POLICY REPORT
DEVELOPMENT AND BUILDING

	Date: August 30, 1999
	Author/Local: LChallis/7135
	LU&D No. 96035
	RTS No. 00959
	CC File No. 5304-1
	Council: September 14, 1999

TO: Vancouver City Council

FROM: Director of Current Planning

SUBJECT: CD-1 Text Amendment - 2720 East 48th Avenue [Fair Haven Home]

RECOMMENDATION

THAT the application by Dalla-Lana Griffin Dowling Knapp Architects, to amend CD-1 By-law No. 3869 for 2720 East 48th Avenue (Lot 3, Block 11, N.E.¼ of DL 336, Plan 10606) to replace seniors care and housing buildings with a new multi-level care facility, be referred to a Public Hearing, together with:

(i) plans received May 26, 1999;

(ii) draft CD-1 By-law amendments, 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:

· the 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.

PURPOSE AND SUMMARY

This report assesses an application to amend the CD-1 zoning for 2720 East 48th Avenue to replace the existing Fair Haven Home, a 67-bed seniors care facility, and 40 units of seniors housing with a new 100-bed multi-level care facility. An existing building with 50 units of rental housing for low-income seniors would remain on the site.

A floor space ratio (FSR) of 1.03 and a maximum 2-storey height are proposed. The application has not raised any neighbourhood concerns and Ministry of Health funding is available for the new facility.

The new building will provide additional care beds that meet current Provincial standards in a location which will not unduly impact the livability of adjacent buildings.

Staff recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions.

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DISCUSSION

Use: The site is presently developed with 90 units of seniors, non-market housing in two buildings and 67 intermediate care beds in a third building, the Fair Haven Home.

The proposed redevelopment of the Fair Haven Home to provide a new 100-bed facility is needed because the existing facility has become obsolete and does not meet current City Building Code requirements or B.C. Ministry of Health Multi-level Care Design Guidelines. The current Guidelines significantly increase the floor area required for residential accommodation, multi-purpose space and dining and activity space in provincially-licensed multi-level care facilities. More than double the amount of floor area is required per resident. The number of beds also need to be increased from 67 to 100 to achieve an economical operating size.

There is a recognized need for additional care beds in the City of Vancouver. Staff of the Vancouver/Richmond Health Board support the proposal and indicate that the funding is available for the beds proposed in the new facility.

The expansion of the care facility would result in the loss of 40 rental units for low-income seniors. The applicant has provided a relocation plan for displaced residents and a schematic plan for long-term redevelopment of the remaining portion of the site to replace the lost units. The current rezoning does not address the possible future redevelopment of the remaining rental housing building. It is recommended that a covenant be placed on title to secure the long-term rental of all buildings on the site. A future rezoning application and public hearing would be required to pursue further redevelopment of the site.

The application also proposes space for a future adult day care in the lower basement level of the facility. Staff support in principal this use which could offer additional community services.

Density: The site is presently developed at 0.66 FSR, although the CD-1 By-law permits a density of up to 0.85 FSR. The proposed redevelopment would be at a density of 1.03 FSR. The increased density is considered acceptable because it will not result in an increase in the total number of residents on the site; it can be accommodated in a building form that would be compatible with the site and its surroundings; and its impact on the neighbourhood is expected to be minimal.

Form of Development: The proposed 2-storey plus basement building has been designed at a scale which relates to the remaining seniors' rental building while also providing a layout which offers operational flexibility. The 2-storey arrangement allows a lower basement level to work with the natural slope and maintains direct ground level access for most of the facility.

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The facility is organized around pods which help break up the scale of the development. The new building's 2-storey height and pitched roofs will make it generally compatible with the surrounding single-family neighbourhood. The programming requirements of an institutional building preclude the opportunity to break up the building massing to reflect the single-family character of spacing between buildings, or the rhythm of the surrounding streetscape. Further details on the form of development are provided in Appendix C.

Traffic and Parking: Staff do not expect that the addition of 33 care beds will result in a noticeable increase in the traffic travelling to this facility, given they will be replacing 40 rental units.

The site currently provides 15 surface parking spaces which is less than the 32 spaces that normally would be required by the Parking By-law for the existing development. The application proposes to increase the parking to 33 spaces of which 26 will be located underground. The proposed parking would meet the City Engineer's recommended requirements for a special needs residential facility (1 space per 4 beds) and for low-income seniors housing (1 space per 6 units). The decrease in surface parking ensures that a minimal amount of the site's open space is lost to surface parking.

CONCLUSION

Staff support the use, density and form of development proposed in this application. The upgraded and expanded care facility improves the quality of care available in this area of the city and in a form that will be compatible with adjacent buildings. Staff recommend that the application be referred to a Public Hearing with a recommendation by the Director of Current Planning to approve it, subject to proposed conditions of approval outlined in Appendix B.

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APPENDIX A

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

Uses · decrease the maximum number of permitted dwelling units from 90 to 50;

· decrease the number of care beds from 103 to 100 and specify the use term "Special Needs Residential Facility - Community Care - Class B"; and

· add the new use "Social Service Centre, limited to an adult day care providing drop-in or activity space";

[amend Section 2 (Uses)]

Floor Space Ratio

· increase the maximum FSR to 1.03 with FSR exclusions for balconies, patios and roof decks, off-street parking, loading and bicycle storage, amenity areas, undeveloped floors as specified in accordance with the RM-4 and RM-4N Districts Schedule.

[amend Section 3 (Floor Space Ratio)]

Off-Street Parking and Loading

· As per Parking By-law except,

- replace the minimum number of 27 off-street parking spaces with requirements for a minimum of 25 spaces for the care facility (of which 2 must be disabled spaces) and a minimum of 8 spaces for the rental dwelling units;
- add provision for 1 full size loading space;
- add a provision for 1 class A and 1 class B passenger spaces; and
- add relaxation provisions as per section 3.2 of Parking By-law.

[amend Section 5 (Off-Street Parking)]

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 Dalla-Lana Griffin Dowling Knapp Architects and stamped "Received City Planning Department, May 26, 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 soften the grade transition between the main floor down to West 49th Avenue and the property to the west;

Note to Applicant: Details of planters and landscaping are required to clarify treatment.

(ii) design development to take into consideration the principles of Crime Prevention Through Environmental Design (CPTED), having particular regard to reducing opportunities for:

· theft and vandalism by ensuring the site is not used for cutting through and that the parking exit stairs are not visible to non-residents.

(iii) provision of dimensioned 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 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;

(iv) provision of a detailed landscape plan clearly illustrating:

A. both common and botanical name, size and quantity of all proposed plant material, and

B. all existing trees 20 cm caliper or greater (with clarification as to which trees are to be removed or retained).

APPENDIX B
Page 2 of 2

(v) provision of layered foundation planting along the 48th Avenue elevation of the building;

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

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

A. widening of the existing utility right-of-way that passes through the site from ten feet to fifteen feet wide (no permanent portion of the proposed development should be within this widened right-of-way);

B. provision of a sidewalk on the west side of Vivian Street for the full length of the site; and

C. provision of street trees on Vivian Street adjacent the site and on 48th and 49th Avenues where space permits;

(ii) provide clarification of charges shown on title (a charge summary should be provided);

(iii) make suitable arrangements for all new electrical and telephone services to be undergrounded within and adjacent the site from the closest existing suitable service point including a review of overhead plant upgrading that may be necessary to serve this project in order to determine its impact on the surrounding neighbourhood (this may result in the telephone and/or electrical service points being changed in order to reduce the impact on the neighbourhood); and

(iv) enter into an agreement, to the satisfaction of the Manager, Housing Centre and Director of Legal Services, providing that the owner of the development shall not strata-title any of the buildings developed on the property.

APPENDIX C
Page 1 of 2

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: The site is located on the northwest corner of 49th Avenue and Vivian Street and runs the full depth of the block to 48th Avenue. It has frontages of 101.5 m (333 ft. ) on 48th and 49th Avenues, 103.9 m (341 ft.) on Vivian Street, and an area of 10 526 m² (113,305 sq. ft.). The site is developed with three 2-storey plus basement buildings. The two buildings on the south portion of the site contain 90 units of seniors' housing, and the northerly building on 48th Avenue contains 67 intermediate care beds with related administrative and service uses. There is a large central courtyard which, while landscaped around the buildings, is mainly undeveloped grass area in the centre. Off-street parking for fifteen cars is provided with eight spaces on a surface parking area on the south portion of the site with access from 49th Avenue, and seven spaces on a surface parking area on the west side of the site with access from 48th Avenue.

Lands to the northeast and south of the site are zoned RS-1 and are generally developed with 1-storey plus basement one-family dwellings built mainly in the 1950s. Immediately to the west is a large site zoned CD-1 and developed with 2-storey multiple dwellings with a floor space ratio of 0.75. Further west, is a large site zoned C-2 which is developed with a 1-storey `L'-shaped shopping centre containing a grocery store, other commercial businesses and a gasoline station at the northeast corner of 49th Avenue and Elliott Street.

Background: In 1960, Council approved the comprehensive development of the subject site and the adjacent site to the west. The CD-1 By-law permitted the development of both sites in accordance with the RM-2 Multiple Dwelling District Schedule to maximum densities of 0.85 FSR. The subject site was developed with seniors housing and a care facility, having an overall FSR of 0.66.

The CD-1 By-law was amended in 1989 to provide provisions which applied solely to the subject site, allowing a 36-bed addition to the existing care facility (a total of 103 beds). This development did not proceed due to lack of funding. Since then, the existing facility has become increasingly more obsolete and is in need of complete redevelopment to meet its clients' needs.

In 1996, the current rezoning application was submitted to replace the existing care facility and one of the rental apartment buildings with a 90-bed multi-level care facility. The application was delayed due to a Provincial funding freeze. When the freeze was lifted the applicant wished to proceed. In March 1999, a revised proposal was submitted which addressed staff concerns about the previous proposal. Except for an increase to 100 beds, in most other aspects, the revised proposal is very similar to the 1996 proposal.

APPENDIX C

Page 2 of 2

Proposed Development: The application proposes to replace the existing care facility and the seniors' housing building (containing 40 dwelling units) on the west side of the site with a 100-bed multi-level care facility. The City's use term category for this is "Special Needs Residential Facility - Community Care - Class B". The proposed 2-storey plus basement facility would be arranged in three wings to provide five distinct living units, each housing about 20 residents. Most of the facility's storage and services plus a chapel/multi-purpose hall and space for a future adult day care would be located in the basement, along with 26 underground parking spaces.

Four vehicle access points are proposed for this site. The main entrance to the facility would be from 48th Avenue. Access to the underground parking and four surface parking spaces would be from 49th Avenue. Services and major deliveries would occur along the western edge of the site off a service driveway with access from 48th Avenue. An additional three surface parking spaces would be provided towards the northeast corner of the site with access from Vivian Street. The multiple access points are supported because of the size of the site and because the principal access point is located on 49th Avenue.

Form of Development: The proposed 2-storey building has been designed to relate directly to the size, scale and character of the existing senior's housing. The introduction of low pitched hip roofs and the wing arrangement also help reduce the scale of the building. The wings also help create some defined open space. The two-storey arrangement on the sloping site allows both the main floor and lower basement level to have direct ground level access.

Special Needs Residential Facility Guidelines: The development is consistent with the Special Needs Residential Facility [SNRF] Guidelines which seek to ensure that SNRFs are compatible with the surrounding neighbourhood. The Guidelines also recommend that in a predominantly residential area there should be at least 200 m (656 ft.) between SNRFs, although multi-level care facility is normally exempt from this criteria.

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

Social Implications: The proposal upgrades the existing care beds and provides additional care beds in a location that is well served by transit, shopping and amenities (Killarney Community Centre). Existing tenants in the rental apartments will be relocated to alternative housing.

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

APPENDIX D
Page 1 of 2

COMMENTS FROM REVIEWING AGENCIES,
THE PUBLIC AND THE APPLICANT

Public Input: Notification letters were sent to 347 nearby property owners for the original rezoning proposal on October 11, 1996 and for the revised proposal on June 17, 1999. A rezoning information sign was posted on the site on October 9, 1996 and amended on June 18, 1999. Following the second notification, two local residents contacted staff to request additional details about the proposal. No neighbourhood concerns were raised.

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.

Special Advisory Committee on Seniors: On May 7, 1999, the Committee reviewed the application and supported the proposal provided that alternative affordable rental housing would be found for the many seniors who now reside in the surrounding area.

Urban Design Panel [the Panel] Comments: On October 9, 1996, the Panel reviewed the original proposal and offered the following comments [Note: the revised proposal was not presented to the Panel as it is very similar to original proposal]:

"The Panel fully supported the proposed use, and the majority of the Panel members also supported the density and form of development, with some reservations about some aspects of the overall plan.

The Panel noted that while the model gives the impression of a nicely proportioned development, the elevations are not showing the residential scale being sought. There were concerns expressed about the potential for the project to develop a character that is unnecessarily institutional. In this regard, one Panel member felt that the use of metal roofing is not appropriate. The Panel also strongly recommended that the floor-to-floor heights be reconsidered in favour of more traditional residential floor-to-floor dimensions.

With respect to landscaping, there was a strong recommendation from one Panel member to seriously consider a master landscape plan at this stage. Given the uncertainties of future funding for projects of this nature, it will enable the whole site to have an appearance of being complete throughout the various phases of project completion. One Panel member had serious concerns about the site plan and questioned the density relative to the development of the site."

APPENDIX D
Page 2 of 2

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

"We have reviewed the Rezoning Application Report draft and find it acceptable without comment.

The proposed conditions of Approval for the rezoning application are acceptable and achievable."

APPENDIX E

ELECTRONIC COPY NOT AVAILABLE - ON FILE IN THE OFFICE OF THE CITY CLERK

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address	2720 East 48th Avenue
Legal Description	Lot 3, Block 11, NE ¼ of DL 336, Plan 10606
Applicant/Architect	Dalla-Lana Griffin Dowling Knapp Architects
Property Owner/Developer	Fair Haven United Church Homes for Senior Citizens

SITE STATISTICS

	Gross	Dedications	Net
SITE AREA	10 526 m² (113,305 sq. ft.)	-	10 526 m² (113,305 sq. ft.)

DEVELOPMENT STATISTICS

	DEVELOPMENT PERMITTED UNDER EXISTING ZONING	PROPOSED DEVELOPMENT
ZONING	CD-1	CD-1 (Amended)
USES	Intermediate care beds in a community facility; dwelling units for seniors	Special Needs Residential Facility - [SNRF] Community Care - Class B; Dwelling Units for Seniors; Social Service Centre [Adult Day Care]
MAX. FLOOR SPACE RATIO	0.85 FSR	1.03 FSR
PARKING SPACES	27 Spaces	1 Space per 4 beds for SNRF (25 Spaces); 1 Space for 6 Units for Seniors Dwelling Units (8 Spaces)

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(c) 1998 City of Vancouver