Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Standing Committee on Planning and Environment

FROM:

The Director of Central Area Planning in Consultation with the General Manager of Engineering Services, the General Manager of Parks and Recreation, and the Director of Financial Planning and Treasury

SUBJECT

YMCA/Langara College Policy Review and Rezoning Process -Proposed Schedule and Resources

 

RECOMMENDATION

C. THAT, consistent with City cost recovery policy, the YMCA and Langara College contribute $65,641 for the City work on Phase 1, and, if wishing to proceed beyond Phase 1, submit the following contributions prior to the commencement of the subsequent phases: $85,109 for Phase 2; $122,608 for Phase 3 and $62,220 for Phase 4;

D. THAT, while the City will endeavour to meet the proposed process schedule, approval of this report and receipt of payments does not oblige the City to comply with the proposed time frame nor change the zoning;

E. THAT, with respect to Community Amenity Contribution (CAC) policy, that a negotiated CAC approach be applied.

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

PURPOSE AND SUMMARY

In response to a significant development initiative from the YMCA (South Slope) and Langara College, the purpose of this report is to present a schedule, staffing and budget to undertake a City policy review in anticipation of a rezoning application. The major projects process model (City-expedited and cost recovered) is proposed which will facilitate the review of complex development issues and public consultation, in a manner which will be efficient and effective for the City, community and development proponents.

BACKGROUND

Site and Zoning (see map on following page):

The site overlaps three parcels - the western approximately 5 acres of the Langara College site, the 2 acre YMCA (South Slope) site and the 3 acre Provincially-owned, City-leased park land which is located between the two institutions.

Land use and form of development on the Langara College and YMCA sites are regulated by separate CD-1zonings:

1) CD-1 (#55) was enacted in March 1969 and amended in 1995, and is exclusively occupied by the Langara College, its buildings and parking areas;

2) CD-1 (#103) was enacted in September 1975 and contains, housing (Langara Gardens and rental housing), park (Provincially-owned, City leased site), portions of the Langara Golf Course, and the YMCA.

CityPlan Rezoning Policy: The policy states, in part, that “applications will be considered for projects focusing on expansion, downsizing, or reuse of public or non-profit institutional, cultural, recreational, utility, or public authority uses” and cites Langara College expansion as a specific example.

The site is located outside of the current Sunset Community Vision area in the Oakridge local area. It was not anticipated to be included in future Visions, but rather to be addressed when the Oakridge-Langara Policy Statement area to the west is ‘revisioned’, which is not likely to occur for at least four years.

The City-Leased Parcel (identified as ‘7' on map): A key to this development initiative is the 3 acre parcel owned by the Province. Prior to 1975, it was owned by the City. In 1975 the City sold it to the Province for $225,000 per acre, “subject to a lease back to the Parks Board at the nominal amount of $1.00 a year”(City Council Minutes, October 21, 1975). The lease states that “the Lessor (Province) has acquired the Crown lands under the Greenbelt Protection Act and the Lessee (City) covenants to preserve the existing natural features and quality of the Crown lands and enhance these to ensure the best development of the Crown lands for community park and recreational purposes for the benefit of the citizens of Vancouver.”

The Province has indicated to the proponents a willingness to consider an alternative use of the site. The Province, YMCA and Langara College have signed a three party memorandum of understanding to accomplish this. Provincial and City legal review of the provisions of the Greenbelt Protection Act, the terms of the Provincial purchase and, in turn, the lease of the site to the City, indicates that an alternative use of the lands is legally possible if the City and Province are willing.

DISCUSSION

The Proposal (see Proponents description - Appendix A)

Langara College, a provincially mandated and funded college, and the YMCA, a long-established non-profit recreation and community service organization, propose to expand their facilities to meet increasing demands for educational and recreational services. To offset the cost of development they also propose to rezone land for housing, identifying, as a target, 500 to 750 units. There is no specific site plan or development proposal at this time - the proponents wishing to proceed through a cooperative process with the City and community to arrive at a development which works for all parties.

The proponents have indicated that they wish to develop a ‘Langara Learning and Living Community’, fully integrated with the local community. They note that this is a unique opportunity where two community-oriented organizations are attempting to create a diverse, multi-use, compact, open space centered, non-profit, community-service oriented development. They further note their objectives include incorporating sustainable planning practices, compatible with regional and City planning policies.

Development objectives and a general concept are attached as Appendix A. In summary, the concept consists of:

- approximately 16 250 sq. m (174,920 sq. ft.) of new institutional floor area, including gymnasium, human performance facilities (e.g instruction labs, physical education training facilities), library, creative arts centre, ‘social’ spaces, cafeteria, multi-purpose youth and child facilities;

- a housing component of between 500 and 750 units, offering a diverse range of housing choice including a component of non-market housing;

- an open space component which serves the institutions, new housing and the adjacent community; and

- improved parking, access and circulation systems.

It is noted that the new 16 250 sq. m (174,920 sq. ft.), for institutional uses, is already allowed in the Langara College CD-1. In 1995, the College received zoning approval for a two-phased expansion. Phase One was subsequently completed. The current institutional expansion proposal represents Phase Two, with a change to the form and location of development.

Development Issues

The concept raises a number of issues which would be addressed through the recommended policy review and rezoning process.

Study Area Size: In order to understand the context and impacts of the proposed development, the site planning area should extend beyond the proponents’ specific ‘redevelopment area’ of approximately 4.05 h (10 acres) and include all of the Langara campus and the parking lot of the Langara Golf Course. Parking at the Golf Course is at maximum capacity at peak periods and the Park Board would seek an opportunity to increase parking supply as one possible outcome of any development.

Inclusion of these lands will allow for broader, more comprehensive consideration of options and opportunities. The study area should extend beyond these lands, as required, when addressing neighbourhood context and potential impacts, including traffic impacts.

Scale and Impact of Development in the Local Community Context: In addition to assessing potential benefits including new educational and recreational facilities, housing choice and in other areas, the City review and the local community will weigh public benefits against impacts in the City and local context. In the local context, is there a compatible neighbourhood fit and can potential impacts be addressed with the addition of 500 to 750 units of housing? Applying the nearby Oakridge Langara policies, as well as the precedent of nearby rezonings such as Langara Gardens to this site, suggests an emphasis on ground-oriented units, densities in the order of 1.0 FSR, heights in the order of 12.2 to 15.24 m (40 to 50 ft.) maximum, and if over 100 units are built, 20 percent to be non-market.

The proponents have indicated a desire to explore a range of housing types, and higher heights and densities. They cite both the non-profit driven objectives of the YMCA and Langara College as well as the unique site characteristics, including the location of the siteon the edge of Langara Golf course and its separation from lower density RS communities by the golf course, arterials, institutional uses and townhouse development.

Through the policy review process, development scenarios will be tested and any rezoning policies developed must be reconciled with nearby policies and precedents. Variations from policies and precedents must clearly demonstrate improved public benefit, and successful management of impacts, in particular, vehicular and parking impacts.

The phased approach to policy and zoning review proposed below will allow all parties to get an early read on the where the thresholds are (policy ‘goal posts’) for critical housing choice, open space, form, density and impact issues.

City-Leased Park Site: This 1.21 ha (3 acre) site is key to the proponents’ development concept as it is situated between the two institutions. To accommodate a change of use and development on this site, the existing lease would require modification and approval of the Park Board and Council. Park Board staff have identified draft objectives to be met if this parcel were to be included in a development plan (see Appendix B). They propose a ‘no net loss of park land’ approach, and objectives related to use, maintaining flexibility, neighbourhood access, etc.

Questions to be explored include:

· can alternative configurations and use of the site and adjoining lands better meet park and recreation needs?

· what happens when new park and recreational demands from new residents are factored in?

In considering a change to the lease, it is noted the original intent of the lease was to address community park and recreational needs for the benefit of citizens of Vancouver. Consistent with that intent, any changes should reflect community park and recreational needs in the area.

Sunset Community Visions Program: The Sunset local area is immediately east of the Langara campus. The Community Vision Program approved by Council is underway. A Visions Fair occurred on March 11 and 12. Workshops on various topics including traffic, housing, community services and safety are being held in April, May and June, with the Vision Choices Survey planned to be delivered in the fall. These workshops will not address the Langara/YMCA site, but may provide some additional information as to community interests that would be helpful to this process. It is expected the Sunset Community Vision will be presented to City Council for endorsement in the spring of 2001.

The Sunset Community Vision Program is proceeding on schedule and the consideration of the Langara/YMCA initiative can proceed compatibly with this important CityPlan program. There is a possibility that new housing choice and improved recreational and educationalservices offered in the Langara initiative will respond to needs (currently being identified) in the nearby Sunset local area. On the other hand, additional impacts, in particular traffic impacts from new development, will be a concern to all nearby communities and traffic management therefore will be high priority in the review of the Langara initiative.

The recommended Langara/YMCA policy review process schedule and components, including public consultation, are designed to be compatible with the Sunset program and ensure the public is not confused or overwhelmed in terms of consultation and choices. Staff in both initiatives will work together to maintain ongoing successful programs and make any necessary process adjustments where required.

Public Benefit Contributions: The City’s policy regarding public benefits outlines two direct considerations:

Development Cost Levies (DCLs): DCLs will apply to new development at the approved rate of $26.91 per m² ($2.50 per sq. ft.)(daycare use set at $5.49 per m²/$0.51 per sq. ft.); and

Community Amenity Contributions (CACs): Interim CAC Policy defines a rezoning on a site which is over 4.05 h (10 acres), as is the case here, as a ‘non-standard rezoning’ which is to be reported early in the review process for direction as to whether the flat CAC rate of $32.29 per m² ($3.00 per sq. ft.) on the net increase in allowable development be applied, or a negotiated approach be applied.

The policy further states for non-standard rezonings, the CAC flat rate and applicable DCL rate establish a benchmark for negotiating. A negotiated CAC (cash or in-kind) should not be less than what the flat rate CAC and DCL would provide.

The policy also states that for non-standard rezonings providing a negotiated CAC, the contextual information to assist negotiations could include: the cost of providing facilities to City standards; the adequacy of neighbourhood facilities; development economics; and community support.

Based on the current concept, CACs would likely only apply to the new residential component, as the proposed institutional floor area was previously approved in the 1995 Langara CD-1 amendment.

The proponents have indicated that proposed YMCA recreational and other uses should be considered community amenities. ‘In-kind’ contributions are a distinct possibility, such as attainment of permanent park as opposed to the current lease arrangement, and non-market housing. Staff note that considerable experience has been gained, and can now be applied in this case, with non-profit and public institutions such as Lubavitch and Childrens’ and Women’s Hospital, as well as private initiatives such as Arbutus Gardens and Champlain Mall. The issue of what constitutes a community amenity which meets City standards will be carefully examined.

Consistent with CAC policy, because the site is (at least) 10 acres, staff are seeking direction from Council regarding applying either the flat rate or negotiated approach. Staff recommend a negotiated approach:

Process Components and Schedule

While there is a broad City and regional policy context for considering the additional housing and other elements of the Langara concept, there is no local policy plan to guide a rezoning. The Oakridge Langara Policy Statement provides useful policy for comparison but does not specifically apply to these lands. The Sunset Vision program will only cover lands to the east, and will not be completed until next year .

In response to the complexity of the proposal, the lack of local policy, the need for coordinated public consultation and the proponents’ desire to proceed now, it is recommended the major projects’ rezoning model be employed.

The City would be responsible for analysis and policy formulation in the areas of land use, built form, community impacts, community amenities, infrastructure and park lease. The City would also be responsible for public consultation. The proponents, in addition to representing their respective clients’ interests, would be responsible, in consultation with the City, for technical analyses (some requiring sub-consultants including, for example, traffic consultants), sharing public consultation responsibilities, preparing and presenting scenario illustrations and other supporting materials.

The process would be fully cost-recovered, with the proponents covering all City costs.

A four stage incremental process is proposed. Recommendation reports addressing identified issues and conclusions will be forwarded to Council at the end of each stage following which the proponents can develop and adjust their concept, as required. The proponents may also decide to withdraw from the process if the project appears to no longer be viable as a result of this work.

The steps and schedule are:

Phase

Description

Duration and Target Dates

City Budget

1

Development Principles and Policy Goal Posts

3 months
(May 4 to July 31)

$ 65,641

2

Rezoning Policies and Development Scenarios

3 months
(Aug. 1 to Oct. 31)

$ 85,109

3

Rezoning Application: Submission & Public Hearing

6 months
(Nov. 1 to Apr. 30, 2001)

$ 122,608

4

Rezoning Enactment

6 months
(May 1, 2001 to October 31, 2001)

$ 62,220

 

Total Budget

  

$ 335,578

Phase 1 - Development Principles and Policy Goal Posts: The policy review would identify institutional (both education and recreation) , housing and park objectives; broad program and built form alternatives (broad scenarios); traffic, pedestrian and other movements within and to the area; and the overall relationship to surrounding areas. The review would result in initial City and local policy parameters and development principles statement, and be reported to City Council for approval.

This policy review would involve initial consultation with the adjacent community and include, for example, information bulletins and open houses.

Phase 2 - Rezoning Policies and Specific Development Scenarios: By developing and testing development scenarios, site-specific rezoning policies would be identified. This would include specific land use, built form, open space, park and recreation, impact mitigation and community amenity (e.g. ‘in-kind’ contribution potential) policies. Following Council approval, the proponents would have the basis for applying for rezoning.

Public consultation would continue through Phase 2 and include, for example, open houses, workshops and surveys..

Phases 3 and 4 - Submission of Rezoning Application, Public Hearing and Enactment:

If the proponents decide to proceed to rezoning, the following major projects rezoning process steps would apply:

- proponent preparation of application with supporting documentation including consultants’ reports, as required;

- application submission;

- initial staff technical review and public consultation;

- opportunity for revisions and issues reports to Council, as required;

- final staff review and public consultation;

- recommendation report to Council;

- Public Hearing (if referred); and

- Enactment (if approved).

Enactment would include completing legal agreements, subdivision and other conditions of zoning approval.

STAFF RESOURCES

Proposed City staffing and resources to complete the four phases are outlined in Appendix  C. A City staff Technical Team assigned to the project will report to the Major Projects Steering Committee, utilizing the established and successful reporting structure employed on comprehensive cost recovery projects including, most recently, the trade and convention facilities review program and the VGH Precinct policy review.

The new Development Services process principles and practices will be applied, including: a multi-department facilitated approach; the City Technical Team to be maintained, as much as possible, through subsequent stages (if a rezoning proceeds); and, traditionally downstream components (development and building application issues) addressed earlier.

PROPONENTS’ COMMENTS

By letter of April 17, 2000 (attached as Appendix D), Langara College and the YMCA confirm their desire to engage in the process outlined in this report, and have agreed to fully provide the necessary financial contributions for City cost recovery to complete this work.

PARK BOARD

Park Board staff have reviewed and concur with this report. The report, including Park Board staff’s draft objectives (Appendix B), for the Park-leased site will be reviewed by the Park Board, and their conclusions forwarded to Council, prior to Council’s consideration of this report.

CONCLUSION
Langara College and the YMCA (South Slope), in partnership, have proposed a development concept for new educational, recreational, residential and open space uses which warrants serious consideration prior to the possible submission of a rezoning application. A four-stage process is proposed which will facilitate the review of complex development issues and public consultation in a manner which will be efficient and effective for the City, community and the development proponents.
PROPONENTS’ SUBMISSION

The following submission provided by Spaxman Consulting Group Limited on behalf of Langara College and the South Slope YMCA:

Langara Learning and Living Community

In searching for ways to respond to community demands for increased recreational, social and educational services, Langara College and the South Slope YMCA have developed a unique concept of partnership and development. The partnership between these two non-profit organizations, both with missions to serve the community, enables them to combine their resources and explore ways of providing the needed facilities and reinforce the sense of community in the immediate neighbourhood. The facilities are made affordable, and the community made more livable and attractive with the integration of a variety of new housing.

The partnership is proposing to create a “Learning and Living Community” on lands situated between the College’s main building and the south Slope Family YMCA facility.

The Learning and Living Community will be compact and diverse with educational, recreational and residential uses, including:

1) Additional and improved recreational facilities, including a gymnasium, human performance facilities (e.g. instruction labs, physical education training facilities, etc.), community health and wellness space (e.g. community education, youth centre, etc.) (approx. 1 900 m²),

2) Enhanced educational facilities, including a new library (approx. 4 500 m²) and a creative arts centre (approx. 2 800 m²);

3) Langara College retrofit, including new classrooms and social spaces (approx. 3 700 m²)

4) Langara College cafeteria expansion (approx. 1 600 m²)

5) YMCA multi-purpose youth and child facilities and other community health and wellness space (approx. 1 000 m²)

6) YMCA family, and special locker rooms (approx. 750 m²)

7) New housing, offering a diverse range of housing choice (500-750 units);

8) Improved parking, access and circulation systems; and

9) New public open space.

Essential to the success of the concept, is the mixture of publicly oriented educational, recreational and community facilities with a diversity of new housing including sufficient market housing to finance the non-market components.

While the partnership has no fixed plans, it is imagined that the various buildings and activities would be focussed around a central unifying open space. The community facilities would probably be located mainly along 49th Avenue, while the housing would be interspersed across the site but oriented primarily to the south and the golf course. Greenways would create visual and physical links with the neighbouring communities.

PARK BOARD STAFF SUBMISSION

Park Board staff would pursue the following planning objectives in connection with any exploration of alternate uses involving the three acre park parcel adjacent to the South Slope YMCA:

(1) No net loss in park land: If an equivalent area of park cannot be realized on this development site after redevelopment, then land would be required elsewhere, preferably but not necessarily, in the Langara neighbourhood;

(2) Appropriate park type: In recognition of the original (1975) intent to create "a community park" under the auspices of the Provincial Green Belt Fund (as documented in a March 27, 1975 Report to Council by the Special Committee of Council, Re: Langara), the park land in question (whether at the same location or elsewhere) should be developed in a manner reflecting the needs and preferences of the local community. Flexibility, either on site or elsewhere, should not be compromised with respect to short or long term park development;

(3) Neighbourhood use and access: The park created/retained as a result of redevelopment must be viable for such purpose in terms of size and configuration, not segmented by residential units or other kinds of buildings. The park will be visible to and accessible by both existing and new residents of the area.

(4) Exploration of options: Park Board staff would expect the exploration of options to include at least one option that maintained the park substantially ‘as is.'

The above objectives summarize the minimum requirements from the staff perspective, and are not in any order of priority.

The objectives are proposed by Park Board Staff to be used in the consideration of options. These objectives will be reviewed by the Park Board. A formal Park Board position on a change of use is not proposed at this time and would require approval at the Park Board level in advance of any initiative to modify the existing lease.

PROPOSED SCHEDULE AND COSTS YMCA/LANGARA COLLEGE

           
   

Phase 1

Phase 2

Phase 3

Enactment

 

Salary + Fringe

Total

Total

Total

Total

   

Costs

Costs

Costs

Costs

   

Salary + FB

Salary + FB

Salary + FB

Salary + FB

Planning

Planner II

$12,000

$14,400

$28,800

$9,600

 

Planning Assitant III

$8,250

$9,900

$9,900

$0

 

Benefits

$3,787

$4,544

$7,237

$1,795

 

Subtotal

$24,037

$28,844

$45,937

$11,395

           

Engineering

Staff

$4,800

$5,760

$9,600

$4,800

 

Benefits

$898

$1,077

$1,795

$898

 

Subtotal

$5,698

$6,837

$11,395

$5,698

           

Law

Staff

$0

$0

$8,000

$16,000

 

Benefits

$0

$0

$1,496

$2,992

 

Subtotal

$0

$0

$9,496

$18,992

           

Parks

Staff

$4,800

$5,760

$4,800

$2,400

 

Benefits

$898

$1,077

$898

$449

 

Subtotal

$5,698

$6,837

$5,698

$2,849

           

Other Departments

e.g. Housing, Social Planning

$4,800

$10,760

$9,600

$4,800

 

Benefits

$898

$2,012

$1,795

$898

Subtotal

$5,698

$12,772

$11,395

$5,698

           

Direct and Allocated Costs

Salaries plus benefits

$41,130

$55,290

$83,921

$44,631

 

Allocated Costs

$6,457

$8,680

$13,176

$7,007

 

Total Direct and Allocated Costs

$47,587

$63,970

$97,096

$51,638

           

Other Costs

Overtime

$2,000

$2,000

$2,000

$1,000

 

Public Consultation

$5,000

$5,000

$3,000

$0

 

Office Space

$2,000

$2,400

$3,600

$1,000

 

Subtotal

$9,000

$9,400

$8,600

$2,000

           

Total Costs Before Overhead

  

$56,587

$73,370

$105,696

$53,638

           

Overhead

Contingency

$5,659

$7,337

$10,570

$5,364

 

Corp Services

$2,829

$3,669

$5,285

$2,682

 

Community Services

$566

$734

$1,057

$536

           

Total Costs

  

$65,641

$85,109

$122,608

$62,220

PHASE 1: Development Principles and Policy Goal Posts

· Council Approval of Schedule, Staffing and Budget (May 4);

· May - Gear-up, Staffing, etc.;

· June - full time P II and PA III on-board, scoping with proponent team, public consultation (open houses, etc)

· July - from work in June, draft development principles and policy 'goal posts' (e.g. uses; height; traffic management; parks, recreation and other public amenities; environment, etc.), and check back with public

· Late July or September - Report to proponent clients and Council on development principles and policy 'goal posts'

· Cost - (from May 15 - estimated beginning of full time staff to July 31, 2.5 months) - $65,641

PHASE 2: Rezoning Policies and Development Scenarios

· August - Scoping and technical analysis leading to draft rezoning policies and development scenario(s)

· September -design charette with public, then refine policies and scenario(s)

· October - Report draft rezoning polices development scenario(s) to proponent clients and Council.

· Cost - (from August 1 to October 31 - 3 months) - $85,109

PHASE 3: Rezoning Application to Public Hearing

· Steps as per report - major project rezoning

· Cost - $122,608

PHASE 4: Enactment

· Steps as per report major project rezoning

· Cost - $62,220

TOTAL COST - $ 335,578

NOTES

- Schedule to be reviewed at the end of each stage and adjustments made as required

- Costs based on City's cost recovery model;

- Proponents pay for each stage before the beginning of each stage;

- timing based on proponents delivering products as per agreed target dates and no gaps between stages.

APPENDIX D IS NOT AVAILABLE IN ELECTRONIC FORM - ON FILE IN THE OFFICE OF THE CITY CLERK.

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