POLICY REPORT
DEVELOPMENT AND BUILDING

Date: February 5, 1999
Author/Local: T. Phipps /6604
RTS No. 00487
CC File No. 5304-2

TO:	Vancouver City Council
FROM:	Director of Central Area Planning, on behalf of Land Use & Development
SUBJECT:	CD-1 Rezoning - 4470 West 8th Avenue (Sasamat Gardens)

RECOMMENDATION

A. THAT the application by Home Investments Ltd. to rezone 4470 West 8th Avenue (Lot 1, Block 149, D.L. 540, Plan 229) from RS-1 One-Family Dwelling District to CD-1 Comprehensive Development District, to permit 42 dwelling units in two-family dwellings and multiple dwellings with three and four units, be referred to a Public Hearing, together with:

(i) plans received October 13, 1998;

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

(iii) the recommendation of the Director of Central Area Planning on behalf of Land Use and Development to approve, subject to conditions contained in Appendix B; and

FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law for consideration at Public Hearing.

B. THAT, subject to approval of the rezoning at a Public Hearing, the Subdivision By-law be amended as set out in Appendix C; and

FURTHER THAT the Director of Legal Services be instructed to bring forward the amendment to the Subdivision By-law at the time of enactment of the zoning by-law.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A and B.

COUNCIL POLICY

On May 8, 1989, Council approved the following community development objectives as a component of the City's housing policy:

Maintain and expand housing opportunities in Vancouver for low and moderate income households, with priority being given to Downtown lodging house residents, elderly people on fixed and limited incomes, the physically and mentally disabled, and single-parent families with children.

Encourage the distribution of acceptable housing forms and affordable shelter costs equally among all residential neighbourhoods of Vancouver.

On January 18, 1996, Council approved the Rezoning Policy - Before and During CityPlan Neighbourhood Visioning, which is summarized in part, as follows:

Rezoning applications which do not fall into specific rezoning categories (heritage retention, institutional uses, social or affordable housing or neighbourhood demonstration projects; active applications or those covered by approved policies or plans) will be individually assessed as to whether the proposal sets significant new directions and/or precludes options for the neighbourhood visioning process. If an application could be expected to set new directions or preclude options it would not be considered. However, if development under current zoning would preclude options, then a rezoning would be considered. The policy cites the following example of sites which will be considered:

… an underutilized large site near likely neighbourhood centre, e.g., 8th and Sasamat, some Kingsway motel sites.

PURPOSE AND SUMMARY

This report assesses an application to rezone a vacant .8 ha (2.16 ac) site on the east side of Sasamat Street between 8th and 9th Avenues from RS-1 to CD-1 to permit development of 42 dwelling units in a mix of two, three and four family structures at a density of 0.90 Floor Space Ratio (1.06 FSR on net site area). The owner initially proposed inclusion of apartment structures rising to 13.1m (43 ft.) in height. This plan was changed in response to staff and community concerns to include only ground oriented units with a maximum height of 9.2m (30 ft.) with some roof peak protrusions.

Most residents commenting on this proposal favour retention of RS-1 zoning due to concerns that only one family dwellings fit in with area character and that this development would be a precedent which results in further change to land use and density in the area. Staff believe this large site adjacent to commercial services and transit represents a significant opportunity for ground oriented alternatives to single family housing while retaining the single family character and ambience of the area and because the site is vacant, it is therefore unique to the area, and will not represent a precedent. Staff recommend CD-1 rezoning with conditions addressing outstanding design issues and a choice of conditions to address an unresolved access issue.

MAP

ELECTRONIC COPY NOT AVAILABLE.

DISCUSSION

History The O'Hagan family has owned this single large parcel since 1911. At one time it was occupied by a house but has been vacant since 1943. A rezoning application for a high rise multiple dwelling was refused in 1953. An RS-5 rezoning initiative for the surrounding area was considered at Public Hearing by Council in July 1997 and refused after extensive opposition from area residents, particularly regarding additional height.

Over the course of this proposal, the applicant has sought five expressions of public opinion, which indicated reasonable levels of support, while residents' groups have sought three, indicating opposition by a clear majority. These are summarized in Appendix C. Staff believe the majority of nearby residents are opposed, while there is probably more support from residents in the broader area.

CityPlan Policy Council policy for areas not currently engaged in neighbourhood visioning is to consider a rezoning application if a site would otherwise be developed under existing zoning to a use and form of development likely to preclude options that could be considered in visioning. The development under existing zoning would preclude options to achieve planning and housing objectives, such as diversity of housing types in proximity to transit and commercial services. The approved policy explicitly cites this site as an example fitting that approach.

Use A mix of ground oriented two-family and multiple dwellings is proposed. The latter would vary in size, comprising three- and four-unit structures. Some are single storey units, potentially suitable for seniors. No multiple dwellings of an apartment form are proposed. Two apartment structures contained in the original submission have been deleted.

A majority of residents in the vicinity of the site appear to prefer RS-1 zoning. They believe that any other use would lead to further rezonings, permitting changes to surrounding uses and densities. Residents of the south side of 9th Avenue feel particularly vulnerable, due to the presence of commercial zoning immediately to the south. However, rezoning of the subject site would not provide a legal precedent or rationale for rezoning other nearby sites, as there is no comparable large, historically vacant site in the area. Also, staff do not expect that the economics of assembling such a site would be viable. Current RS-1 zoning and Subdivision By-law provisions would permit up to 22 one family dwellings on 9.2 m (30 ft.) wide lots.

However, staff note the unusual, if not unique, characteristics of this large, historically vacant single parcel close to shopping, commercial services, transit and recreational opportunities with UBC employment and educational opportunities 2.5 km to the west. These locational and site characteristics are compelling reasons to consider ground oriented alternatives to one family dwellings.

West Point Grey has few ground oriented dwellings other than one family units and some unauthorized secondary suites. The majority of existing and potential multiple dwelling units are non-ground oriented and generally along arterials, which fails to accommodate many of those who would consider other forms of housing. Therefore, there would be a significant housing benefit to permitting a variety of ground oriented unit types on this site. To maintain the grain of the surrounding development pattern and the single family ambience of the area, no dwelling should exceed three units in size.

Density A density of 0.90 Floor Space Ratio (FSR) is proposed, based on the existing site area, resulting in a density of 1.06 FSR on the net site area, assuming dedication of an east-west lane. This is a reasonable intermediate density between 0.60 FSR typical of single family and 1.45 FSR typical of multiple dwelling districts. However, the appropriate density must reflect an acceptable form of development.

The original application dated May 16, 1997, proposed 52 dwelling units representing a unit density of 24 units per acre. The revised total of 42 units would represent 19 units per acre, compared to 12 units per acre expected under RS-1 zoning. This increase in density is expected to generate 118 - 127 residents, compared with 73 - 75 residents typical for 22 one-family dwellings and unauthorized secondary suites in West Point Grey. In neighbourhoods such as Dunbar, occupancy of new one family dwellings has risen in recent years. If that trend is reflected on this site, one family dwellings could result in up to 99 residents under existing zoning.

Most nearby residents do not support any increase in unit density. Some point to increased densities at UBC and the likelihood of residential development in the Jericho lands as sufficient to accommodate a share of the City's growth.

Form The frontage width, size, setbacks, height and character of houses in the area vary to produce a grain typical of older Vancouver neighbourhoods, considered desirable by many in West Point Grey. Under existing zoning, up to 22 one-family dwellings could be developed on this site without a requirement to reflect the grain, variety and character of surrounding development (see site plan, Appendix H). This could result in a distinct break with area character if uniformly designed. Staff believe a better physical fit with the neighbourhood would be achieved under CD-1 zoning with changes to the scale and orientation of several structures from that proposed by the developer and pursuit of the diverse neighbourhood architectural character in the design treatment. The most recent proposal from the applicant goes a long way to responsively address adjacency concerns (see plans, Appendix F). Further design development will fully realize this positive direction.

On June 11, 1998, staff presented `development parameters' defining objectives for a form of development which would fit in with surrounding development (noted in Appendix C and shown in Appendix E). The revised proposal responded favourably to a number of these parameters while others are the subject of conditions contained in Appendix B. To maintain a single family scale, it is recommended that no structures contain more than three dwelling units. Again, with respect to scale, staff believe the two structures at the lane alignment along Sasamat Street need to be scaled down from two and a half storeys to a maximum of 7.6m (25 ft.) to present no more than a storey and a half toward Sasamat, to achieve the scale of infill units. However, the applicant believes that the recommended height limit for these units is more restrictive than the `development parameter'.

Staff acknowledge privacy concerns of residents adjoining and near to the east edge of the site. Units adjoining the east edge of the site should be scaled to the size of a single family dwelling on a typical 33 ft lot. A four unit structure facing the east edge of the site should also be split into two-family dwellings and re-oriented toward the streets to ensure privacy for RS-1 sites to the east. Staff have explored massing options to ensure that these changes are viable. One general site plan of resulting changes is shown in Appendix H, though the applicant could take other approaches. The size of some units could be reduced and the number increased to 46 or 48, and increased site coverage could result as a response to conditions addressing the massing of buildings. Greater unit diversity would result.

View impacts are a primary concern of residents to the south and west. This site drops to the northeast affording good views toward downtown and the mountains. While most existing views would be lost to new one family dwellings under existing zoning, a rezoning should not exacerbate the loss of views. Therefore, an RS-1 height limit of 9.2m (30 ft.) is recommended, with increases only at points in the interior of the site where the slope can accommodate protrusions without resulting in further view blockage. The current plans include revisions to achieve this objective. A view study comparing allowable massing under RS-1 with the proposed massing is included in Appendix F.

Individual unit access requires further thought in several cases to make single storey units accessible to seniors.

Vehicular Access and Parking Access to underground parking and garbage collection facilities is proposed from a mid-block lane exiting onto 8th Avenue at the boundary between this parcel and an RS-1 zoned parcel owned by the applicant and occupied by a one-family dwelling. This approach is strongly preferred by the applicant because it offers four principal benefits:

… access from the lowest point of the site, minimizing ramping;
… the centre of the site could be utilized for private open garden space;
… a public open space overlooking the central garden could be provided; and
… less land would be dedicated from the development site than for an east-west lane.

This form of lane access is strongly opposed by most area residents and would have significant detrimental impacts as follows:

… adjacency to the side and rear yards of a one-family dwelling would expose the occupants to a loss of privacy, noise impacts, and exhaust fumes;
… orientation of exiting vehicles toward houses opposite the lane exit on 8th Avenue would expose their occupants to frequent headlight glare;
… garbage collection from this lane would expose adjacent dwellings to smells, noise and a sense of intrusion; and
… hazards to cyclists using the City sponsored 8th Avenue Bikeway would be significantly increased by a mid-block exit at the base of a hill.

The applicant believes that hazards of the 8th Avenue access point would be mitigated by several factors including modest traffic generation, a 91m (300 ft.) distance from the intersection at Sasamat Street, the 11m width of 8th Avenue, and design features to enhance visibility. He also notes greater pedestrian flows on Sasamat and Trimble Streets.

Staff believe access to underground parking and garbage collection without the above noted impacts should be achieved through one of three possible configurations along the traditional east-west lane alignment, as follows ( illustrated in Appendix G):

i) a conventional through east-west lane (probably dedicated) could be provided;

Engineering staff recommend a dedicated east-west through-lane to achieve efficiency in servicing and safety in garbage collection, eliminating the need for garbage trucks to back down the lane to the east. This would eliminate a central garden in the scheme and may increase traffic in the east end of the lane.

ii) a through lane (either dedicated or secured by legal agreement) could be jogged to the east of a principal underground entry, to discourage use of the east end of the lane;

If lane continuity is required, but more flexibility is desirable to address impacts, Engineering and Planning staff recommend that a 6m (20 ft.) offset or a planted central median be introduced east of the main underground entry to discourage the majority of traffic from exiting via the east end of the lane. Some interior garden space would be possible.

Alternatively, access secured by legal agreement instead of dedication, would leave the site intact, yet allow a through route for garbage collection and pedestrians without detracting from the aesthetics of interior open space. Area residents could continue to walk this route to the store, the bus or to school.

iii) a primary entry from Sasamat could be accompanied by a secondary entry from the existing east lane, without a through-lane, leaving ample space for an interior garden.

Planning staff believe there is also merit in retaining open space in the centre of the site which could be retained by a discontinuous lane access from Sasamat or from both ends. Through arrangement of the underground parking layout, traffic could be kept to RS-1 levels in the existing lane.

CONCLUSION

Planning staff conclude that this site, being large and historically vacant, offers a unique opportunity to provide ground oriented alternatives to one family dwellings in a location very close to a major transit corridor, retail, commercial services and nearby recreational opportunities in an area that provides for few ground-oriented multiple family dwellings. This responds to both city-wide and regional housing policy directions. A CD-1 rezoning presents the opportunity to achieve a modest increase in the number and variety of dwelling units, in a ground-oriented form which preserves the single family character and ambiance of the neighbourhood with height, setback, site coverage, massing and design which conform to single family norms. Indeed, a form more in keeping with the settled residential setting of older homes can be achieved through CD-1 zoning than through RS-1 development.

It is recognized that this site faces or adjoins RS-1 zoning on four sides. Therefore staff do not support inclusion of any apartment structures and prescribe a height to conform with RS-1 zoning, resulting in no greater view blockage than new RS-1 houses. Relative to densities permitted elsewhere in the city, staff believe the proposed density represents an acceptable, incremental scale in the context of RS-1.

The application has been substantially amended from the initial submission to delete apartment buildings and conform with a proposed height limit of 9.2m (30 ft.). Conditions are recommended to resolve outstanding issues related to massing and privacy of adjoining sites. However, access remains unresolved. Staff recommend site access along the traditional lane alignment in one of several supportable configurations, with conventional through-lane access preferred by Engineering staff. A legal agreement securing servicing, pedestrian and garbage truck access through the site would be an alternative to a dedicated lane.

* * * * *

APPENDIX A

DRAFT CD-1 BY-LAW PROVISIONS

Use

… A maximum of 48 Dwelling Units* contained in a combination of:

- One Family Dwellings;
- Two Family Dwellings; and
- Multiple Dwellings, each containing a maximum of 3 units.

Density

… Maximum floor space ratio of 0.90, based on the pre-dedication site area and calculation provisions of the RM-4 District Schedule,

Height

… A maximum of 10 m (33 ft.), provided that no structure exceed 9.2 m (30 ft.) adjoining an exterior yard.

Setback

… A minimum setback of 2.6m (8.5 ft.) from the west property line;

… A minimum setback of 1.2m (4 ft.) from the east property line;

… A minimum setback of 6.5m (21.5 ft.) from 8th Avenue;

… A minimum setback of 6.5m ( 21.5 ft.) from 9th Avenue,

Parking

… Per Parking By-law, except that 2 below grade parking spaces be provided for each dwelling unit.

* The applicant proposed 42 units. Changes to massing to respond to conditions could result in up to 6 additional smaller units. This would be within development parameters set by staff recommending a limit of 50.

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL

(a) That the proposed form of development be approved by Council in principle, generally as prepared by Roger Hughes + Partners, Architects, and stamped "Received City Planning Department, October 13, 1998", 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:

(i) deletion of the lane connection to 8th Avenue;

(ii) provision of vehicular access along an east-west alignment from Sasamat Street either:

(1) connecting to the existing lane with a 6m (20 ft.) jog immediately east of an underground access point, to deter exiting eastward; or
(2) stopping at approximately the point of an underground entry from Sasamat Street and, if desired, with a secondary underground entry from the existing lane a minimum of 10 m from the east property line and serving no more than 10 parking spaces;

(iii) relocation of garbage collection facilities away from adjacent houses to points on the east-west lane alignment closer to Sasamat Street than to the east end of the site;

(iv) reduction in height of the two mid-block buildings along Sasamat to a max. of 7.6m (25 ft.) and no more than 1.5 storeys facing Sasamat Street;

(v) increased variety in building massing, including roof forms and building composition along West 8th and 9th Avenues, to achieve better integration with the surrounding `grain' of development;

(vi) provision of a view analysis to demonstrate that there will be no increased view impact from building elements greater than 9.2m (30 ft.) in height;

(vii) reduce size of 4-unit Multiple Dwellings to a maximum of 3-units, with a maximum floor area of 5,000 sq. ft. in each Multiple Dwelling;

(viii) design development of the two family dwelling on West 9th Avenue adjacent to existing single family dwelling to emphasize its single family scale and character, and a maximum height of 2 storeys;

(ix) reconfiguration of proposed interior 4-unit Multiple Dwelling on lane alignment as 2 Two-family Dwellings, having front doors oriented towards the Avenues to provide direct street access and minimize overlook toward homes east of the site, with 2-storey maximum height; a minimum 10 m (33 ft.) setback from the east property line; and a comfortable separation between the structures along the lane alignment, or a further 5m setback of the second structure from the east property line;

(x) design development to take into consideration the principles of CPTED (Crime Prevention Through Environmental Design), having particular regard for;

- break and enter by reducing the permeability for cutting through private areas of the site. The semi-private open space can remain visible with the use of low open fencing and gating;

- theft in the underground by securing parking areas and by ensuring perimeter exit stairs minimize exposure to the streets. Parking garage walls ceiling and utility pipes to be painted white;

(xi) design development to reduce opportunities for graffiti (Note: Opportunities for graffiti can be mitigated by reducing areas of exposed wall, covering these walls with vines, hedges or latticework or by using protective covering material);

(xii) to achieve early maturing landscaping, plant materials other than ground covers should conform to the following minimum sizes:

…coniferous trees: 4m minimum height
…deciduous trees: 8 cm minimum caliper
…shrubs: 3 to 5 gallon sizes

(xiii) at least two elevators must be shown in locations convenient to units suitable to seniors;

(xiv) design development to the 8 units proposed as available for seniors housing to make access (exterior and interior) and livability suitable for elderly people;

(Washroom size and layout is particularly important, and should allow manoeuvring space for a person using a walker and/or a home support worker to safely assist the person bathing )

(c) That, prior to enactment of the CD-1 By-law, the registered owner shall:

(i) make arrangements to the satisfaction of the General Manager of Engineering Services and Director of Legal Services for the following:

1. Dedication of the south 33' of the site for road and construction thereof;

2. Dedication and construction of a 6.1m (20ft.) east-west lane aligned to include an offset, designed to the satisfaction of the Manager of Engineering Services and the Director of Planning, to deflect traffic from the east end of the lane;

OR

Provision of a legal agreement to the satisfaction of the Manager of Engineering Services and the Director of Legal Services securing access for garbage collection and recycling vehicles and pedestrians through a statutory right of way providing for public utilities and generally aligned with the existing east-west lane alignment adjacent to the site.

OR

only if 8th Ave. lane access is approved:

Dedicate a 30 x 125' portion of the site for lane; and
Dedicate a 10' x 10' corner cut off from the adjacent lot 1 for lane;

3. Upgrading of the City water system to serve this development;

4. A maintenance agreement for the landscaping shown on the east side of the proposed lane, if the 8 Avenue alignment and lane dedication requirement is approved;

5. Curb, gutter and pavement to centre line on north side of 9th Ave. and east side of Sasamat adjacent the site. (South side of 8th was deleted);

6. Sidewalk on the south side of 8th Ave. and the north side of 9th Avenue, adjacent the site;

7. Replacement of the existing non-standard sidewalk with a standard 5' wide sidewalk on the east side of Sasamat adjacent the site;

8. Street lighting on the north side of 9th Ave. adjacent the site;

9. Street trees adjacent the site where space permits; and

10. Undergrounding of all telephone and hydro services from the closest existing suitable service point.

(ii) Execute a legal agreement satisfactory to the Director of Legal Services providing that owners will not discriminate against families with children in the sale of their property.

APPENDIX C

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development This vacant .87 ha (2.15 ac.) site is located on the east side of Sasamat Street between 8th and 9th Avenues, one block north of the West 10th Avenue commercial district. The site slopes down from southwest to northeast, with a total elevation change of 10 m (33 ft.). Adjoining lots to the east on the same block are RS-1 zoned 10 m (33 ft) lots occupied by one family dwelling of mixed vintages. This pattern is also typical of surrounding blocks, though some larger frontages are present. Diagonally to the southwest of the site is a supermarket parking lot. The site has no landscape resources.

Proposed Development The original application proposed 52 dwelling units at a net density of 1.05 Floor Space Ratio. Plans indicated 24 units in four-storey apartment structures on the east-west lane alignment at the east and west edges of the site, with 22 units in two-family dwellings and 6 units in three-family dwellings along 8th and 9th Avenues. Underground parking access was proposed mid-block from 8th Avenue. The apartment structures reached 13.1m (43 ft.) in height.

The revised scheme contains 42 dwelling units, primarily in two-family dwellings, but with four-family dwellings at the corners of 8th and Sasamat, 9th and Sasamat, the easterly edge of the site on Sasamat and oriented east-west along the lane alignment at the east edge of the site. Access remains from an "L" shaped lane at the eastern boundary of the site on 8th Avenue. Height has been reduced to 9.2 m (30 ft.) at the edges of the site though some structures would reach 10m (33 ft) in the interior of the site. A central garden space and a public open space overlooking the central gardens are proposed.

Amendment to Subdivision By-law If the rezoning is approved, an amendment to the Subdivision By-law will be needed at the time of enactment to delete the Category A standards which currently apply to this RS-1 zoned parcel. Category A standards permit subdivision to parcels with a minimum frontage of 9.144m (30 ft.) and minimum area of 278.709 m (3000 sq. ft.).

Summary of Public Input A notification letter was sent to nearby property owners on May 29, 1997 and rezoning information signage was posted on the site on June 11, 1997. A Public Open House was held from 6:00 to 8:00 p.m. on February 24, 1998 followed by a Public Information Meeting from 8:00 to 10:00 p.m. Approximately 300 people attended, of whom 28 spoke in response to staff presentations regarding the rezoning process and the architect's presentation on the merits of the project.

This meeting was followed by a workshop meeting with 40 immediate neighbours convened on March 31, 1998 to report that the original proposal was not supportable by staff and to discuss in detail the concerns raised at the initial meeting.

Staff convened a subsequent Public Information Meeting on June 11, 1998 attended by 120 residents from a four block diameter area to present to the public and the applicant `development parameters' for what staff might support in a revised rezoning application. After receiving a revised application and reviewing the scheme in relation to the `development parameters', staff reported back to a final Public Information Meeting on January 11, 1999. Summaries of these meetings are on file in the City Clerk's office for review. The staff review in relation to the above noted Development Parameters is attached as Appendix E.

The City Clerk's office reports that a total of 711 letters were received from area residents. 75 supported the proposal primarily because of the variety of housing options it would provide and the potential for residents to downsize their homes yet stay within their own neighbourhood. 636 letters expressing opposition were received from nearby residents stating principal concerns as follows:

… rezoning was not anticipated when they purchased homes in the area;
… a majority of residents responding to West Point Grey Residents' Association mail-ins have indicated opposition to rezoning and Council should vote according to majority opinion;
… any use other than one-family dwellings would change area character;
… multiple dwellings could encourage speculation and redevelopment of other sites, particularly on the south side of 9th Avenue;
… some believe that their property should also be rezoned;
… rezoning should not precede neighbourhood visioning;
… view impacts could affect residents along 9th Avenue and Sasamat Street;
… more units would increase traffic and parking congestion in the area;
… structures along the eastern edge of the property could be intrusive, reducing privacy and sunlight to adjacent one family dwellings and rear yards;
… lane access from 8th Avenue would result in a hazard for cyclists on the 8th Avenue bikeway, intrude into adjoining rear yards, bring noise and smells from garbage collection, and shine headlights into front windows across 9th Avenue;
… vehicles exiting the east end of the lane would increase hazards to pedestrians due to limited visibility at Trimble; and
… increased density at UBC, on 10^th Avenue and possible on Jericho lands is enough density for the area's share of growth.

These issues are addressed in the body of the report under headings of Use, Density, Form and Vehicular Access and Parking.

Expressions of opinion were conducted by the applicant, community organizations and Planning staff at various times during the process. Documentation of the responses are not uniform. Materials submitted are available for review in the City Clerk's office and are summarized as follows:

A: March 1996 Prior to submission of a rezoning application, the `Committee For The Preservation Of RS-1 In West Point Grey' conducted a survey which asked the question: "Do you support the rezoning of the property bounded by 8th, 9th and Sasamat from RS-1 to CD-1 ? The West Point Grey Residents Association reports that the response was 91% "No". The questionnaire and tabulation by that Committee were submitted by a member and are available as noted above.

B: June 1996 The applicant mailed out a survey which asked recipients to respond to the statement: "I would consider housing for this site other than single family, incorporating stated attributes". The applicant reports 63% (220) said "Yes", 36% (126) said "No". Full documentation has been provided.

C: June 1996 At a Public Open House prior to submitting an application those viewing plans were asked by the applicant to respond to a statement that "This is a good proposal for this site". The applicant reports that 45% (71) said "Yes"; 55 % (88) said "No". Originals of all responses were provided.

D: June 1997 The West Point Grey Residents' Association mailed out a survey asking recipients to forward responses to the Mayor and Council indicating agreement with one of the following statements: "The current RS-1 zoning for the vacant half block bounded by 8th and 9th Avenues (commonly known as the O'Hagan property) should not be changed." or "I am willing to consider a change in zoning of the O'Hagan property from RS-1 to CD-1." The City Clerk's office tabulated the response and reports that 86.7% of respondents agreed with the first statement. A copy of the form and associated letter is available as above.

E: February 1998 Planning staff provided a questionnaire at the Public Open House / Public Information Meeting on February 24, 1998 to obtain opinions on issues relevant to the rezoning. A summary of the 112 responses received is available along with a copy of the questionnaire. Key concerns were: traffic/parking, density, desire to retain RS-1, view loss, access lane from 8th Avenue, lack of seniors' features, precedent and opposition to rental housing. Favourable comments: increased diversity and choice in housing, support for duplexes without apartments and general support for increased density.

F: August 1998 The applicant asked merchants to respond to the statement "I support a medium density CD-1 rezoning". "Yes": 96% (78); "No": 3%. A copy of 76 of these signatures is available.

G: November 1998 The applicant contracted Campbell Goodell Traynor Consultants Limited to conduct a random sample telephone survey of 415 residents between Blanca and Dunbar, 16th Avenue to Marine Drive. A stratifiedsample was used with 100 responses within 2 blocks of the site, 152 within the next two blocks north and south and 163 from the remainder of the area. These numbers were then weighted to reflect the proportionate populations of the areas. The full survey report is available.

The survey concluded that 50 % of respondents support the proposed rezoning; 32% are opposed. The percentages varied by 1% among the three sub-areas. Primary reasons for opposition were: preference for single family, density too high, traffic/parking and townhouses not seen to fit in.

H: November 1998 Newsletter The applicant mailed out a brochure describing the merits of the revised scheme and asking recipients to mail back a tear off responding "Yes" or "No" to the statement: "I support the Sasamat Gardens Project". The applicant provided copies of 290 responses, showing that 76% (219) were in support, 16% (47) opposed, and 8% (24) undecided.

I: December 1998 The West Point Grey Residents' Association mailed out a letter giving 10 reasons to oppose the proposed rezoning and asked recipients to mail in their opinion to the Mayor and Council. This letter and a summary of results indicating 659 opposed and 37 in favour is available in the City Clerk's Office.

Comments of the Manager of Engineering Services Engineering Services does not support the proposed 8th Ave. access point to this development due to the conflicts with the proposed bikeway on 8th Ave. and lack of conformity with the existing lane configuration in this neighbourhood. The existing service lane should be extended to the west and exit onto Sasamat Street to provide lane continuity consistent with the existing lane pattern in the area, thereby providing an efficient utility and garbage collection corridor.

Should this development proceed as proposed (against the recommendations of Engineering Services), Engineering issues must be addressed as reflected in conditions shown in Appendix B.

Any proposed traffic calming measures, lay-by, etc., adjacent this site are not approved as part of this rezoning application, but may be reviewed separately at the time of construction by the General Manager of Engineering Services.

Seniors' Advisory Committee Comments Due to the number of stairs shown in current plans, the Committee could not support the proposal as suitable for seniors in its current form. All comments of the Committee have been passed on to the applicant and those which may be dealt with at the rezoning stage have been incorporated in Conditions of Approval (Appendix B).

Bicycle Advisory Committee On January 21, 1998 the committee reviewed the proposed rezoning and resolved: "That, as the proposed location of the development's entry/exit driveway on Sasamat at 8th Avenue will create vehicle conflicts with bicycle traffic on 8th Avenue, result in a subsequent increase in automobile traffic on the Off Broadway Bikeway/proposed Greenway thoroughfare, and is inconsistent with the Bikeway/Greenway concept, the Bicycle Advisory Committee therefore opposes such development." The committee reviewed the revised proposal on November 18, 1998 and made no further comment.

Comments of Director of Housing and Properties The Housing Centre has reviewed revised plans for the above dated 1998/10/13. The proponent intends to build 42 multi-family units, comprised of 10 duplexes and 6 multiple dwellings of 3 or 4 units apiece. It is assumed the units will be all strata. The Housing Centre supports this rezoning proposal because:

A. Its production meets City objectives of increasing housing production; inasmuch as a number may become available to the rental market, this would help satisfy current tight demand for ground-oriented rental product on the West side.

B. The form meets the demand for seniors living in the area who wish to "down-size" but still remain in the neighbourhood, allowing for continuity of neighbourhood affiliation.

C. CityPlans policy encourages a wider variety of housing forms to meet changing needs of residents in neighbourhoods.

Urban Design Panel Comment The Urban Design Panel reviewed this application on July 2, 1997 and supports the proposed use, density and form of development (see Appendix D).

Public Benefit A net increase of approximately 17 ground oriented dwelling units would provide greater choice in residential unit types, accommodating 43 - 54 additional residents in a location with immediate access to a wide range of services and amenities, some of whom are likely to be current area residents seeking alternatives to one family dwellings.

Environmental Implications Nearby access to transit, commercial services and recreational opportunities may reduce dependence on use of automobiles.

Social Implications This proposal offers greater diversity of housing choice within West Point Grey and to the city in general and may permit some current residents to age in place within their own community. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlement.

Comments Of The Applicant The applicant has been provided with a copy of this report and has provided the comments attached as Appendix I.

APPENDIX D

URBAN DESIGN PANEL

Excerpt From Minutes July 2, 1997

2. Address: 4470 West 8th Avenue (Sasamat Gardens)

Use: Residential
Zoning: RS-1 to CD-1
Application Status: Rezoning
Architect: Roger Hughes Architect
Owner: Home Investment Ltd.
Review: First
Delegation: Roger Hughes, Fred O'Hagan, Richard Henry, Richard Meyer
Staff: Phil Mondor

EVALUATION: SUPPORT (8-1)

Introduction:
The Rezoning Planner, Phil Mondor, introduced this rezoning application. The site, in the West Point Grey neighbourhood, is presently vacant and undeveloped. Under the existing RS-1 zoning, the site could be subdivided and developed with 10 (possibly 11) 33 ft. lots. This rezoning application is to allow for six multiple dwellings to be developed to 1.05 FSR on the net site area (0.9 FSR gross), comprising a combination of duplexes, triplexes and apartments. A total of 28 townhouses and 24 seniors apartment units is proposed. One or both apartment buildings would be maintained as rental property. Following a brief description of the project, the Panel was asked to comment on the proposed T-lane at mid-block on West 8th Avenue, and the siting of an apartment building at the eastern end of the site. Public consultation to date has elicited concerns about land use, density, traffic, properties values, and precedent.

Applicant's Opening Comments:
Roger Hughes, Architect, described the proposal. He noted that while they have strived to increase the density on the site and create more dwelling units, the site coverage is only 35 percent, which is lower than many of the single family houses in the area. They have also attempted to keep the height within the RS-1 envelope. 112 parking spaces are being
provided underground, which relieves pressure on the immediate neighbourhood. The intent of the project is to offer smaller, more affordable housing as an alternative to single family housing.

Panel's Comments:
After reviewing the model and posted drawings, the Panel commented as follows:

… the Panel generally supported the proposed use, density, height and form of development, and strongly supported the rezoning application. Panel members considered the scale and density very appropriate. Developments such as this, which sensitively increase density in areas where no residents are being displaced and much needed alternative housing is being provided, are to be encouraged. If successful, the project could be a model for similar developments throughout the city.

… the Panel had some concerns about both apartment buildings, especially the one to the east. Some reduction in building mass in this location was recommended, to improve the relationship with the single family houses across the lane. The easterly portion of the site should be opened up to give visual access into the development from the lane and provide a friendlier interface. One Panel member thought there would be a conflict with the bicycle route on West 8th Avenue, and suggested flipping the parking access to be off 9th Avenue. High quality lane treatment will be critical. Extending the street trees around into and down the lane would also soften the transition to the neighbours. A bigger setback on both apartment frontages was recommended.

… concerns were expressed about the detailed planning of the central open space. It currently seems a little tightly defined. It will be important to the success of the development to ensure that this space is not only attractive but usable.

… at the next stage of development, the Panel would like to see greater variety, other than colour, in the townhouses. It was felt that alternative materials or some minor volumetric adjustments would address concerns about the monotony of the expression.

… given the development is oriented to seniors and noting that 8th Avenue is well used as a pedestrian as well as bicycle route, it was recommended including some benches along this route.

Applicant's Response:
Responding to comments about the monotony of the form, Mr. Hughes said they feel the neighbourhood needs larger scale development interspersed with the RS-1. With respect to a potential conflict between the parking access and the bicycle route, it is hoped to create some kind of barrier along 8th Avenue to allow for visual access to the lane turn-out.

BICYCLE ADVISORY COMMITTEE

Excerpt from Minutes - January 21, 1998

5. West 8th Avenue and Sasamat

Before the Committee for discussion was a copy of a letter dated January 15, 1998, from Dalton Cross, regarding the rezoning application for 4470 West 8th Avenue. As Mr. Dalton was present, and the Chair requested he provide an overview of his concern with proposed development.

Mr. Cross's main points included:

… the proposed development would include underground parking for 112 vehicles which would utilize an exit/entrance positioned mid-block on the 8th Avenue bicycle route;

… the portion of the route is on a hill with downhill travel being on the affected side of the street;

… vehicles exiting the site would have poor sight lines to approaching cyclists due to vehicles parked along the side of the street;

… this cycle route, which connects to UBC, is one of the busiest in Vancouver, including those cyclists travelling to UBC night classes after dark, adding to the visibility problem; and

… the bike route is an intended Greenway in the near future, which is to provide a safe and pleasant environment for pedestrians and cyclists.

Committee members raised the following points:

… once a route is establish as a bicycle route, any future development adjacent that route needs to be bike sensitive;

… when future similar developments occur, additional vehicles should be discouraged on adjacent bicycle routes, and developers encouraged to locate exit/entry points with direct access to the closest arterial;

… the Chair suggested the issue of additional traffic on cycle routes be placed on next month's agenda for further discussion, with additional policy details providedby Engineering staff; he also agreed to follow up with the appropriate Planning staff on time frame and process for this development; an

… Staff noted the proposed development's entry/exit is located at the lowest point on the site, and is the least expensive way to achieve access for the developer.

Following further discussion, the Committee

RESOLVED

THAT, as the proposed location of the development's entry/exit driveway on Sasamat at 8th Avenue will create vehicle conflicts with bicycle traffic on 8th Avenue, result in a subsequent increase in automobile traffic on the Off Broadway Bikeway/proposed Greenway thoroughfare, and is inconsistent with the Bikeway/Greenway concept, the Bicycle Advisory Committee therefore opposes such development.

SPECIAL ADVISORY COMMITTEE ON SENIORS

Excerpt from Minutes
November 6, 1998

2(c) 4470 West 8th Avenue - Revised Rezoning Application

The Committee based the following comments on a report received from the Housing Subcommittee:

The prevailing sense of the Committee is that only two components of this proposal might be made suitable for seniors, and even in those cases, they are only suitable for the younger, more able-bodied senior (60-65). The Committee came to this conclusion because stairs are a predominant feature of each housing unit, as well as the outdoor spaces. Older, more frail seniors who suffer from arthritis or who might need some assistance in walking would find the stairs an obstacle in their everyday living. Even the able-bodied, younger seniors would have difficulty "aging in place" in the project because of the great number of stairs.

The Committee found some of the units appropriate for seniors living, if all of the essential components for everyday living are accessible, and on one floor. For example, if a unit has a kitchen, bathroom and living/sleeping space on one level, then a senior would be able to live on that level without having to climb stairs. All the components necessary for everyday living are then available and accessible. This, of course, assumes that the senior can enter and exit the unit without having to climb stairs.

On this basis we looked at all of the units and found the following:

… Units A-1, A2 and A-3 have a living room and kitchen on the main floor and even if the developer considered turning the living room into a bed-sitting room, there would still be no bathroom on that floor. Therefore, these units would not be suitable for seniors.

… The lower levels of Units B-1 and B-2 have all the essential components for daily living on one level and the units could accommodate a senior if the entrances were accessible (i.e., no stairs from the street to the entrance).

… Units B-3 and B-4 require residents to climb many stairs before they enter the units. These two unit types are not suitable for seniors.
… Units B-5 and B-6 have all of the components for daily living on one floor and should, therefore, be suitable for seniors, again assuming that there are no stairs from the street to the entrance.

… Unit C-1 seems to be suitable for seniors because all the elements for daily living are on one level; however, it is difficult to know whether or not stairs impede the entrance to the suite.

… If the entrance stairs at Unit C-2 could be replaced with a ramp, then this unit would be appropriate for seniors.

… Units C-3 and C-4 have a long series of stairs at the entrance and are therefore not suitable for seniors.

The comments above which maintain that particular units may be suitable for seniors assume that the design details of a particular unit reflect "aging in place" considerations throughout. For example, the corridor width should be wide enough for a senior with a walker or wheelchair to manoeuvre safely and that while the units may not be "wheelchair accessible", they are at least "wheelchair friendly". At this submission, the Special Advisory Committee on Seniors finds that the landscaping design is not accessible for seniors and, in addition, we also have some security concerns.

In general, we find that this project has not been designed with seniors in mind, but rather it seems more suited to the "empty nesters" or young adults.

RESOLVED

THAT the Special Advisory Committee on Seniors cannot recommend approval of the revised rezoning application for 4470 West 8th Avenue; and

THAT this resolution and the commentary leading to it be communicated to the appropriate members of the Vancouver Planning Department.

APPENDIX E

Planning Department Review of Proposal
for 4470 West 8th Avenue (Sasamat Gardens)

As Revised in Response to Development Parameters Supportable
by the Planning Department as Presented June 11, 1998

1.0 Maintenance of `single-family-like' ambience, to meet community concerns.

1.1 `House-sized' building elements - with a variety of massing.

SUPPORT, Subject to the following conditions:

… Increase variety in building massing: see condition (b) (v)
(All conditions are contained in Appendix B)

… Reduce size of buildings:

a) along Sasamat Street: see condition (b) (iv)
b) in the interior of the site: see condition (b) (ix)

1.2 Front yard setbacks and relationship to the street similar to surrounding housing.

SUPPORT

1.3 RS-1 heights (30 ft) on all street frontages, with modest height increase (up to one storey) to be considered in `view shadow' area mid-block behind 8th Avenue and on a narrow diagonal axis from the corner of 9th Avenue and Sasamat Street.

SUPPORT, Subject to the following conditions:

… Reduce heights of mid-block buildings: see Condition(b) (iv)

… Provide a view analysis: see Condition (b) (vi)

1.4 No `apartment building-sized' building forms.

NON-SUPPORT

… Reduce size of 4-unit multiple dwellings: see Condition (b ) (vii)

1.5 For transition at east end of site, with no intervening lane, buildings adjacent to RS-1 dwellings would be maximum two storeys with a single-family scale and character and not oriented toward adjoining rear yards.

NON-SUPPORT

… Side by side duplex adjacent to the existing single family house to be redesigned: see Condition (b) (viii)

… Reconfigure proposed 4-unit multiple dwelling on lane alignment: see condition (b) ix)

2.0 Careful treatment of access for minimum impacts, to meet community concerns.

2.1 Primarily underground parking and garbage collection from east-west lane alignment.

SUPPORT, Subject to the following condition:

… Relocate underground parking entry: see Condition (b) (i), (ii)

2.2 For site access, either:

… a through lane, not necessarily dedicated and perhaps jogged (up to 6 m offset), with underground parking entry near Sasamat; or

… no lane, but split access, balancing vehicle numbers accessing the site and underground parking from both ends and permitting a central garden space.

NON-SUPPORT

… Provide principal access to parking from Sasamat Street, on the east-west lane alignment: see Conditions (b)( ii) and © (i)

2.3 No north-south lane connecting to 8th or 9th Avenues, especially to limit impact on bike route.

NON-SUPPORT

… see conditions (b) (i) and © (i).

3.0 Provision of a variety of ground-oriented multiple-family units, to meet GVRD housing objectives.

3.1 Approximately 50 units at a total net density in the order of 0.8 - 1.0 FSR.

SUPPORT

3.2 About half the units oriented toward the adjacent street, similar to surrounding houses, and the balance of units could be oriented toward an internal mews or open space, behind street-fronting buildings, with access walkways to the street.

SUPPORT

3.3 Mix of one-family with suite, two-family, three-family and internal to the site, infill-type or mews houses or row-houses.

SUPPORT, Subject to the following conditions:

… Four-unit buildings to be reduced to a maximum of three-family buildings: see Condition (b) (vii)

… Interior four-unit building to be reconfigured: (b) (ix)

3.4 Some units single storey without stairs, to appeal to seniors.

SUPPORT, with access modifications: see Condition (b) (xiv)

4.0 Provision of a variety of unit types, to contribute to City goal of relative affordability.

SUPPORT

4.1 Variety of unit sizes, perhaps ranging from 850 to 2400 sq. ft.

SUPPORT

4.2 Units may be strata titled, rental or, preferably, a combination.

SUPPORT

NOTE FROM CLERK: Electronic copies of Appendix F (drawings) are not available - full copies of the report are on file in the Office of the City Clerk.)

APPENDIX G

Figure 3: Through Lane with JogFigure 1: Split AccessFigure 2: Through Lane with Green Median

APPENDIX H

APPENDIX I

APPLICANT'S COMMENTS

This project is an unrepeatable opportunity to "do it right". It offers what has been called
an "advanced RS-l" housing model literally steps from transportation and shopping. We
have worked with the community for 3 years to make it fit in and to meet the design
parameters set by the City last June. We believe that it has succeeded in every respect

The project is not however, split by the E-W lane condition called up in the design
parameters. This is something sought by and can only make sense to those who have
opposed the project in principle, for they know that it will effectively defeat it.

The undergrounding of cars, the central gardens (the project's lungs), the public park
and the overall emphasis on a pedestrian environment, on and off-site, make the whole
difference between something truly attractive - and mediocrity - the difference between
viability and failure.

Access on West 8th Avenue as proposed is the key to the success of this project. Without it there can be no underground parking, no central garden area, no public park and no
appeal in the market. The only viable choice remaining would be subdivision and sale of single family lots to `spec' house-builders. This may be precisely what is wanted by those opposed to new housing in Point Grey but we suggest to you that it would represent a major loss for the City - in so many, many ways.

Our suspicion that the access issue has been enormously over inflated by a core group of
opponents was corroborated by the recent Campbell, Goodell, Traynor ("CGT") Public
Opinion Survey. This random sample survey is arguably the only statistically dependable
opinion poll conducted on the project and it found a solid majority support for this
rezoning - 50% (2,850 households) in support, to 32% (1,815 households) opposed. It
also found that 77% of those who supported this project - those who really cared -
preferred the 8th Avenue access over a central lane. Further, only 2% of those opposing
the project actually cited the 8th Avenue access as a reason for opposition.

Access is the only significant problem we have with the staff report but it is a
fundamental one. Any possible injurious effect an 8th Avenue access may have is minor
when measured against the benefits achieved here -

… new housing choices in a discrete but distinctive development that fulfils all the
aspirations of City Plan;
… priority to the pedestrian and relative obscurity to the car (parks instead of parking);
… a public pocket park and vista viewpoint, plus a community pavilion;
… all in an "advanced RS-l" housing form that is as close as one could get to single
family housing, without actually being single family housing;
… meets all the non lane-related Parameters set by the Planning staff in June;
and all without the loss of a single house or tree.

We would like to put this into perspective -

1. 8th Avenue is the logical and most practical point of service and it has the
expert support of both N D Lea & Associates and two well respected
cycling community representatives.

2. At 11.0 m curb to curb and 300' from any other intersection, mid-block 8th
Avenue is 20% wider and the access location is clearer and safer overall,
than the alternatives.

3. The alternatives (see Footnote 1) not only bring no benefits and destroy
essential features of the project but they also interfere with residences to
the east and the four times higher pedestrian activity on Sasamat.

4. In the final analysis the traffic impact is modest,
i) it will differ little from an RS-l alternative, with peak movements
of no more than one car every 2 to 3 minutes and significantly less
at other times,
ii) expert commentary on its impact on the bicycle route has been
given by John Whistler, President of B.E.S.T. and former Chair of
the City Bicycle Advisory Committee. He noted that the project is
actually beneficial to increased bicycle and transit use and that 8th
Avenue access issues are minor and can be easily managed by
traffic calming and the safety measures taken,
iii) the biggest hazard to cyclists here is the "10th Ave by-pass" express
traffic. There are also many more serious bicycle hazards on the
next block - Trimble Park and kids playground, Queen Mary's
School and West Pt. Grey Academy and the several private
driveways are all more hazardous than anything on this property.

S. In addition, several safety measures have been incorporated -
… curb bulges to reduce curbside car door hazards and also prevent
parked cars screening the exit,
… generous sight lines and good low level downlighting at the exit,
… pavement `rumble strips' to cue exiting drivers etc.,

6. car headlight impact is less likely here than at Sasamat since the approach
to the 8th Avenue exit is actually downhill vs. uphill at Sasamat

7. adjacency issues are also low, particularly given the modest traffic
generation and can be well managed by landscaping.

Access is the only real issue in contention here; all other issues are capable of resolution (see Footnote 2). We suggest that 8th Avenue is not only the only effective choice for sustaining this project but it is in so many ways, the least intrusive and harmful choice.
We ask Council for support.

Footnotes:
1. ALTERNATIVE ACCESS - by either conventional lane or via Sasamat
i) complicate access to underground parking, garbage collection etc.,
ii) irrevocably compromise the internal pedestrian environment,
iii) impact pedestrian activity on Sasamat (4 times the volume of 8th Avenue),
iv) add traffic to the lane serving existing housing to the east,
v) compromise pedestrian activity on Trimble,
vi) add traffic to a busy regional arterial road and pedestrian intersection at
10th Avenue, adjacent to the B-Line bus stopping zone,
vii) eliminate the public park, viewpoint and community pavilion,
viii) destroy the central gardens, project integrity and viability - needlessly.

2. Acceptability of - CONDITIONS OF APPROVAL - APPENDIX B
(b) i) NOT ACCEPTED. The project is dependent upon access on 8th Avenue and the applicant seeks Council's approval of this alternative;
ii) - see i) above -
iii) ACCEPTED
iv) NOT ACCEPTED. Please note that the applicant has ACCEPTED the City
Design Parameter of June 1998, specifying 30' height. The recent revision
to a 25' height interrupts the street frontage to introduce an artificial lane
simulation effect visible only from the air, since the houses will be
screened from street view by the public pocket park on Sasamat. These
roofs will also have a generous 25' set back from the street.
v) ACCEPTED
vi) ACCEPTED
vii) NOT ACCEPTED. 4-plex units were not prohibited under the June `98
Parameters and are desirable to meet the needs for seniors and smaller
units (Parameters 3.4 and 4.1). This includes rationalising elevator access
and providing social proximity essential to mutual support (the ability to
look out for each other). However, we WILL AGREE to some modification
in massing and reduction in size to within 5,000 sq. ft. net usable space.
viii) ACCEPTED
ix) ACCEPTED
x) ACCEPTED
xi) ACCEPTED
xii) ACCEPTED
xiii) ACCEPTED
xiv) ACCEPTED

(c) i) 1. ACCEPTED
2. ACCEPT dedication of 8th Avenue driveway but have strong
preference for Easement, consistent with option offered for central
lane. ACCEPT utility and waste management arrangements.
3-9 ACCEPTED
ii) ACCEPTED

APPENDIX J

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

SITE STATISTICS

DEVELOPMENT STATISTICS

(c) 1998 City of Vancouver