER SERVICE AREAS AND STAKEHOLDERS
This report was assembled with the support of the following departments and
divisions within the City of Saint John: Planning, Infrastructure Planning, City
Manager's Office and Saint John Development Corporation.
ATTACHMENTS
Map of municipally owned properties along Sandy Point Road
Appendix 1: Previous Power Point
Appendix 2: Site Location
Appendix 3: Site Photos
Appendix 4: National and Local Development Trends
Appendix 5: Canadian Workforce
Appendix 6: Low Density Build Out
Appendix 7: Medium Density Build Out
Appendix 8: High Density Build Out
19
36
Map of Municipally Owned Properties
along Sandy Point Road
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Appendix 1: Previous
Power Point
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Appendix 4: Development Trends
Population living in private d�wellings by agei grouX
Saint John: 2016 C�ensus,
tib' 141) 0 04p 411 9 4r q
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Single -detached houses — Other private dwellings
Private dwelling refers to a separate set of living quarters with, a private entrance either from outside the
building or from a common hail or lobby.
7 SCUrce- Statlsdcs Canada Source- Statistics Ciriada - 2016 CenSLIS. Catalogue Number 98-400-X2016021
SAINT JOHN
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Appendix 5: Work Force
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Appendix 6: Low Density Concept
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Appendix 6: Low Density Concept
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Example of Massing, Scale and
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