February 13th, 2024

On February 6th, Council received a report on Tools and Incentives to Encourage Mass Timber Construction. The proposed bylaw changes will now advance to a Public Hearing on February 27th.

The report proposes three measures to accelerate mass timber construction in new buildings taller than six storeys. Building on previous work to remove barriers to mass timber, the proposed tools and incentives in this report would allow the Director of Planning to recommend increases in height and density for mass timber in rezoning applications, to provide extra height in district schedule areas, and to simplify the development process. These tools are proposed as a pilot program to be reviewed after two years.

Additional Height and Density in Rezoning Applications

• The proposed rezoning policy would offer a pre-defined incentive of additional storeys with commensurate density in community plan areas that already allow buildings of eight or more storeys, as follows:
  • Two additional storeys for sites where 8 to 11 storeys are enabled; or
  • Three additional storeys for sites where 12 or more storeys are enabled.

• The building must maintain the use and tenure requirements specified in the area plan or policy after the additional storeys are added. Projects will be evaluated on a case-by-case basis, with proposals for additional height and commensurate density evaluated alongside public realm impacts and urban design considerations, including view cones and shadow impacts on significant public spaces;
• In-stream rezoning applications would be eligible to seek incentives through the proposed rezoning policy, noting that an amended rezoning application may result in implications to the review timeline and other potential requirements to be determined on a case-by-case basis.

Additional Height in District Schedule Areas – Zoning and Development Bylaw Amendment

• Currently, Section 10 of the Zoning and Development Bylaw allows the Director of Planning to increase height by approximately 6% to accommodate mass timber construction through a conditional review process;
• Staff recommend adding an additional 4% as an incentive amount, for a total of 10% in Section 10, and making the regulation outright to streamline the process. This change provides an incentive for sites that are not undergoing a rezoning process. Making the regulation outright also increases certainty for proponents at the earliest stages of the process.

Specialized Support

• During discussions with industry, some practitioners said that the uncertainty of entering into the permit process with a new building form could outweigh the advantages of mass timber. In response, senior staff members have agreed to convene to provide early advice to proponents on the supportability of mass timber design elements for applications involving buildings over six storeys at the enquiry stage, before an application is made. This will include staff from the Development Planning, Building, and Project Facilitation groups who can identify challenges to the project early on and assist with following it through;
• This early access to expertise is intended to mitigate the uncertainty and complexity around building with a relatively new form of construction. Staff in relevant departments across the City would also be trained in mass timber construction in order to help develop expertise and familiarity with this type of building.

Building Bylaw Amendments

• In addition to zoning incentives, staff are also working to make it easier to build with mass timber with respect to the Building Bylaw. These efforts include improvements to permit processes, as well as changes to the Building Bylaw to allow more uses of mass timber;
• Changes to the Building Bylaw, which will come to Council under a separate report in 2024, are planned to include both adopting Provincial changes to allow 18-storey mass timber construction as well as City-led efforts to allow mass timber to be used on firewalls and walls on the lot line, which could have broad application in low-rise commercial buildings;
• While many projects proceed today using the Alternative Solutions process, accepting more mass timber solutions outright in the Building Bylaw would mean reduced time and effort spent on alternative approvals by both applicants and staff.

The proposed tools are intended to reduce complexity for applicants and offset the early adoption cost of mass timber construction. UDI submitted a letter of support to City staff on January 25th which reflects these sentiments.

At a Public Hearing on January 30th, Council notably approved a 25-storey mass timber project, which went against the recommendation by City staff that the project be required to provide private balconies for every unit. The proponent asserted to Council that the mass timber design would be revised into a conventional concrete tower if forced to follow the direction from City staff for traditional private balconies for every unit. This was based on concern that providing private balconies would compromise the design of the building due to water leakage risk into the cross-laminated timber floor slabs, and significant costs. This decision brings into question whether private balconies for every unit is a requirement that should be enforced for mass timber projects if the impact could compromise design and result in significant cost increases.