CITY OF VANCOUVER

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Report Date:

February 28, 2005

 

Author:

Dave Thomsett

 

Phone No.:

604.873.7796

 

RTS No.:

04585

 

CC File No.:

5304

 

Meeting Date:

March 15, 2005

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Text Amendment - 1630 West 15th Avenue (Vancouver Lawn Tennis and Badminton Club)

RECOMMENDATION

(i) plans received June 21, 2004;

(ii) draft CD-1 By-law provisions, generally as presented in Appendix A; and

(iii) the recommendation of the Director of Current Planning to approve, subject to conditions contained in Appendix B;

FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 amending by-law generally in accordance with Appendix A for consideration at the Public Hearing.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of the foregoing.

COUNCIL POLICY

· The site is zoned CD-1 By-law (#284) No. 6962.
· Community Amenity Contributions policy, as amended by Council and in effect as of February 1, 2004.

PURPOSE AND SUMMARY

This report assesses an application to permit the addition of a second air-supported tennis bubble over four existing tennis courts that would increase the maximum floor space ratio (FSR) for the site from 0.97 to 1.12. The CD-1 By-law would be amended to create a separate density category for air-supported structures. No floor area increases are requested for permanent structures.

The Director of Current Planning recognizes the benefits of additional winter tennis play for the growing club membership and supports the additional tennis bubble subject to the submission of a detailed landscape plan.

MAP

DISCUSSION

Background: In 1992, Council rezoned the site of the Vancouver Lawn Tennis & Badminton Club from RT-5 to CD-1 to permit a major expansion of its recreational, social and parking facilities in two stages. Gross floor area would be increased 48 percent, including the addition of five tennis courts, two squash courts, a lap pool and related facilities. About 85 percent of the expansion would involve below-grade floor space. The resulting form of development would have minimal visual impact on the surrounding area. The rationale for supporting the 1992 proposal was that the new facilities to serve club members would relieve demand on publicly-operated recreational facilities. There were no concerns expressed by surrounding property owners at the time.

A development permit was issued in 1992 for interior renovations and to add a new circulation corridor. Another development permit was issued in 1997 to expand locker facilities, add a level of underground parking and carry out renovation work. Other facilities permitted in the CD-1 zoning have not been built. The Club membership is about to undertake a long range planning process to review their future needs but, apart from the proposed second tennis bubble, substantial changes from the 1992 proposed form of development in terms of massing, height and density are not envisioned. One proposed change is to retain the seasonal pool bubble rather than build a new lap pool. No additional floor area is requested to accommodate the pool bubble.

Use: Four existing clay tennis courts are proposed to be covered with an air-supported bubble to be erected each year from October 1st to April 30th. This would provide additional year-round tennis play of benefit to the club members. The need for this facility is due to growing membership as described by the applicant in Appendix C.

The public interest rationale for supporting this proposal is the same as put forward by staff in 1992. That is, given population growth in and around the Central Area, the additional facilities would relieve demand on publicly-operated recreational facilities.

Staff are satisfied that the second tennis bubble is not proposed as an alternative to underground tennis courts that could be built under the current CD-1 By-law, and that ultimately the underground courts will be needed and built as well.

Density: Overall, floor space ratio (FSR) would increase from 0.97 to 1.12, or a net increase of 0.15. The only increase in FSR is for the second seasonal tennis bubble. Staff believe the density is reasonable given the South Granville context.

New Density Category for Air-Supported Structures: The CD-1 By-law permits an overall FSR of 0.97, within which all floors at or above the base surface cannot exceed 0.47. Base surface means a hypothetical surface determined by joining the established building grades at all corners of the site. The intent of this approach is to ensure the bulk of the new facilities is located below grade as reflected in the form of development approved in principle by Council at the 1992 Public Hearing.

When the CD-1 By-law was developed, the intent was that the 2 274 m² (24,480 sq. ft.) existing tennis bubble at the southwest corner of the site be counted as floor area above the base surface. However, since the floor of this structure is located just below the base surface it would technically not be counted as floor area above the base surface - theoretically permitting an additional 2 274 m² above the base surface.

To correct this error and maintain the intent of the 1992 rezoning, staff recommend that air-supported structures on the site be given a separate FSR limit, consistent with CD-1 By-laws for the Arbutus Club and the Jericho Tennis Club. The existing tennis bubble would be included in this new category, and the permitted FSR above the base surface (for permanent structures) would be reduced from 0.47 to 0.29.

Maximum FSR would be broken down as follows:

Permanent structures above the base surface

0.29

Permanent structures below the base surface

0.50

Air-supported structures

0.33

Total

1.12

Form of Development (Note Plans: Appendix D): The 1992 CD-1 By-law and form of development drawings would allow for five underground tennis courts (reduced to four as a result of a change to the form of development for reconfigured underground parking). The Club intends to build these in the future but the approximately $6.5 million cost makes it not feasible until other upgrades and minor additions are completed. With a growing membership, the applicant advises the club will need both the second bubble and the future underground courts. A tennis bubble also affords open tennis play desired in the summer months.

Due to the sloping grade, while the existing and proposed tennis bubbles have a height of 11 m (36 ft.) from their playing surfaces, the bubbles project above the sidewalk only 8.5 m (27.5 ft.) at the existing bubble's west side and 7.9 m (25.9 ft.) at the proposed bubble's east side. The applicant advises that a higher bubble is available and offers improved tennis play, but the club chose not to propose a higher bubble as it would have more impact on the neighbours.

The northerly views of residents along the south side of West 16th Avenue would not be affected, given the sloping grade and the existing Club building to the north of the proposed bubble. However, these residents would have to look at a relatively unattractive structure for seven months each year. Fortunately, a row of trees along the south edge has matured to heights well above the existing and proposed bubbles and these will help soften the proposed bubble. Staff recommend submission of a detailed landscape plan, primarily to ensure retention of existing trees and landscape, as a condition of approval.

Parking: There is no proposed or recommended increase in parking from the required 124 as no additional playing courts are being added.

Community Amenity Contribution: Because the site is over two acres it is considered a non-standard rezoning which calls for a negotiated approach to a Community Amenity Contribution (CAC). A Club is not exempt from a CAC.

While the CAC policy is mute on temporary structures, such structures are exempt from development cost levies (DCLs). Staff recommend that the net increase in FSR for the proposed tennis bubble should be similarly exempted from a CAC.

Council could, however, decide on the flat rate of $3.00 per square foot ($69,397) or could direct staff to negotiate a CAC based on the adequacy of neighbourhood facilities, the cost to provide deficient facilities, the project economics and other factors.

Public Input: Two neighbours living across from the existing tennis bubble are opposed to the proposal. One of the neighbours has written three letters and spoken with staff on several occasions. His concerns are outlined and addressed in Appendix C. A signature in support of the above resident's first letter was received from the other neighbour. Other residents in the area appear to be either supportive or neutral.

FINANCIAL IMPLICATION

There are no financial implications.

CONCLUSION

Planning staff recommend that the application to amend the CD-1 to permit a second seasonal tennis bubble be referred to a public hearing and approved, subject to submission of a detailed landscape plan. Staff recognize the benefits to the growing Club membership of additional winter tennis play and are satisfied that permitted underground tennis courts will also be built in the future as the membership continues to grow.

- - - - -

APPENDIX A
PAGE 1 OF 1

DRAFT CD-1 AMENDING BY-LAW PROVISIONS

Note: A By-law will be prepared generally in accordance with the provisions listed below, subject to change and refinement prior to posting.

Condition of Use

Section 3, Floor Space Ratio

Section 5, Building Height

APPENDIX B
PAGE 1 OF 1

PROPOSED CONDITIONS OF APPROVAL

Note: Recommended approval conditions will be prepared generally in accordance with the draft conditions listed below, subject to change and refinement prior to finalization of the agenda for the Public Hearing.

FORM OF DEVELOPMENT

(a) That the proposed form of development be approved by Council in principle, generally as prepared by Kori Chan, Proscenium Architecture + Interiors Inc. and stamped "Received Planning Department (Rezoning Centre), June 21, 2004", 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.

(b) That, prior to approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning, who shall have particular regard to the following:

Landscape:

- existing trees (size, location, species) and adjacent structures on the site;
- any City trees located on adjacent City property;
- the public realm (property to the curb); and
- any landscape alternatives to be made related to this proposal.

APPENDIX C
PAGE 1 OF 3

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 14 217 m² (153,036 sq. ft.) site is comprised of a single parcel located on the north side of West 16th Avenue. The site has a frontage of 152.64 m (500.8 ft.) along its north boundary, a frontage of 82.24 m (269.6 ft.) along Pine Street, and a frontage of 100.43 m (329.5 ft.) along Fir Street.

Proposed Development: Proposed, is a seasonal air-supported tennis bubble of 2 149 m² (23,132.4 sq. ft.) located along West 16th Avenue over four existing clay tennis courts located immediately to the east of an existing tennis bubble of approximately the same size, height and colour (green).

Public Input: Prior to submission of the application, the Club hosted an open house. In total, eight people from the neighbourhood attended the meeting, including two people who reside on the south side of West 16th Avenue. Six people submitted comment forms, all of whom supported the tennis bubble or were neutral. One resident from West 16th Avenue asked for a copy of the zoning information to study further, and this was provided by the applicant.

When the application was submitted, the applicant erected a rezoning sign on the site and staff notified approximately 300 property owners in the surrounding area. Staff subsequently received three letters from and had several conversations with one resident who lives across from the existing tennis bubble on West 16th Avenue. His primary concern is that a second tennis bubble would create an almost continuous mass 30 feet high for a distance of over 412 ft. He believes the proposed bubble will adversely affect the value of his home. He notes the Club is permitted to build five underground tennis courts that he believes would provide for more use than the proposed covering of four existing courts. He raises a variety of other issues, some of which are addressed in this appendix or in the body of the report.

Staff received a signature in support of the above resident's first letter from a resident who also lives across from the existing tennis bubble. Staff also received two phone calls - one from a resident across from the proposed bubble concerned about late night activity at the Club, and one from a resident to the north who was satisfied when advised the proposed bubble would not affect her views to the south.

Club Membership's Need for the Additional Tennis Bubble: The applicant advises:

"Club Membership has increased significantly over the past 12 years. The 1991 Policy Report predicted a 3.4% (from 1451 to 1505) increase in membership by 2001. The club actually grew by over 14.8% during this 10 year period to 1,666 memberships. Between 2001 and 2005, membership has continued to grow another 12.4% to its current number of 1873. This means a total growth of 29% since the 1992 rezoning.

This increase in membership has created additional demand and pressure on the Club's facilities, especially the tennis courts. 67% of the Club members list tennis as their primary reason for joining and approximately 80% of the Club's members play tennis. 87% of Club members live in the City of Vancouver.

In addition, it has been the Club's experience that the tennis playing demographic has definitely changed and evolved as the older players are healthier and more active into their golden years. Tennis is a racquet sport that is enjoyed by people of all ages and the Club has active tennis players into their 90's. The most recent U.S. Indoor Tennis Championships in the age classification "over 90" was won by a Club member.

The clay court bubble is intended to serve the needs of the Club's present Membership. The Members have determined that a bubble is the optimum way to provide tennis courts for both indoor winter and outdoor summer play. If the Club has available land, this would be the preferred court configuration for all of our tennis courts.

The 1992 rezoning report approved a series of improvements and expansions for the Club. They included five (5) underground tennis courts. At the time, and to this day, the Club's intention to build underground tennis courts is a long range prospect; however, the high cost of building underground courts (approximately $6.5 million for four courts) has made the cost effectiveness of building underground not feasible until the many other interior upgrades and minor additions are completed. As a comparison, the bubble is approximately $600,000 to engineer, design, ship and install. Costs and membership dynamics play a considerable role in changing the plan's implementation. The Club's circumstances have changed significantly from 1992 until 2004, and the clay court bubble meets their immediate needs."

Neighbour's Concerns About Evening Noise From the Pool Area: The applicant advises:

"The Club is a not-for-profit society which has occupied its current location since 1914. We are a racquets club which also provides social and hospitality events for the Membership. Functions held at the Club (for instance weddings, banquets, etc.) are member sponsored events.

In the past, any event which is held around the Club's pool area is shut down before 11:00 p.m. We had one event in July 2004 where amplified music was played outdoors until 10:30 p.m. The July 2004 event will not be repeated. The Club hosts an annual Pool Party in August of each year, and tickets for this event are sold only to Members.

The Club has worked with several officials from the City of Vancouver License and Inspections Department and the Province of British Columbia Liquor Control and Licensing Branch in order to ensure that all future events fully comply with the laws of British Columbia and the by-laws of the City of Vancouver."

Neighbour's Concern About Bubble "Slapping" Noise: The applicant advises:

"Over the last five years, the Club has taken considerable steps to ensure that heavy snowfalls, the resultant build up of snow on the bubble, and the required efforts to remove the snow, do not create undue noise for the neighbourhood. These steps include regular and frequent weather monitoring and forecasting and increasing the air temperature within the bubble to keep the snow melting. As an extreme measure and only in a true emergency, would the Club have to resort to manually "slapping" the bubble with ropes to remove the snow. The Club has only had to resort to this extreme measure once in the past five years."

Neighbour's Concern About Moisture Problems in Covering Clay Courts: The applicant advises:

"The Club has conducted significant research into the experience of other clubs when bubbling clay courts. In Canada, clay courts have had bubbles installed over them since 1985. The Club's clay court supplier, Lee Tennis Products, and two Canadian bubble suppliers, Yeadon Fabric Structures Ltd. and The Farley Group have worked extensively with Club management to address any concerns raised re moisture, mildew and mould. As Jericho Tennis Club outlined in their rezoning application which included a bubble structure, technology has evolved to ensure that the newest bubbles are environmentally advanced to address energy demands. There are currently at least 18 clay court tennis bubbles installed in Canada."

Comments of the General Manager of Engineering Services: "Engineering Services has no objection to the proposed rezoning."

Comments of the Fire Protection Engineer: "The location of the proposed seasonal air structure (next to 16th Avenue) would appear to be acceptable to VFRS."

Comments of the Landscape Technician: "The existing continuous row of deciduous trees along the south edge serve to increase privacy and mitigate potential deleterious impacts to neighbours created by the existing and proposed structures. Although it is not necessary to plant new trees for this proposal, it would be prudent to request a detailed landscape plan for the southern edge of the site (focus to be on existing tree inventory)."

Recommended landscape conditions are outlined in Appendix B.

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

"The applicant has reviewed this report and generally agrees with its contents and recommendations."

APPENDIX D
PAGE 1 OF 1

Total 3 Page of Plans (under "pdf" file),

APPENDIX E
PAGE 1 OF 1

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

1630 West 15th Avenue

Legal Description

Lot 1, Block 469, D.L. 526, Plan 13363

Applicant

Kori Chan, Proscenium Architecture + Interiors Inc.

Architect

Kori Chan

Property Owner

Vancouver Tennis & Badminton Holdings Ltd.

Developer

Vancouver Lawn Tennis & Badminton Club

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

14 217 m² (153,036 sq. ft.)

-

14 217 m² (153,036 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

CD-1

CD-1 (amended)

-

MAX. FLOOR SPACE RATIO

Maximum 0.97, except:
Maximum 0.47 above the base surface

Maximum 1.12, except:
Maximum 0.29 above the base surface for permanent buildings; and
Maximum 0.33 for air supported structures

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