Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO: Vancouver City Council
FROM: Director of City Plans, in Consultation with the Director of Current Planning and the Manager, Rapid Transit Project Office
SUBJECT: CD-1 Text Amendment and Rezoning - North Side 1700 East Broadway
 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On June 23, 1987, Council adopted the Broadway Station Area Plan.

On April 24, 1990, Council enacted By-law 6663, which regulates the north side of 1700 East Broadway.

On July 21, 1998, Council approved the Kensington/Cedar Cottage Community Vision, which anticipates this site to be an important mixed use component of a "pedestrian-friendly transit hub."

On February 23, 1999, Council endorsed the Phase 1 alignment of the SkyTrain extension into Vancouver, and a new station location on the north slope of the Grandview Cut, just east of Commercial Drive.

SUMMARY

The vicinity of Broadway and Commercial will become an even more important transit hub
when the SkyTrain Extension is constructed to this location by 2002, with accompanying changes to bus routes, waiting areas and other connections. This report recommends an amended CD-1 by-law of the site at the northeast corner of Broadway and Commercial as well as design guidelines to set a framework for transit-oriented development. The objective is to take advantage of the enhanced level of transit service provided by these changes to contribute to enhanced station area safety and vitality, as well as overall neighbourhood centre revitalization and image, in keeping with the approved Community Vision for this part of Cedar Cottage.

Specifically, the proposed amendment to the existing CD-1 zoning provide for the new SkyTrain station, recognizes the reduced density of associated commercial development that the site can feasibly accommodate, deletes residential use, and recommends reduced parking standards. No form of development is put forward at this time.

PURPOSE

This report recommends that Council refer to public hearing amendments to the CD-1 By-law 6663, together with the rezoning of an adjoining C-2 parcel, to permit Public Authority Use (SkyTrain station), and a revised mix of transit related uses and a reduced density from what the current zoning permits. The report also recommends design guidelines to guide the form of development for the station and associated development.

BACKGROUND

The current CD-1 By-law permits a mix of commercial, residential, service, cultural and recreational uses at an overall density of 3.0 FSR. In January 1991, Council approved a form of development that included a low-rise podium supporting two towers on either side of the existing SkyTrain guideway, for office and residential use, as illustrated in Appendix C.

Site development has not proceeded in the decade since the zoning was enacted, due to financial, construction and market constraints. The development permit was extended a number of times since originally issued, and expired in 1998.

The subject site, including land parcels and air parcels as well as the easterly C-2 parcel, was acquired in 1999 by the Provincial Rapid Transit Project2000 to build the new SkyTrain station, and pursue transit-related development.

DISCUSSION

Site Location and Context

The subject site is on the northeast corner of Broadway and Commercial Drive, and includes both land and an air parcel over the Grandview Cut to Grandview Highway North (see map). Commercial Drive abuts the site to the west. The Burlington Northern Santa Fe Railway owns the property in the bottom of the Cut. The City owns the embankments and leases them to the railway. The existing SkyTrain guideway passes over the site with Broadway Station located to the south, linked to the site by a pedestrian overpass.

Most of the site is zoned CD-1, the small parcel to the east is zoned C-2. The other three corners of the Broadway/Commercial intersection are zoned C3-A, as is the east side of Commercial Drive south of Broadway. The west side of Commercial Drive is generally zoned C2-C. A variety of residential zones exist in the vicinity.

Changing Role in the Regional Transit System

The site and its immediate vicinity is undergoing change in the regional transit system. It will become an even more significant node than at present, when the planned Commercial SkyTrain will link with existing Broadway Station. In addition, the Broadway 99B line will have its eastern terminus here, complete with lay-by space on Grandview Highway North,

after SkyTrain Phase 1 is completed, as will the planned U-Trek express service to UBC. The #9 trolley service will continue to short turn between here and Granville Street. The #20 Commercial route also has a stop at this location. Grandview Highway North will serve an expanded role as a lay-by area for buses. All of this will place increased demands on adjacent streets and sidewalks for transit patron movements, bus stops and layover areas, as well as general pedestrian activity.
Rezoning Required to Permit Intended Use

The intended use of the site is for a SkyTrain Station, ticket concourse and ancillary uses in a substation. Supportive commercial uses in a low scale format adjacent to the concourse is intended to provide services and enliven the station environment.

As a provincially-created corporation, RTP2000 is not required to obtain a development permit for the new station. However, they have agreed to obtain building and related permits. Since the current zoning does not allow for a rapid transit station, the site-specific

zoning must be amended, and the easterly C-2 parcel added to the new zoning, to accommodate the new station as a Public Authority Use. This will enable the City to issue permits and provide inspection services. Because it is in the City's interest to reflect the actual use of the site in the zoning and to issue permit(s), the rezoning is City-initiated.

It should be noted that even if it were viable, the existing form of development can no longer be accommodated on this site, since the station occupies much of the same space, leaving insufficient room to accommodate the approved built form and provide required parking and loading.

Given these new constraints, RTP2000 presently envisions a density under .30 FSR for associated commercial development, as calculated over the entire site. Staff consider this level of development to be an interim situation, and foresee the possibility of a later, more intensive, redevelopment of this site.(Plans for the station will be submitted to Council at a later date, as were done for the Rupert and Renfrew Stations, and a separate report is also anticipated in order to seek approval of a new form of development.)

The draft by-law provides for a higher density of 1.0 FSR to permit reasonable flexibility to accommodate opportunities as they may arise. Building height would be 18.3 m (60 ft.) over the station house and concourse, lending a sense of identity to the transit function. For the remainder of the development, a maximum height of 12.1m (40 ft.) is proposed in the guidelines.

Last, because it is essential that the station and the commercial development function in a managed way, it is anticipated that site consolidation will be required as a condition of rezoning.

Parking

Transit-related development of the southerly portion of the site is seen by the community, staff and the RTP2000 as highly desirable to upgrade the Broadway Station environment. Site and timing limitations dictate that a relatively small-scale development is all that is achievable for the short-term. This limited development cannot economically support inclusion of below grade parking, even if calculated at the reduced rates recommended below, which likely would determine a need for 25 to 30 spaces.

Parking requirements for this site merit special considerations, taking into account the benefits and needs of high-level transit services, complications from SkyTrain infrastructure, the unusual shape of the site, and the presence of the Grandview Cut. The non-SkyTrain development proposed for the site may be considered "interim"; as such, there is less concern with its parking provision since its needs may be both minor and short-lived, pending more substantial development of the site in future. Given the major boost to transit usage by arrival of the second SkyTrain service at this site and the economics of developing on-site parking, it is recommended that up to 1950 m2 (approximately 20,000 square feet) of commercial or service use, including medical office use, be permitted with a suspension of parking requirements. Public authority use or social and recreational amenity facilities to serve the station and community should be exempt from parking requirements in perpetuity.

Provisions of the Parking By-law, except as noted below, should apply to this site. If assessable development exceeds 1950 square metres, all assessable floor areas (including the initial 1950 square metres) should have the following parking requirements:

For retail, office, service cultural and recreational and insitutional uses, a minimum of one space per 70 square metres gross floor area;

… For health care office use, a minimum of one space per 35 square metres gross floor area;

… The relaxation and mixed-use reduction provisions of the Parking By-law should be available, in order to enable the suspension of parking as described above. It is expected that future, expanded development would be assessed for all floor area on the site.

No parking is required for the Public Authority Use - SkyTrain Station. For similar reasons as those noted above, no off-street loading bays will be required for either the SkyTrain Station or the initial 1950m2 of retail and service uses. The relaxation and mixed-use reduction provisions of the Parking By-law should be available, in order to enable the suspension of parking as described above. It is expected that future redevelopment would be assessed parking for all floor area on the site, except as previously noted.

RTP2000 Position

The RTP2000 has been consulted about the need to rezone this site for the station and associated development. While preferring a standard C-type zoning in terms of use and other regulations, they have also requested a complete relaxation of-street parking and loading requirements for a more modest level of associated development. Hence they understand the unique conditions which require a site-specific solution and are not opposed to the proposed zoning change. They are also aware that approval of a new form of development will come at a later stage.

Public Consultation

The Kensington/Cedar Cottage Community Vision process concluded before the June, 1998 provincial announcement of SkyTrain technology along BNSF/Grandview Cut corridor in Vancouver. The SkyTrain planning process was in a position to continue and build upon the legacy of community involvement. The process confirmed that the subject site is appropriate for the new station as well as community-serving and transit-related uses to help stimulate area revitalization and contribute to a vibrant and safe station environment. A low-to-mid-rise scale was also strongly preferred. Further, the public process has identified the new station's associated development as a potentially desirable location for a relocated Cedar Cottage Community Police Office.

CONCLUSION

In order to permit the intended use of this site for a SkyTrain station and associated development, staff support the CD-1 amendments as described in Appendix A.

- - - - -

Section 2

Section 3 Floor Space Ratio

Section 4 Height

Add a Setback section with 3.2 m requirement for Broadway frontage

Section 5 Parking

Section 6 Acoustics

APPENDIX B
City of Vancouver Land Use and Development Policies and Guidelines
Community Services Group, 453 W. 12th Ave Vancouver, BC V5Y 1V4 _ 604.873.7344 fax 873.7060
planning@city.vancouver.bc.ca

COMMERCIAL STATION
CD-1 GUIDELINES

Contents

1. Application and Intent

2. General Design Considerations
2.4 Views
2.5 Topography
2.7 Weather
2.8 Noise and Vibration
2.10 Safety and Security
2.11 Access and Circulation

3. Uses
3.1 Uses at Grade
3.2 Uses Above or Below Grade

4. Guidelines Pertaining to the Regulations of the Zoning And Development By-law and the Parking By-law
4.2 Frontage
4.4 Setback
4.9 Off-Street Parking and Loading

5. Architectural Components
5.1 Roofs
5.2 Windows and Skylights
5.3 Entrances
5.5 Exterior Walls and Finishes
5.6 Projections, Awnings and Canopies
5.7 Lighting
5.8 Public Art

6. Internal Design and Facilities
6.1 Internal Circulation
6.2 Amenity Areas

7. Open Space
7.1 Public Open Space

8. Landscaping
8.1 Streetscape
8.2 Site Landscape

9. Utilities, Sanitation and Public Services
9.2 Underground Wiring

NOTE: These guidelines are organized under standardized headings. As a consequence, there are gaps in the numbering sequence where no guidelines apply.

1 Application and Intent

Figure 1. Proposed Commercial Station CD-1 Location

2 General Design Considerations

2.4 Views

Figure 2. Views to be protected

2.5 Topography

2.7 Weather

2.8 Noise

2.10 Safety and Security

2.11 Access and Circulation

3 Uses

3.1 Uses at Grade

3.2 Uses Above or Below Grade


Figure 3. Examples of uses - Retail continuity at grade, theatre, office and large restaurant above or below grade

4 Guidelines Pertaining to the Regulations of the Zoning and Development By-law

4.2 Frontage

4.3 Height

4.4 Front Yard and Setback

4.9 Off-Street Parking and Loading

5 Architectural Components

5.1 Roofs

5.2 Windows and Skylights

Figure 4. Example of a roofline that expresses the transit function

5.3 Entrances

5.5 Exterior Walls and Finishes

Figure 5. Example of ground level pedestrian
interest and transparency

5.6 Projections, Awnings and Canopies


Figure 6. Awnings and Canopies

5.7 Lighting

6 Internal Design and Facilities

6.1 Internal Circulation

Figure 7. Example of unobstructed and transparent internal circulation

6.2 Amenity Areas

7 Open Space

7.1 Public Open Space

Figure 8. Location of public open space opportunities

8 Landscaping

8.1 Streetscape

Figure 9. Example of streetscape with mature street trees

8.2 Site Landscape

9 Utilities, Sanitation and Public services

9.2 Underground Wiring

Submission Requirements
Applicants should refer to the information required for significant development permit applications contained in the Checklist in Brochure #3 - How To... Development Permits for Major Applications.

APPENDIX C

EXISTING FORM OF DEVELOPMENT


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