POLICY REPORT
DEVELOPMENT AND BUILDING

Date: July 9, 1999

Author/Local: LChallis/7135

RTS No. 00880
CC File No. 5307

Council: July 27, 1999

TO: Vancouver City Council

FROM: Director of Current Planning

SUBJECT: CD-1 Rezoning - 2450 West 2nd Avenue

RECOMMENDATION

THAT the application by Stuart Howard Architects, to rezone 2450 West 2nd Avenue (Lots 5 and 6, Block 221, DL 526, Plan 1058) from RM-4 Multiple Dwelling District to CD-1 Comprehensive Development District, to permit a two storey addition to an existing care facility, be referred to a Public Hearing, together with:

(i) plans received June 15, 1999;

(ii) draft CD-1 By-law provisions, generally as contained 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 by-law for consideration at Public Hearing.

GENERAL MANAGER'S COMMENTS

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

COUNCIL POLICY

Relevant Council policy for this site includes:

· Special Needs Residential Facility Guidelines (adopted in February 1992) which are intended to ensure that a special needs residential facility is compatible with the surrounding neighbourhood; and

· Interim City-wide Community Amenity Contribution (CAC) Policy (adopted January 28, 1999) which applies to all private rezoning applications received as of December 8, 1998.

PURPOSE AND SUMMARY

This report assesses an application to rezone the site at 2450 West 2nd Avenue to CD-1 for the expansion of a Special Needs Residential Facility - Community Care - Class B. The application proposes to add two storeys to the existing Braddan Private Hospital, a two-storey, 42-bed seniors care facility.

The proposed addition will not conform to RM-4 zoning in terms of density, height, setbacks and side yard containing angle. The proposed addition increases the density to 1.76 floor space ratio (FSR), of which 1.53 FSR would be above grade, and increases the maximum height to 12.3 m (40 ft.). The proposal would provide an additional 20 care beds at current provincial government standards. Although Ministry of Health funding is not available for the additional beds, the Vancouver/Richmond Health Board would consider funding the beds when funding becomes available.

Staff support the proposal which will provide additional care beds that meet current Provincial standards in a location which is under-served by care facilities and recommend that the application be referred to a Public Hearing, and that it be approved subject to conditions.

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DISCUSSION

Use: The site is presently developed with a 42-bed care facility. The proposed rezoning would allow for an additional 20 beds and upgrading of the existing facility.

There is a recognized need for additional care beds in the west side of the City of Vancouver. Staff in the Continuing Care Division of the Vancouver/Richmond Health Board (V/RHB) support the proposal, noting that there is a need for private as well as publicly-funded extended care beds, and has indicated that when funding becomes available the new beds could be funded. In the meantime, Vancouver has a shortage of private extended care beds that are available to seniors who do not meet the provincial residency requirements for funded beds and the proposed beds could help meet this need.

Density: The RM-4 District Schedule permits a density of 1.45 FSR for additions to an existing building. The existing facility has a density of 1.19 FSR. The proposed redevelopment would increase the density to 1.76 FSR. As the building has a basement, only 1.53 FSR would be above grade. Consequently, the bulk of the proposal would be slightly greater than development in RM-4 which normally has an above grade density of 1.45 FSR.

The increased density is necessary to meet current licensing and building code requirements and to provide an efficient operation. The proposed redevelopment and expansion of the Braddan Private Hospital would meet current building code regulations regarding hallways, stairs and exiting in the existing facility and current B.C. Ministry of Health multi-level care facility guidelines for the addition. The guideline requirements significantly increase the floor area required for residential accommodation, multi-purpose, dining and activity spaces in provincially-licensed multi-level care facilities. More than double the amount of floor area is required per resident. A reduction in density to 1.45 FSR above grade would result in a decrease of four beds and make the addition function inefficiently. Staff consider the increased density acceptable for the proposed use.

Form of Development: The RM-4 District Schedule permits 4-storey development at a maximum height of 10.7 m (35 ft.). Normally, a building's main floor is submerged slightly below grade to achieve a 4th floor within the 10.7 m height limit. The applicant proposes to build above the existing facility to allow the facility to remain operational during construction and to avoid displacing any of the facility's residents. The proposal requires a maximum height of 12.3 m (40 ft.) because of the method of construction and because the main floor of the existing building is above grade.

The neighbours south of the site have expressed serious concerns about the additional height and its impact on views. View analysis indicates that redevelopment of the site to RM-4 height limits would likewise substantially reduce or eliminate views. Staff requested that the

applicant consider constructing a partial fourth floor to address height and view concerns. The applicant did not consider this option feasible because it would not allow the building to meet building code exiting requirements and resulted in a fourth floor that had too few beds to operate efficiently.

Staff acknowledge that views to the north will be reduced but recognize a trade-off between retaining private views, avoiding relocation of the facility's residents and gaining additional care beds. Staff support the additional height which will have only a slightly greater impact on views than the height permitted if the site was redeveloped under RM-4.

The applicant has designed the addition to be built over the existing building with supporting steel structural columns extended on the outside of the building. These columns will intrude into the front yard, thereby reducing the front yard by 0.30 m (1 ft.). The proposal also adds a new exit stair to the west side of the building which encroaches into the side yard by 0.40 m (1.25 ft.). Staff find these yard reductions acceptable as they are intrinsic to the retention and upgrading of the existing structure and do not have significant effects on neighbouring properties.

The development also does not meet the side yard containing angle requirement on the west side of the property. The purpose of the regulation is to ensure adequate light penetration into windows facing the side property lines. However, the intrusion into the containing angle which is required for a new exit stair is relatively minor and has little impact on existing windows in the adjacent building.

The finishing and detailing of the building is intended to give it a more residential character which will allow it to blend into the residential streetscape. Landscape improvements, including trellising over some of the surface parking area, are intended to create improved outdoor space for the residents as well as reducing the visual impacts of the surface parking area.

The Parking By-law also requires a minimum 1.0 m landscaped setback from the side property lines to the parking area. This requirement is relaxable, and it cannot be fully achieved in this case without deleting required parking. However some landscaping should be provided at the lane to soften the impact, and a condition has been added to achieve this purpose.

Design conditions (Appendix B) are proposed to minimize the building height by eliminating the roof access stair and minimizing the height of all parapets. Conditions have been proposed to provide some landscaping along the lane and to provide a more open front yard, to be consistent with the residential character of the neighbourhood.

Parking: The site currently provides 11 surface parking spaces. The application proposes to increase the parking to 16 spaces which meets the City Engineer's recommended requirements for a Special Needs Residential Facility (one space per four beds). Nine spaces would be surface parking located at the rear of the site and seven spaces would be located off-site in the underground parking of a building located at 2490 West 2nd Avenue. Staff have confirmed that 2490 West 2nd Avenue has excess parking available, although the building's strata council has advised staff that it is seeking legal counsel regarding the parking stall agreement which was issued prior to the formation of the strata council. Staff recommend that the seven off-site parking spaces be secured as a condition of rezoning.

Community Amenity Contribution (CAC): On January 28, 1999, Council approved an Interim City-wide CAC Policy which applies to all private rezoning applications received as of December 8, 1998. CACs would provide funds for additional community amenities needed for new residents.

This rezoning application was received on March 4, 1999 and is subject to a CAC which will be charged on the net increase in allowable floor area at a rate of $32.29 per square metre ($3.00 per square foot). The proposed net floor area increase of 339.6 m² would amount to a CAC of $10,965.68.

CONCLUSION

Staff support the use, density and form of development proposed in this application recognizing the constraints of retaining an existing building and not displacing residents. The upgraded and expanded care facility improves the amount and quality of care available in this area of the city. The Director of Current Planning recommends that the application be referred to a Public Hearing and that the application be approved, subject to proposed conditions of approval presented in Appendix B.

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APPENDIX A

DRAFT AMENDMENTS TO CD-1 BY-LAW No. 3869

Uses · Special Needs Residential Facility - Community Care - Class B;

· Accessory Uses customarily ancillary to the above use.

Floor Space Ratio

· Maximum floor space ratio of 1.76 FSR (1.53 FSR above grade; 0.23 FSR below grade), based on the provisions of the RM-4 District Schedule.

Height · A maximum of 12.3 m (40 ft.)

Parking and Loading

· As per the Parking By-law, except a minimum of 1 space for every 4 beds.
· Relaxation provisions as per section 3.2 of the Parking By-law.

APPENDIX B
Page 1 of 2

PROPOSED CONDITIONS OF APPROVAL

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by Stuart Howard Architects and stamped "Received City Planning Department, June 15, 1999", 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) design development to reduce the height of the building by:

A. eliminating the proposed roof access stair tower, and instead providing access by means of a hatch; and

B. reducing all parapet heights at the roof level to the minimum necessary for good building practice;

(ii) design development to soften the impact at the lane by providing landscaping adjacent to the surface parking areas;

(iii) design development to the landscape design for the front yard, to increase the sense of openness to the street, and to achieve a softer, more residential character;

[Note to applicant: the need for some hard surface area in the front yard is acknowledged; however, some redesign to make the area both more visible and more residential in character is encouraged.]

(iv) provision of a plan indicating how the owner proposes to deal with construction disruptions in the daily lives of the residents;

(v) design development to take into consideration the principles of Crime Prevention Through Environmental Design (CPTED), having particular regard to reducing opportunities for graffiti on the lane. Graffiti is prevalent in Vancouver and its removal is an expense to owners. Opportunities for graffiti can be mitigated by reducing areas of exposed wall, by covering these walls with vines, hedges or lattice or steel mesh or by using a protective coating material. Contact Helen Chomolok, Graffiti Coordinator at 873-7927 for further information.

APPENDIX B
Page 2 of 2

(vi) provision of a detailed landscape plan clearly illustrating all proposed plant material;

(vii) provision of dimension tree protection barriers (illustrated on the Landscape Plan) around all existing trees 20 cm caliper or greater to be retained on the development site, all existing neighbouring trees 20 cm caliper or greater located within 2.0 m of the property line and around all existing street trees located adjacent to the development site as per City of Vancouver Guidelines; and

(viii) design development to provide a layered planting strip within the inside boulevard (between the sidewalk and property line) along West 2nd Avenue, as per joint Planning and Engineering policies for "Special City Boulevard Treatment". The planting strip shall be comprised of layered low planting [mature height and width not to exceed 0.9 m x 0.9 m (3 ft. x 3 ft.)] with a minimum 0.3 m (1 ft.) grass or ground cover strip adjacent to the sidewalk.

(c) THAT, prior to enactment of the CD-1 By-law, and at no cost to the City, the registered owner shall:

(i) make arrangements to the satisfaction of the Director of Legal Services and the Approving Officer to consolidate the site;

(ii) make arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for an encroaching wall on West 2nd Avenue;

(iii) make suitable arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for off-site parking;

(iv) make arrangements for all electrical and telephone services to be undergrounded within and adjacent the site from the closest existing suitable point; and

(v) pay to the City a Community Amenity Contribution of $10,965.68.

APPENDIX C

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: The site includes two legal parcels with a total area of 1 095 m² (11,791 sq. ft.) and is located mid-block on the south side of West 2nd Avenue between Balsam Street and Larch Street. The site has a frontage of approximately 30.5 m (100 ft.) and slopes slightly southward from West 2nd Avenue by about 0.5 m (1.25 ft.). The site is presently occupied by a two-storey care facility. Surface parking for 11 cars is provided at the rear off the lane.

Surrounding lands are zoned RM-4 (Multiple Dwelling District) and are generally developed with 3½- to 4-storey apartment buildings. The tennis courts of an adjacent 11-storey apartment building are located immediately south of the site. West of Larch Street is zoned RT-8 (Two-Family Dwelling District) and developed with duplexes and multiple conversions. To the southeast, beginning at Balsam Street and West 4th Avenue is C-2B (Commercial District) zoning.

Background: Braddan Private Hospital was built as a convalescent/rehabilitation hospital in 1962 and became a care facility in 1979. The building underwent minor renovations in the late 1980s and early 1990s to conform to provincial standards at that time.

Proposed Development: The application proposes a 2-storey addition above the existing 2-storey plus basement facility to provide an additional 20 beds (18 residential rooms) and associated lounge/eating areas, bathing areas and nursing stations.

Surface parking for 9 vehicles would be provided off the lane at the rear of the site and underground parking for 7 vehicles would be provided under the building at 2490 West 2nd Avenue with access from the lane.

Environmental Implications: The proposed rezoning neither contributes to nor detracts from the objective of reducing atmospheric pollution.

Social Implications: The proposal increases opportunities for aging-in-place by providing additional care beds which are needed in this part of the city, and potentially allows more seniors to be housed in closer proximity to their family members.

There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

APPENDIX D
Page 1 of 3

COMMENTS FROM REVIEWING AGENCIES,
THE PUBLIC AND THE APPLICANT

Public Input: A rezoning information sign was posted on the site on March 24, 1999. Notification letters were sent to 1,053 nearby property owners on April 1, 1999. The applicant held public information meetings on April 14, 1999 which was attended by 15 local residents and on June 1, 1999 which was attended by 12 the residents of Braddan Private Hospital and their family members.

Eight local residents telephoned and nine local residents wrote staff to comment on the application. They were concerned about

· the increased height and resulting view loss;
· the building's non-conformance to RM-4 zoning (density, setbacks);
· lane congestion and noise;
· parking impacts;
· status of off-site parking;
· inappropriate use of the site; and
· an anticipated decrease in property values.

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

Vancouver/Richmond Health Board Comments:

" Vancouver/Richmond Health Board staff support this request to add private pay residential care beds at Braddan Private Hospital. There are private pay beds at the intermediate care level but no private pay extended care beds in Vancouver at this time. Many newcomers to Vancouver are not eligible for subsidized residential care as they do not meet the residency requirements. It is this group who would benefit from the option of private pay residential care.

Some or all of the new beds at Braddan Private Hospital could be considered for V/RHB funding in the future. "

APPENDIX D
Page 2 of 3

Special Advisory Committee on Seniors: On April 9, 1999, the Committee reviewed the application, supported the proposal and offered the following comments:

" · The Committee is pleased to see that the owner is interested in upgrading the existing facility.

· The Committee recognizes the need for Intermediate Care beds on the west side of Vancouver, and is encouraged by the fact that the owner is willing to address that need in the community.

· The Committee recognizes that these are private-pay beds and will be out of reach for many seniors. However, the expanded facility will meet the needs of some seniors and that, in itself, is a significant contribution. As there is a lack of funded beds, particularly on the west side of Vancouver, private pay beds are next best option.

· The Committee believes that this proposal is a good use of the land.

· The Committee has some concerns about the welfare of residents during the construction period and would like to see a plan on how the owner proposes to deal with construction disruptions in the daily lives of residents.

· The Committee suggests that there be provision for extended care beds in the new addition when construction is completed.

· The Committee strongly suggests that there be adequate security for the rooftop garden so that all residents of the facility can make use of it. [Note: The proposal no longer includes a rooftop garden.] "

Urban Design Panel Comments: On April 21, 1999, the Urban Design Panel reviewed this proposal and offered the following comments:

" The Panel unanimously supported this application for rezoning. The use is a very appropriate response to a growing need in this part of the city. The use is also appropriate in this RM-4 neighbourhood, and the building probably addresses the context better than the existing building.

The Panel supported the proposed density and height, and thought the requested increases represented very minor variations from the RM-4 regulations. The view analysis indicates minimal impact.

APPENDIX D
Page 3 of 3

In the design of the roof garden attention should be given to ensuring its maximum usability for the residents. A higher, transparent railing system was recommended to provide an efficient wind screen, perhaps with landscaped beds in front of the railing for the security of the users. Special attention should be paid to improving the appearance of the elevator shaft. It appears somewhat bulky and intrusive on the east elevation.

The Panel supported the footprint of the building in terms of the containing daylight angles. The gardens and setbacks were supported as proposed and it was felt the new landscape will likely be an amenity to the street. The addition of weather protection over the stair was recommended.

In general, the Panel thought the detailed design of the building will be very important to its ultimate success. The `exo-skeleton' solution and the addition of brick on the existing structure will add a lot of richness to the building. There was one suggestion to consider extending the framework to the top of the building, to reduce the perception of the addition being in two parts.

The Panel looks forward to seeing the project at the DP stage. "

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

" In general, Stuart Howard Architects as the applicant agrees with all the recommendations.

The applicant has already substantially reduced the height of the building by the deletion of the roof deck with its accompanying handrails, elevator shafts and planters.

The applicant's request for relaxations are due to building code requirements for this use, existing building and existing resident needs, and functionality of the building for this use.

While this is not a true multiple residential building, its massing impact will be only slightly more than the typical four storey apartment building traditionally built almost `outright' in this neighbourhood. "

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address	2450 West 2nd Avenue
Legal Description	Lots 5 & 6, Block 221, DL 526, Plan 1058
Applicant/Architect	Stuart Howard Architects
Property Owner/Developer	Braddan Private Hospital

SITE STATISTICS

	Gross	Dedications	Net
SITE AREA	1 095 m² (11,791 sq. ft.)		1 095 m² (11,791 sq. ft.)

DEVELOPMENT STATISTICS

	DEVELOPMENT PERMITTED UNDER EXISTING ZONING	PROPOSED DEVELOPMENT
ZONING	RM-4	CD-1
USES	One, Two and Multiple Family Dwellings, Special Needs Residential Facility	Special Needs Residential Facility -Community Care - Class B
MAX. FLOOR SPACE RATIO	1.45 FSR	1.76 FSR (1.53 above grade; 0.23 below grade)
MAXIMUM HEIGHT	10.7 m (35 ft.)	12.3 m (40 ft.)
PARKING SPACES	1 space/37 m² of floor area used for sleeping units, exclusive of bathrooms	1 space/4 beds (16 spaces)

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(c) 1998 City of Vancouver