Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Text Amendment -
855 West 12th Avenue (Vancouver General Hospital)

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On June 15, 2000 Council adopted the Vancouver General Hospital (VGH) Precinct Policy Statement, available for review in the City Clerk's office, "as the guiding policy for evaluation of future zoning and development in the precinct, including introduction of medical biotechnology uses." At that time Council requested submission of a business plan for proposed medi-tech developments and a statement of support from the Regional Health Board. The Regional Health Board letter is attached as Appendix E. Staff have reviewed a business strategy and viewed a business plan which support the viability of the proposal.

Previous Council Policy regarding VGH consists of a series of resolutions listed in Appendix F.

PURPOSE AND SUMMARY

This report assesses an application by Mark Betteridge, representing Vancouver Hospital and Health Sciences Centre, to amend CD-1 By-law No. 4472 (Ref. #59) for the Vancouver General Hospital site to permit Medical Technology use (medi-tech), Multiple Dwelling Use, Special Needs Residential Facility - Congregate Housing, Retail Use and Commercial Service Use as shown in Appendix A in addition to Hospital uses; increase the Floor Space Ratio from 2.23 to 2.6 [increasing permissible floor area by 51 460 m² (553,930 sq. ft.)] and increasing Site Coverage from 50% to 55% while also retaining Heather Pavilion (7 990 m² /86,000 sq. ft.) and providing 7.1 acres of public open space.

The report concludes that the application presents a preliminary development plan which responds favourably to one of the options supported by the Policy Statement. The proposed additional uses are appropriate in this location and the additional floor area of those uses can be accommodated, while achieving the highest priority heritage objective of retaining the Heather Pavilion, improving the configuration and usability of public open space and improving the public realm of the precinct. Mitigation measures are recommended in response to anticipated impacts of increased traffic, parking, recreational space and daycare demand. Timing of implementation remains of critical concern. Discussion between City, Park Board and VGH representatives has resulted in progress toward an acceptable timetable for phasing of open space.
DISCUSSION

Background: The Policy Statement established that, subject to the policies contained in that document, Council would be prepared to consider any one of three scenarios (known as "A", "C" or "D") for redevelopment of the precinct to include hospital facilities, medi-tech uses, limited commercial use, required public open space and retention of various combinations of heritage resources. These scenarios varied in the location and configuration of open space and the extent of heritage buildings to be retained. However, each one was considered to be better than the configuration which would have resulted from previous agreements. In addition to the policies addressing Development Patterns, Built Form, Open Space, Movements and Implementation this consideration remained contingent upon commitments to:

· retain existing key open spaces until demolition allows their replacement;
· implement open space on a timetable "closer to that of the 1989 legal agreement timetable"; and
· ensure that 13 935 m² (150,000 sq. ft.) of "medi-tech" space can be used for acute care.

The rezoning application, which proposes a scheme based on scenario "D", has been reviewed by staff, the Urban Design Panel, the Heritage Commission and at a public open house and meeting.

Use:
Hospital: Although demand for known acute care hospital functions is projected to diminish, it would be desirable as a precautionary measure to retain potential for hospital use throughout the CD-1 District. It is also recommended that a minimum of 13 935 m² (150,000 sq. ft.) of proposed medi-tech development be required to be capable of accommodating patient care if necessary.

Medi-tech: Given that projected long term hospital needs, and reasonable latitude for uncertainty, are met by the proposed utilization of the land base, there is merit in also accommodating the medi-tech uses which benefit from immediate proximity to the hospital in which researchers and practitioners are otherwise employed. From a land use point of view these are complementary uses. The Broadway office area will likely benefit from demand for support services. The City and region are likely to benefit from the creation of new businesses in this innovative economic sector.

Commercial: Providing for limited commercial service and retail uses at grade on the north side of 10th Avenue would improve the pedestrian amenity and safety of the precinct while reducing its institutional character and improving the transition to Broadway. Locating commercial uses in the grade level of the Heather Pavilion would attract people into the public open space, giving it a more public ambience and increasing economic opportunities in the heritage building.

However, the policy statement does not support extensive introduction of commercial uses into the core of the hospital district. There is more than adequate commercial potential in surrounding commercial zoning and it would be inappropriate to introduce unwarranted competition for existing retail areas. Therefore, most retail uses would be limited to the north side of 10th Avenue and the Heather Pavilion.

Some exceptions which cater to specific local needs are seen to be desirable. For instance, extensive demand for food services is underprovided. Therefore, it is recommended that restaurants be permitted wherever the hospital wishes to make space available north of 12th Avenue. A fitness centre has a less overt commercial character and would complement the public open space and directly benefit the hospital population. More locational opportunities are therefore supported. Similarly, at-grade doctors' offices are less overtly commercial and would suit the character of the precinct. The option to locate these on the south side of 10th Avenue and wrap around the corner onto the Willow corridor is supported.

The Ambulatory Care Centre proposed for the corner of 12th Avenue and Oak Street would benefit from inclusion of a restaurant or coffee bar and retail uses which serve demands arising from the clinical nature of the building. These would include a pharmacy and sale of prosthetic devices or other medical products and could include a newsstand. The floor area of such uses should not significantly increase the size of this building. Nor should these uses include convenience retail which is provided for in nearby commercial districts.

Residential: Conversion of the Nurses' Residence to residential use, possibly for congregate housing, or replacement of this structure with new residential use is consistent with the surrounding multiple residential context. While the structure itself is out of context with the surrounding scale of development, recycling the building for a new residential use would avoid a massive waste of construction materials, filling substantial capacity in a land fill. However, new development on the site would conform with surrounding norms for height and setbacks. The policy statement indicated that a mix of 3- and 4-storey development on 13th Avenue could combine with up to 6 storey structures fronting 12th Avenue.

Density: The VGH CD-1 District should provide a transition in density from the Broadway C-3A District at a density of 3.0 Floor Space Ratio (FSR) to the Fairview Heights RM-4 District at a maximum density of 1.45 FSR. As discussed in the Policy Statement, Council has never expressed a desire to alter its historic direction that the density of the precinct should not rise to 3 FSR. Therefore, the Policy Statement concluded that 2.6 FSR, plus the floor area of the Heather Pavilion (0.057 gross; 0.03 net), represents an appropriate maximum density. The rezoning application is consistent with this total density. However, there are three discrepancies with the recommended distribution of floor space among uses.

First, under Scenario "D", the former Nurses' Residence could not be replaced with new residential development of a similar nine-storey scale if it is to achieve a scale compatible with the surrounding residential context. The Policy Statement, as approved by Council, set a limit not to exceed a total floor area of 13 935 m² (150,000 sq. ft.). Therefore, staff do not support a proposed limit of 15 800 m² (170,000 sq. ft.) initially sought by the applicant.

Second, the extent of floor area for commercial uses is proposed to be 7 232 m² (77,852 sq. ft.). This exceeds the extent of commercial use supported by the Policy Statement, which sought to "compliment the pedestrian environment, improve linkages to Broadway and provide public uses adjacent to open space" without rivaling other nearby commercial centres including Broadway, City Square and 15th Avenue and Oak Street. The proposed floor area results from a vision which would offer more convenience and interest to the public and staff who pass through hospital lobbies. It is based on changing trends in hospital planning. From the viewpoint of visitors this might be more similar to the commercial services provided at an airport and is becoming common in other Canadian hospitals. It also allows the hospital to capture staff retail spending which otherwise could not occur during 15 minute breaks. However, the Policy Statement was based on a more conservative vision which supports a narrower range of such services to limit the increase in building mass and avoid competing with nearby established commercial centres.

The Policy requires retail and commercial services such as restaurants, totaling no more than 1 300 m² (14,000 sq. ft.), at grade along the north side of 10th Avenue and supports such uses in Heather Pavilion. Staff also support some internal commercial use in the hospital and at-grade medical offices to improve the pedestrian interface of the proposed medi-tech building at 10th Avenue and Willow Street. Main floor restaurant, pharmacy and the sale of medical products, such as prosthetics, would also complement the functions of the proposed Academic Ambulatory Care Centre (AACC) at 12th Avenue and Oak Street and in a future replacement for Centennial Pavilion. However, the overall scale of these buildings would be unnecessarily enlarged beyond the previously approved plans (1991) if a full floor, 1 858 m² (20,000 sq. ft.) of retail, including convenience retail offered on Broadway, Oak Street, City Square and in future on 10th Avenue is also permitted.

A limit of 6 039 m² (65,000 sq. ft.) for commercial uses is recommended, to allow some internal retail opportunities in the hospital including an element of commercial use on the ground floor of the AACC (and a future Centennial Pavilion), without significantly adding to the mass of the already large structure or creating unwarranted competition for nearby commercial districts. Any commercial floor space in Heather Pavilion would be calculated separately.

Third, the proposed total floor area of 68 000 m² (732,000 sq. ft.) for medi-tech uses, significantly exceeds the recommended limit of 57 598 m² (620,000 sq. ft.) for scenario D. Staff believe an increase to 59 920 m² (645,000 sq. ft.) could be accommodated within recommended height limits due to a re-orientation of massing on proposed structures west of the Willow alignment.

However, the demonstrated massing of the proposed floor space indicates that 68 000 m² would be excessive, adding to the scale of structures west of Willow Street beyond the scale supported in the Policy Statement. The increased area proposed for medi-tech use would also reduce floor area available for hospital use.

In any case, successive increases in proposed floor area for the AACC from 294,000 (1991) to 330,000 (2000) to the current 365,000 reduce available FSR for medi-tech uses by 3 252 m² (35,000 sq. ft.) and grade levels of most medi-tech structures would be occupied by non-research uses including grade level retail on 10th Avenue (1 300 m²/14,000 sq. ft.), medical offices on the south side of 10th Avenue and extending up Willow Street (1 115 m² /12,000 sq. ft.), a fitness centre, childcare and at least one restaurant proposed for the south-west corner of 10th Avenue and Willow Street. Therefore, the proposed limit of 59 920 m²offers a compromise which is consistent with other VGH and City objectives.

Form of Development: The attached "Preliminary Development Plan" is supported, subject to approval of VGH Precinct CD-1 Guidelines and conditions listed in Appendix B to be addressed prior to Council approval of an amended form of development for a preliminary development application for the medi-tech sub-area. The Guidelines provide guidance on how new development would achieve the policies of the VGH Precinct Policy Statement. (Note Preliminary Development Plan: Appendix D.)

The massing strategy is to create urban street edges framing a focal public open space centred on the 1906 Heather Pavilion, with the bulk of the floor area massed up toward Broadway, tapered down toward 12th Avenue and oriented north-south to minimize shadow, view and scale impacts.

Open Space

Principal: The large central open space is proposed to fulfill the previous obligation of the hospital arising from approval of the Pattison Pavilion (Laurel Tower). It will be defined by four public edges on 10th and 12th Avenues, Heather Street and a public pedestrian corridor along the Willow alignment. It will generally follow the grade down from 12th to 10th Avenue. An extension of the 11th Avenue pedestrian corridor will meet a north south equivalent in the open space at Willow.

Heather Pavilion and two remnant 1908 wing ends will provide a visual focus in the open space but still allow for a virtual square block of open park space between 12th Avenue and the 11th Avenue pedestrian corridor.

Secondary: Existing open space next to the parkade was shown to be retained in its present form in Scenario "A". For this reason many nearby residents preferred this option. A petition of 73 residents, primarily from the block directly to the south, emphasized their preference to retain this configuration.

However, Scenario "D", supports realignment of this same area of open space east-west along 13th Avenue (see Appendix D). Staff believe either configuration is acceptable. However, the proposed re-orientation along 13th Avenue is supported as it has several benefits, as follows:

· reduces noise impacts from 12th Avenue;
· improves sun exposure;
· marginally increases the area of open space;
· offers direct open space access to an additional residential block; and
· provides VGH another development site on the northern portion of that block.

Phasing and Timing: Staff are working with the applicant and Park Board staff to establish a revised schedule for the phasing and timing of the delivery of public open space. A rezoning condition [(c)(IX) in Appendix B] requires that a satisfactory timetable be approved by Council and the Park Board prior to amending existing legal agreements which require provision of open space. The Director of Current Planning and General Manager of Parks and Recreation will present resulting progress on these objectives to Council at Public Hearing.

Parking: An established parking standard of 1 space per 93 m² (1,000 sq. ft.) based upon successful implementation of a Traffic Demand Management Strategy has been in effect for the hospital since 1993. Monitoring reports have been required every two years, with the final report due in 2001. Previous reports have demonstrated progress on reducing dependence on single occupant vehicles. Staff support continuation of this parking standard and recommend requiring two additional monitoring reports to follow one and three years after occupancy of the first medi-tech development.

There remains a deficit of 200 spaces, of which the hospital is expected to provide 100 under the proposed Ambulatory Care Centre while the remainder could be located under the public open space. This distribution is important to providing sufficient proximity to hospital functions that the space will be well used.

For medi-tech parking staff recommend the Broadway corridor standard (minimum 1:57.5 m², maximum 1:42 m²) or 2.21 spaces per 93 m² (1,000 sq. ft.). The standard of 3 spaces per 93 m² of medi-tech uses proposed by VGH is not supported for several reasons, as follows:

· it is significantly higher than the Broadway corridor standard;
· business personnel also working at the hospital can use hospital parking;
· it would encourage greater traffic in the area; and
· leasing to on-site physicians need not compete with suburban locations which have more parking.

The proposed standard of one space for each dwelling unit in new residential development would underserve these units by comparison to comparable development in the adjacent RM-4 District. New development should respect the standard applied to neighbouring RM-4 sites, including congregate care standards, if applicable.

Public Benefits and Impact Management: Previous commitments require VGH to provide 6.1 acres of public open space, including a site for up to four tennis courts. These amenities are not public benefits of this rezoning, as they are already secured.

However the proposed preliminary development plan presents a configuration which results in a total of 7.1 acres of public open space. This additional acre of open space results from the appropriate configuration of development sites without reducing development potential. Retention and rehabilitation of the 1906 Heather Pavilion is clearly a public benefit of this rezoning but also provides VGH with additional floor space and site coverage which would otherwise not be supported. Retention of all or parts of the two end bays of the 1908 addition will be considered as a part of the public art plan.

Council on June 15, 2000 directed staff to recommend a negotiated Community Amenity Contribution (CAC) for this site in the form of an in-kind or cash CAC. In keeping with this resolution, staff initially sought a VGH commitment to include the premium cost of adaptive re-use of the 1906 Heather Pavilion in the cost of new development as an in-kind CAC. Given the full scope of long term commercial revenue generating opportunities being created and the potential, noted by the applicant, to secure outside contributions, a significant proportion of the estimated $6.2 million premium cost of heritage restoration, is not considered beyond what CAC policy could expect this development to commit.

The applicant notes that the Regional Health Board could not commit health care dollars for heritage work. The applicant is therefore not prepared to commit to fully funding restoration on a defined timetable. Staff have been advised by the applicant that financing for the commercial floor area is not expected to come from health care budgets. Similarly, the recommended CAC contribution relates to the significant commercial enterprise aspect of the project and therefore would not be expected to come out of health care dollars.

To achieve City objectives, four components are essential in structuring a supportable recommendation, as follow:

· heritage designation of the 1906 building,
· mothballing to prevent deterioration,
· a commitment to make every reasonable effort to achieve full funding and to undertake restoration and re-use of the building, and
· a financial incentive to complete the project.

To secure this principal public benefit, conditions (C)(IX) and (X) (Appendix B) provide for designation; protection of the structure from deterioration; a commitment to seek full funding of the premium cost of restoration; and a cash CAC for half the premium cost of restoration, graduated over time as an incentive to complete the restoration, without a specific time commitment requiring an up front funding commitment. This CAC will be held by the City to be returned to the owner of the Heather Pavilion at the time of restoration to support re-use, but the City retains the option to spend these funds in case emergency conservation measures are required on the Heather Pavilion.

As part of addressing the implications of additional development, public goods are sought in response to the anticipated impacts of the proposed rezoning and are required to maintain the equilibrium of livability in and near the precinct by resolving otherwise undesirable impacts of the proposed expansion and change of use. These include standard rezoning requirements such as daycare expansion, cost shared traffic mitigation, and an allocation of existing or new public assembly space on the Nurses' Residence site to accommodate recreational demands faced by Douglas Park Community Centre as well as public art. A process is also recommended to explore opportunities to provide shelter services for homeless individuals using the VGH Emergency as detailed in Appendix B.

CONCLUSION

Staff conclude that a rezoning based on the proposed Preliminary Development Plan represents a favourable response to Development Scenario "D" endorsed by Council in the June 2000 VGH Precinct Policy Statement as one of three acceptable options for redevelopment of this CD-1 District. The Policy Statement supported introduction of medi-tech, residential and limited commercial uses. The rezoning application initially sought increases in floor area for each of these uses beyond that supported by the Policy Statement. Staff conclude that some increase in commercial and medi-tech uses can be supported as discussed above but do not support any additional increase in residential use. Recommended building heights conform to limits recommended in the Policy Statement.

This rezoning proposes to maintain obligations to provide public open space and would improve the configuration and size of the spaces. This reaffirms commitments resulting from earlier development approvals. The application also includes retention, and committments towards preservation and adaptive re-use of the 1906 Heather Pavilion and remnant elements of the 1908 addition which constitute a significant public benefit which will complement and increase usage of the public open space.

Conditions (C)(IX) and (X) (Appendix B) would secure heritage designation; protection of the structure; a commitment to seek full funding of restoration; and a cash CAC committed toward the restoration, without requiring total up front funding commitments or firm timetable. The City also retains the option to spend these funds on emergency repairs to Heather Pavilion if necessary. Other conditions of rezoning, contained in Appendix B, ensure that increased intensity of development in this CD-1 District does not erode the equilibrium of livability for the hospital population and in surrounding communities.

* * * * *

ag011106.htm

DRAFT CD-1 AMENDING BY-LAW PROVISIONS

Use · Hospital Use.

Density · Maximum floor space ratio of 2.6 FSR, based on calculation provisions for Womens' and Childrens' Hospital (CD-1 #126), which exclude child daycare floor space, also permitting exclusion of limited interstitial and including provisions for:

Site Coverage

Height · Maximum heights of :

Setback Minimum setbacks of:

Parking · Per Parking By-law, except that a minimum of 1 off-street parking space must be provided for each 93 m² (1,000 sq. ft.) of hospital uses.

Acoustics · Acoustic provisions to apply to multiple dwelling uses, per RM-4N District Schedule.

PROPOSED CONDITIONS OF APPROVAL

NOTE: These are draft conditions which are subject to change and refinement by staff prior to the finalization of the agenda for the public hearing.

FORM OF (a) That the proposed Preliminary Development Plan be approved by Council
DEVELOP- in principle, generally as prepared by Davidson Yuen Simpson, Architects,
MENT and stamped "Received City Planning Department", dated January 18, 2001, provided that the Director of Planning may allow minor alterations to this form of development when approving the detailed scheme of development as outlined in (b) below.

DESIGN (b) That, prior to approval by Council of amendments to the form of
DEVELOP- development, the applicant shall obtain:
MENT

AGREEMENTS

CHARGE (I) Make suitable arrangements to the satisfaction of the General Manager of
SUMMARY Engineering Services and the Director of Legal Services for clarification of charges shown on title (a charge summary should be provided) and, if necessary, for the modification, release, extension or replacement of such charges, on terms acceptable to the Director of Legal Services.

SOILS (II) Make suitable arrangements for obtaining and submitting to the City
REMEDIA- copies of all soils studies and the consequential Remediation Plan for
TION AND the subject site including all parks, civic plazas, off-site streets and
INDEMNITY on-site streets (civic lands), approved by the Ministry of Environment and acceptable to the City. Execute agreements satisfactory to the Director of Legal Services and the City Manager, in consultation with appropriate Department Heads, obligating the property owner to:

SOILS (III) Execute a Section 215 agreement, satisfactory to the Director of Legal
OCCU- Services, that there will be no occupancy of any buildings or improvements
PANCY constructed pursuant to this rezoning on the subject site until the
RESTRIC- contaminated soils on the subject site have been remediated to the
TION satisfaction of the Ministry of Environment (and all relevant Federal authorities to the extent that the same evaluate the remediation), and to the satisfaction of the City with respect to lands dedicated or transferred to the City, in accordance with a remediation plan approved by the Ministry of Environment, and acceptable to the City.

SUBDIVISION
PLAN (IV) Obtain approval of and deposit for registration a subdivision plan to consolidate all the lots bounded by 10th Avenue, 12th Avenue, Laurel Street and the west property line of Block 378, District Lot 526, Plan 991,or other measures acceptable to the General Manager of Engineering Services, Director of Legal Services, the Director of Planning and the City Approving Officer.

STREET (V) Make suitable arrangements for the timely dedication of the westerly
DEDICA- 2.0 m of Lot 1, Block 376, District lot 526, Plan 16793 for the widening
TION of Oak Street, to the satisfaction of the General Manager of Engineering Services and Director of Legal Services.

PUBLIC (VI) Make arrangements to the satisfaction of the General Manager of
ACCESS Engineering Services and Director of Legal Services for provision of
AGREE- Statutory Rights-of-Way to permit public access to the proposed green
MENTS spaces throughout all phases of the project.

SERVICE (VII) Execute a service agreement, to the satisfaction of the General Manager
AGREEMENT of Engineering Services and the Director of Legal Services, to ensure that all on-site and off-site works and services necessary or incidental to the servicing of the subject site (collectively called the "Services") are designed, constructed and installed at no cost to the City, and that all necessary street dedications and rights-of-way for the Services are provided, all to the satisfaction of the General Manager of Engineering Services (who provided comments on this in Appendix C). Without limiting the discretion of the said City officials, the agreement shall include:

OPEN (VIII) Amend the 1989 Open space Agreement and the Parkade Open Space
SPACE Agreement to reflect: the revised open space boundaries as shown in the
AGREEMENT Preliminary Development Plan, the design, specifications and maintenance
AMENDMENT of the open space as approved by the Director of Current Planning and the General Manager of Parks and Recreation, the proposed phasing and timing as approved by Council, and the retention of the 1906 Heather Pavilion and parts of the 1908 additions; all to the satisfaction of the Director of Legal Services and the General Manager of Parks and Recreation.

HERITAGE (IX) Obtain designation under Schedule A of the City's Heritage By-law
DESIGNA- and enter into a Heritage Revitalization Agreement to secure
TION OF preservation, stabilization and protection against deterioration and
HEATHER vandalism of the 1906 Heather Pavilion and the two end bays of the
PAVILION 1908 addition and dismantling, quarrying and storage of exterior materials from the 1908 structure all to the satisfaction of the Director of Current Planning and Director of Legal Services.

PUBLIC (XII) Execute an agreement to the satisfaction of the Director of Current
ACCESS TO Planning and Director of Legal Services, that after redevelopment,
PAVILION restricts uses in the south facing portion of the grade level of the 1906 Heather Pavilion to public oriented uses such as child daycare, retail, restaurant or other commercial services. The agreement shall also provide for public access to any main floor recreational assembly spaces.

RECREA- (XIII) Execute an agreement to the satisfaction of the General Manager of
TION SPACE Parks and Recreation, Director of Current Planning and Director of Legal Services to provide public access to two main floor recreational spaces and meeting rooms, to be located on Block 418, District Lot 526 either in the former Nurses' Residence or in improvements to be constructed on the site pursuant to this rezoning. (Note Park Board Comments in Appendix C.)

PUBLIC (XIV) (i) Execute an agreement, satisfactory to the Directors of Legal
ART Services and the Office of Cultural Affairs for the provision of public art in accordance with the City's Public Art Policy, such agreement to provide for security in a form and amount satisfactory to the aforesaid officials;

PROVISION (XV) Provision of a letter of undertaking satisfactory to the Directors of
FOR SHORT Legal Services and Housing committing VHHSC to engage in a
TERM process with the City to develop a facility providing short term
HOUSING accommodation and referral services on a VGH site having functional proximity to the Emergency department, the process to include identification of capital and operating funding and sources.

DAYCARE (XVI) Execute a legal agreement satisfactory to the Directors of Legal

Where the Director of Legal Services deems appropriate, the preceding agreements are to be drawn, not only as personal covenants of the property owner, but also as covenants which charge and run with the land.

The facilities to be provided, may, in the discretion of the General Manager of Engineering Services, the Approving Officer, General Manager of Parks (where Park Board related facilities are concerned), Director of Legal Services and the Director of Current Planning, be constructed in phases, in accordance with phasing plans satisfactory to the aforesaid officials, and the respective Agreements will provide for security and development and occupancy restrictions appropriate to such phasing, as determined by the Director of Legal Services.

The Director of Legal Services may require the preceding agreements to be registered in the Land Title office, prior to enactment of the by-law, but in any event, the City will not issue any development permits, and the property owner shall not seek the issuance of any development permit relating to the site prior to the registration of the preceding agreements; such agreements are to have priority over those liens, charges and encumbrances as considered advisable by the Director of Legal Services.

The required agreements shall provide security to the City including indemnities, warranties, options to purchase, no development covenants, equitable charges, letters of credit, and withholding of permits, as considered advisable by, and in a form satisfactory to, the Director of Legal Services.

The timing of all required payments shall be determined by the appropriate City official having responsibility for each particular agreement, who may consult other City officials and City Council.

The property owner will confirm, in form satisfactory to the City, that it is the legal and beneficial owner of the site; or, if not, the property owner will cause the beneficial owner to agree that the beneficial owner has knowledge of all the transactions, gives its consent and is bound by all agreements, and evidence of such shall be provided to the City. Further, all legal costs expended by the City in being satisfied as to ownership of the site and as to the involvement of any beneficial owner (including retaining outside counsel to undertakeinvestigations and prepare agreements and certificates) will be the responsibility of the property owner.

If dates are established for enactment which in the opinion of the Director of Legal Services would require increased resources within the Law Department, or which require, in the opinion of the Director of Legal Services, the retaining of outside counsel, reimbursement for these costs will be required from the property owner.

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 139 085 m² (1,497,147 sq. ft.) site is comprised of 13 parcels on the north and south sides of 10th and 12th Avenues. The site extends from Oak to Ash Streets between 10th and 12th Avenues and includes the block between Willow and Heather Streets south to 13th Avenue; the corresponding block face on the north side of 10th Avenue to the lane south of Broadway and a parcel with a 30.5 m (100 ft.) frontage on the north side of 10th Avenue immediately east of Laurel Street.

Proposed Development: The proposed Preliminary Development Plan to introduce medi-tech uses responds generally to Development Scenario D contained in the VGH Precinct Policy Statement approved by Council June 15, 2000. The application varies from that scheme in that it proposes more floor area for medi-tech, multiple residential and commercial uses than the policy statement indicated to be acceptable. The proposal to increase these limits is addressed under the above heading of Density. Building heights, footprints and setbacks generally conform to the pattern illustrated in the Policy Statement.

Public Input: A public open house was held by VGH in June 2000 to alert area residents to the pending rezoning application. A notification letter was sent to nearby property owners on August 25, 2000 and rezoning information signs were posted on the site on September 21, 2000. A public information meeting at the Nurses' Residence on January 31, 2001 was attended by approximately 40 people.

A petition containing 73 names was received opposing the proposed re-orientation of the public open space adjoining the parkade to align this space along 13th Avenue instead of its current configuration, which extends from 12th to 13th Avenues west of Willow Street. This petition is available to read in the City Clerk's office. A letter from a long term resident emphasizing the neighbourhood's frustration over delays in implementation of the original 5.1 acre open space is attached as Appendix G. A letter from the Douglas Park Community Association re-iterated this concern and expressed concern regarding the need for additional recreation centre space and park land. The Association did not support retention of any heritage buildings.

Several dozen phone calls were received from residents and other interested parties. Many attended public workshops, meetings and open houses and maintained regular contact with staff on the progress of the application. Concerns focused on the adequacy of:

· view impacts;
· traffic mitigation measures;
· the implementation timetable;
· heritage retention and restoration proposals;
· directness of the linkage from the hospital to the open space; and
· public realm design to accommodate the fragile population of the area.

One letter expressing opposition was received from a nearby business owner stating opposition to any additional development at the hospital, citing traffic and the need for open space as concerns.

Comments of the General Manager of Engineering Services: The General Manager of Engineering Services has no objection to the proposed rezoning, provided that the applicant complies with conditions as shown in Appendix B.

Staff have reviewed the demands of this proposed rezoning on the surrounding City sewer and water infrastructure. Based on the information provided by the applicant, upgrades to City sewer and water infrastructure are not anticipated at this time. The City can not anticipate the form of the development for the individual sites and must reserve the right to require that upgrades to capacity be made where a particular development requires such service. For example, the proposed water storage facility planned for this project may require the installation of a larger main to adequately maintain storage levels. Until such time that operating and design details are provided, the level of service required for this facility is an unknown.

One of the main objectives of the City is to reduce the number of combined sewers in the City. To that end, the City desires that the applicant obtain encroachment agreements for private sewers that cross public property. Further, that the private sewers within the VGH precinct be separated, including new and renovated buildings. Any remaining combined sewer discharges must be connected to the private sanitary sewer. Where practical, the sewer flows within the precinct buildings should be separated. The City also desires that the private sewer that runs on Laurel Street, between 10th Avenue and 12th Avenue be abandoned, if possible.

The Traffic Management Plan for this site has indicated that a variety of work be completed in order to mitigate the impact that the redevelopment of the precinct will generate. This work includes:

(i) The closure to vehicular traffic of Willow Street between 12th and 13th Avenues. This work will be initiated upon the issuing of a development permit for the site that abuts Willow Street. The corridor is intended to become a portion of a green corridor. The portion of the closed street that lies within the City right-of-way will not be counted towards the VGH Green Space requirements. The road remains the property of the City of Vancouver. This "green corridor" shall be designed in such a manner that the operation and maintenance of the existing buried utilities in the dedicated street will not be impeded. No permanent structures may be installed in the dedicated street. All surface treatments, plantings, and amenities must meet the approval of the General Manager of Engineering Services. Maintenance of this corridor shall be the responsibility of the City. This project is subject to the approval of the Vancouver City Council;

(ii) The installation of traffic signals and other works at the intersection of Oak Street and 10th Avenue. This work will include the installation of pedestrian and bicycle related controls that adhere to the City's standards. This work will include a traffic diverter for the west side of the intersection to prevent through traffic west of Oak Street on 10th Avenue. This contribution will be required prior to the issuance of a Development Permit for the construction of medi-tech buildings with a cumulative total of 10 000 m² or more;

(iii) Widen 12th Avenue at Heather Street and provide east and west bound left turn bays. This commitment is required prior to the development stage where fifty percent of the total medi-tech build out is reached;

(iv) The construction of bicycle route improvements along 10th Avenue, from Oak Street to Cambie Street. This commitment is required at the time of the repaving of 10th Avenue, from Oak Street to Heather Street;

(v) The construction and implementation of traffic calming measures to the satisfaction of the General Manager of Engineering Services. These measures are to be based upon the report by Bunt and Associates dated February 9, 2001. This commitment is to be made prior to the issuing of the first Development Permit for a medi-tech facility. The initial works will be installed on a temporary basis.

(vi) The repaving of 10th Avenue, from Oak Street to Heather Street. This commitment is required prior to the issuance of the Development Permit for the last medi-tech related facility to be constructed with frontage on 10th Avenue.

Park Board Comments: The proposed configuration and design of public open space does not reflect the option preferred by the Park Board at its regular meeting of May 29, 2000, however, the new open space configuration promises to be superior to the version that was secured in the 1989 Open Space Agreement.

The new open space is roughly one acre larger, extends to the doorstep of the residential community to the south while forming the new centre of the hospital precinct, is bounded by highly public pathways and well accessible to all, neatly framed with buildings, well oriented for solar access, and well suited for flexible programming. Together with a restored Heritage Pavilion, the new open space will add a sense of order and civility to the hospital precinct while opening it up to the surrounding community.

Of significant concern is the delay in the delivery of the public open space. It has been twelve years already, and the proposal pushes the delivery of open space even further into the future, eroding the public's confidence in the agreement. Any new Open Space Agreement will have to establish clear and acceptable timelines. The addition of residential and medi-tech uses to the hospital precinct will increase the pressure on existing community facilities, in particular the Douglas Park Community Centre which is already at or over capacity. It is therefore very important that the existing meeting rooms in the Nurses' Residence be secured as public amenities to be programmed through the Community Association, or alternatively that new equivalent facilities be made available in a replacement building should the Nurses' Residence be demolished.

The space available through the use of the Nurses' Residence should include two main floor meeting rooms of 111.5 m² (1,200 sq. ft.) and 74.3 m² (800 sq. ft.) respectively, each with 1.9 m² (20 sq. ft.) of storage, use of accessible washrooms and circulation space as required, to be programmed by the Park Board on weekdays from 3-10 p.m. and Saturdays from 9 a.m. - 4 p.m. and otherwise available to program for use of building occupants or hospital uses.

Comments of the Director of the Housing Centre: The homeless use Emergency centres when they get sick, as they usually don't have access to the medical system any other way, and they may use Emergency centres when they are not particularly ill but are seeking temporary food and shelter. In addition, some people lose their homes while they are in hospital, and can have no place to go when they are discharged. A small facility associated with the VGH Emergency centre that could provide temporary accommodation and support services is worth exploring. It would allow housing and service providers access to the homeless and the potential to move some off the street and into appropriate housing, as well as to link them with appropriate services. It is not proposed that VGH be required to provide such a facility, as other funders would be expected to contribute capital and operatingfunding. It is proposed to explore the opportunity with the VGH and other funders to see if there is support for such a facility within the VGH precinct.

The redevelopment of the Nurses Residence for congregate housing or other affordable housing is also supported.

Social Planning Comments: The existing VGH childcare facility, Kids In Care, is oversubscribed and has a waitlist of some 200 families. Based on the Civic Childcare Strategy, October 1990, which sets out the requirement, "where appropriate, construction and equipping of child care facilities as a condition of rezoning", and using the City's standard basis for calculation, a 69-space child daycare facility will be required as part of the VGH development. The facility may be located near the existing daycare facility, or elsewhere within the VGH Comprehensive Development District or if that is not possible, at a nearby location acceptable to the Director of Social Planning and shall meet all City Childcare Guideline Standards and Community Care Facilities Licensing Daycare requirements and be satisfactory to the Directors of Social Planning and Facilities Development; delivery of the completed facility shall be accomplished within the time limited therefore by the City.

Public Benefit: VGH anticipates that the proposed medi-tech development will attract highly qualified practitioners and researchers to work in the hospital. The Hospital Foundation, as owner of these facilities, may receive royalties from commercially successful applications of their research in the long term. The public would gain restoration of the 1906 Heather Pavilion. Pedestrian realm improvements are also contained in the Preliminary Development Plan and Development Guidelines. Congregate housing may benefit seniors.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on July 26, 2000 and supported the proposed use, density and form of development with a request that the project again be presented to the Panel before referral to Public Hearing to provide an opportunity to review "a more defined, clearer outline of the proposed open space, pedestrian circulation and parking" requiring a concise illustration of "overall principles ... defining the character of the pedestrian and open space linkages"; and to demonstrate how the following objectives can be achieved:

· relocation of tennis courts to avoid obscuring the front of the Heather Pavilion;
· enhancing Heather Pavilion as the focal point and focus of the proposed Heritage Common;
· achieving "formal simplicity and axial formality" "to integrate this area back into the city grid";
· achieving "a clear grid alignment along 11th Avenue to the future CentennialPavilion" not to be jogged at Willow Street;
· respecting setbacks which would achieve the same objective along the Willow corridor; and
· "a clear message that the public open space south of Heather Pavilion must follow the grade down from 12th to 11th Avenues".

Revised plans addressing the above objectives and providing greater detail on treatment of open space and pedestrian corridors were presented on March 7, 2001 and received the Support of the Panel. Minutes of these meetings are attached as Appendix H.

Vancouver Heritage Commission Comment: That the Vancouver Heritage Commission supports the overall approach to the rehabilitation of the 1906 building at Heather Pavilion and recommend that the faithful rendering of the exterior, including window detailing and colouring, be executed. Further that the Vancouver Heritage Commission urges the applicant to incorporate remnants of the heritage buildings slated for demolition in the landscape design, and in particular the heritage mitigation approach of scenario three that seeks to reuse the towers of the 1908 portions of Heather Pavilion. That the Vancouver Heritage Commission regrets that other heritage buildings were not incorporated into the plan, namely the Doctors' Residence, Health Care for Children building, and the Tzuchi Centre, noting that they too form a worthy presence on the site.

The City desires that the agreements executed with regard to the Heather Pavilion deal with the stabilization and protection of the existing structures. This includes the enclosure of all openings in the 1906 Pavilion that result from the removal of attached structures; the photogrammetric recording, labeling, dismantling and storage of the two end bays and towers of the 1908 addition; as well as the dismantling, quarrying and storage of all exterior heritage materials from the Heather Pavilion 1908 and 1920 additions that may be used in the rehabilitation of the 1906 Pavilion.

Environmental Implications: Nearby access to transit and commercial services may reduce dependence on automobiles relative to alternate locations for these uses in other parts of the region. Interaction between hospital and medi-tech uses will require less transportation than if these uses are located in other areas. Some landscape and building design features associated with increased sustainability have been incorporated into the Development Guidelines.

Social Implications: There are positive social benefits to be gained through integrating the precinct with surrounding areas by means of an improved pedestrian environment and heritage restoration contained in this proposal. Implications with respect to the Vancouver Children's Policy and Statement of Children's Entitlements have been dealt with in the recommended conditions for improved Childcare.

Comments of the Applicant: The applicant has been provided with a copy of this report and has provided the following comments:

PRELIMINARY DEVELOPMENT PLAN

REGIONAL HEALTH BOARD LETTER

PREVIOUS COUNCIL POLICY

PAST COUNCIL RESOLUTIONS REGARDING VGH

I. Current Temporary Maximums

On July 28, 1998, Council approved the most recent temporary increase in FSR, resulting in the current temporary level of 2.40 FSR. There was no change to site coverage. This ratio is based on the revised site area resulting from the resolution C (1) on October 21, 1993 (shown below).

II. Review Of VGH Conceptual Development Plan 1992-2002

On October 21, 1993, Vancouver City Council approved the following recommendations of the October 21, 1993 Standing Committee on Planning and Environment:

III. BC Centre for Disease Control

On July 20, 1993, Council approved the most significant of recent temporary increases in FSR and site coverage to accommodate the 15 110 m² (162,648 sq. ft.) B.C. Centre for Disease Control (B.C. CDC), to be developed by B.C. Buildings Corporation at 655 West 12th Avenue. The temporary maximum density approved was 2.48 FSR and 56.78% site coverage. These figures are lower than the 2.575 FSR and 57.33% site coverage approved in May 1991 because the development application for the Ambulatory Care Centre (LSP 2B) was withdrawn by VGH on January 25, 1993.

IV. Receipt of Conceptual Development Plan

On July 9, 1992, VGH presented to Council a draft master plan entitled "Conceptual Development Plan 1992-2002" and Council approved the following resolutions:

A. THAT Council receive the draft "VGH Conceptual Development Plan 1992-2002" and refer that document to the City Manager for review and report back to Council of a staff assessment of proposals contained in the plan.

B. THAT Council instruct the Director of Planning to meet with VGH, Park Board staff and residents of the Fairview RM-4 area and report back their views on open space development, including the block now occupied by the Nurses' Residence and potential retention of Heather Pavilion.

V. Ambulatory Care Resolutions

On June 27, 1991, Council approved a resolution to increase the maximum FSR and site coverage in the VGH CD-1 District for a temporary period of time to permit consideration of a development application for an Ambulatory Care Centre (LSP 2B), subject to several requirements, including the following:

1. Submission, to the City, of a master plan for development of the entire VGH site and the timetable proposed for each phase of development; such plans to be submitted prior to issuance of any development permit.
2. No development permit shall be issued and the City shall be free to fully enforce the existing Public Open Space Agreement, unless Council approves a new Public Open Space Agreement, or new deadlines to implement the existing Public Open Space Agreement, no later than June 30, 1992.

In the June 1991 motions, Council agreed to consider a revised timetable for demolition in the context of the Master plan. If approved, a revised timetable would be subject of a new legal agreement. Other proposed revisions to regulations could be approved by Council resolution or be adopted as amendments to the CD-1 By-law through the rezoning process.

MR. OLDHAM'S LETTER

URBAN DESIGN PANEL COMMENTS

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on March 7, 2001 and offered the following comments:

"EVALUATION: SUPPORT (10-0)

· Introduction: Tom Phipps, Central Area Planner, introduced this application. The Panel last saw the VGH expansion proposal in July 2000 when the initial submission for rezoning the precinct was unanimously supported. However, at that time, the Panel asked that the project be returned for further review in order to assess the response to its comments and advice. As well, staff seek the Panel's opinion on how well the proposal is progressing in the development of a public realm that is commensurate with the site's regional stature. It is a major employment centre and a major focal point in the region, requiring a significant public open space, linked in a series of pedestrian corridors. The overall pedestrian realm will be much more important than in many other areas of the region. It must link the neighbourhood to Broadway, and allow people to circulate within the precinct in a way that encourages movement on foot rather than by car, given the limited amount of vehicular traffic that can be accommodated.

· Applicant's Opening Comments: Don Vaughan, Landscape Architect, noted the precinct has the character of a campus, with the buildings in a park setting. He reviewed the streetscape study, noting the emphasis has been on this being a wellness centre, providing accessibility for everyone.

The Panel reviewed the model and posted materials.

· Panel's Comments: The Panel unanimously supported this rezoning application and commended the applicant for imposing a good sense of order on the whole scheme. The precinct has a wonderful campus feel, and a very nice pedestrian public realm.

· Applicant's Response: David Simpson, Architect, thanked the Panel for the very constructive and helpful comments."

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

855 West 12th Avenue

Legal Description

Numerous, attached as Page 2 of this Appendix

Applicant

Vancouver Hospital and Health Sciences Centre

Architect

Ron Yuen, Davidson Yuen Simpson Architects

Property Owner

Vancouver/Richmond Regional Health Board

Development Consultant

Mark Betteridge, Mark Betteridge and Associates

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

139 085 m² (1,497,147 sq. ft.)

369.3 m² (3,975 sq. ft.)

138 715.7 m² (1,493,172 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

CD-1

CD-1 Amended

  

USES

Hospital

Hospital, medi-tech, Retail and Service Uses, Multiple Dwelling, Special Needs Residential - Congregate Residential

Same

DWELLING UNITS

586 Sleeping Rms; 0 D.U.

0 Sleeping Rms; Dwelling Units Limited by Floor Space to approximately 150 New or 200 in Nurses' Residence

Same

MAX. FLOOR SPACE RATIO

2.23

2.6

Same

MAXIMUM HEIGHT

Form of Development

  

Some Areas Regulated
See Draft By-Law

PARKING STANDARDS

1: 93 m² for hospital;

1: 93 m² hospital, related uses;
3: 93 m² for medi-tech;
1: residential dwelling unit

Same;
2.21: 93 m² for medi-tech
RM-4 Ratio, Parking By-Law

FRONT YARD SETBACK

Form of Development

  

Some Frontages Regulated
See Draft By- Law

SIDE YARD SETBACK

Form of Development

  

Form of Development

Schedule A:

Legal descriptions for the properties within the CD-1 (59) District are:

· 910 W. 10th Avenue: Lot A, Block 376, District Lot 526, Plan 17061

· 895 W. 10th Avenue: Lot C, Block 357, District Lot 526, Plan 21311

· 866 W. 10th Avenue: Lot E, Block 377, District Lot 526, Plan 9237

· 828 W. 10th Avenue: Lot A, (Reference Plan 3819) Block 377, District Lot 526, Plan 991

· 2615 Ash Street: Lot 1, Block 379, District Lot 526, Plan 17553

· 2785 Ash Street: Lot A, Block 399, District Lot 526, Plan 13994

· 655 W. 12th Avenue: Lot 1, Block 399, District Lot 526, LMP 20009

· 890 W. 12th Avenue: Block 417, District Lot 526, Plan 1276 Ref. Plan LWP 10449

· 2550 Heather Street: Lot A, Block 358, District Lot 526, Plan 991

· 2733 Heather Street: Block 378, District Lot 526, Plan 991

· 2750 Heather Street: Lot 19 & 20, Block 399, District Lot 526, Plan 1276

· 2851 Heather Street: Block 418, District Lot 526, Plan 1276

· 2699 Laurel Street: Lot 1, Block 376, District Lot 526, Plan 16793

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