Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date: May 16, 2000

 

Author/Local: MHolland/RWhitlock

 

RTS No.: 1407

 

CC File No. 5303

 

Council: May 30, 2000

TO: Vancouver City Council

FROM: Director of Current Planning

SUBJECT: CD-1 Text Amendment - 711 West Broadway (Holiday Inn)

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Central Broadway C-3A Urban Design Guidelines, adopted by Council, March 23, 1976 (as amended up to September 10, 1996).

Central Area Plan, approved by Council, December 3, 1991.

Interim City-wide CAC Policy, approved by Council on January 28, 1999.

PURPOSE AND SUMMARY

This report assesses an application to amend the CD-1 By-law for 711 West Broadway to ermit the conversion of already-permitted floor area from all residential units to mostly hotel and some residential units. The development would include an 80 room expansion of the existing hotel onto the surface parking lot on the north portion of the site, along with nine townhouse units along West 8th Avenue. The buildings would fit within the envelope of the form of development already approved in principal by Council, and would include the previously-required community amenity space with an operating endowment. The Director of Current Planning recommends that the application be referred to Public Hearing and approved.

DISCUSSION

Zoning History: The Holiday Inn was approved in 1972 with a density of 3.36 FSR, measured on a site extending from Broadway to 8th Avenue. The site had two parcels, the one along West Broadway was zoned C-3 permitting a density of 5.00 FSR, and the one along West 8th Avenue was zoned C-2, permitting a density of 3.00 FSR. The hotel achieved its current density by utilizing development potential from both parts of the site, with all the development located on the parcel fronting West Broadway, and a surface parking lot on the parcel fronting West 8th Avenue. In 1975, the C-2 and C-3 districts along the West Broadway corridor became C-3A, with a maximum permitted FSR of 3.00, making the existing hotel non-conforming with respect to the FSR regulations.

In 1996, Council approved an application to change the site’s zoning from C-3A to CD-1 to increase the density from 3.36 to 4.47 FSR to permit the development of residential units and community amenity space on the parking lot. Staff supported this proposal as it was felt that additional residential and community amenity space would eliminate the unattractive and noisy surface parking lot and would provide an appropriate relationship in terms of use, form and density with the adjoining residential neighbourhood along West 8th Avenue.

Following a change in the overall housing market, the applicant submitted the current application that would permit the conversion of the bulk of the already-permitted residential floor area to hotel use. Staff reported to Council in October 1999 recommending refusal, noting that the application increases the commercial floor area beyond that allowed on any other C-3A site along West Broadway, and contributed little additional public benefit. Council decided that the application had sufficient merit to be processed in the normal manner.

Use: The Central Area Plan and Urban Design Guidelines for Broadway C-3A encourage a wide range of commercial uses such as hotels, clubs, restaurants and pubs, to add vitality to the “Uptown” office district of Central Broadway. The proposed hotel use fits the intent of the C-3A guidelines.

In the current context of under-utilized commercial land along Broadway, combined with the fact that the site is already built beyond that permitted for commercial use under adjacent C-3A zoning, staff believe the rationale for increasing the supply of commercially-zoned land is weak, especially if this was an office commercial proposal. However, the Holiday Inn site is unique in that it has a large unsightly parking lot which will be eliminated with the proposed development. The hotel is centrally located with respect to the VGH health care precinct which is being replanned to accommodate a significant component of additional bio-technology development. With reference to this potentially increased demand for hotel accommodation, it can be argued that providing additional hotel space within walking distance of this increasingly important district will be beneficial. Furthermore, the density is already permitted in the CD-1 By-law, albeit in all residential use. As a result of the combination of unique site characteristics, approving this application will not likely be seen by prospective applicants as a precedent for other sites along the Broadway corridor. Moreover, the Broadway corridor poses further difficulty for those who would develop new hotel uses due to the predominance of small sites within the C-3A District.

Form : The proposed form of development (Appendix D) fits within the building envelope approved in principle by Council in 1996, ensuring a smooth transition between Central Broadway and the adjoining residential neighbourhood of Fairview Slopes to the north. A number of public realm improvements and design aspects of the hotel are included:
· upgrading of the existing facade of the Holiday Inn, to give the building a more contemporary appearance;
· upgrading of the pedestrian environment around the hotel, including better paving, landscaping and weather protection along Broadway;
· The 2 ½-storey townhouses along West 8th Avenue will provide a transition to the residential areas surrounding the site;
· the new hotel extension wraps around a landscaped courtyard in the middle of the site, which will be designed to buffer hotel and community uses from the townhouse units, providing amenity to both;
· no balconies will be built on the new hotel addition in order to mitigate impacts from noise associated with hotel activity; and
· the new hotel rooms will have primary access from West Broadway through the current entry. An exception is to be made for a few suites facing Heather Street designed for long-term stay clientele.

These improvements to the public realm are a key component of this proposal, as an important step in the ongoing revitalization of Central Broadway, thereby further meeting Council’s urban design goals for the area. The new development will also increase the livability of the urban fabric along West 8th Avenue by removing an unsightly surface parking lot from the residential neighbourhood of Fairview Slopes.

Public Amenity: A community amenity space of 241.54 m² (2,600 sq. ft.) is considered by representatives of the community as a significant achievement. Conditions to secure the space and provide an operational endowment of $500,000 are set out in Appendix B.

Access and Parking: A fundamental principle in the proposed development concept is the discouragement of hotel traffic, including both cars and buses, from intruding into the Fairview Slopes residential neighbourhood. This imposes constraints against solutions. A consultant was engaged to examine access and parking issues. It has been determined that with minor modification and proper management, the porte cochere on West Broadway can satisfy tour bus and most passenger car requirements. A detailed management plan will be a requirement at the development permit stage. Finally, the proposed parking appears adequate to service expected demands throughout the day.

Neighbourhood Response: In October 1999, when Council considered whether the application should be processed in the normal manner, six letters in support of the rezoning were received, including a letter from the President of the Fairview Slopes Community Association. Elimination of the parking lot and provision of community amenity space were the principal reasons for support.

After 1,059 letters were mailed to neighbouring property owners and rezoning notification signs were posted, one letter and one e-mail response have been received in opposition to the rezoning. Both respondents felt that the commercial intrusion would threaten the residential environment of Fairview Slopes in this area.

CONCLUSION

The commercial expansion for hotel use has some merit, given nearby growth, but would not in-and-of itself support the rezoning. However, this site represents a unique set of conditions. Allowing the hotel expansion to proceed will facilitate a number of benefits specifically relevant to this site and neighbourhood, including eliminating an unsightly and noisy surface parking lot, reducing the overall impacts of the existing hotel on the adjoining residential areas, improving the aesthetic quality and livability of Central Broadway, and providing a community amenity space. The proposed townhouses integrate the project with adjacent multiple dwellings. Staff therefore recommend approval of this CD-1 By-law amendment, subject to the conditions outlined in Appendix B.

- - - - -

DRAFT AMENDMENTS TO CD-1 BY-LAW No. 7648 (#358)

Uses: · add Hotel to permitted uses on Site B [Section 2 (b)]

Floor Space Ratio:

Parking and Loading:

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL

(a) That the proposed form of development be approved by Council, in principle, generally as prepared by Brook Development Planning Inc and Davidson Yuen Simpson 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:

APPENDIX C

ADDITIONAL INFORMATION

Site: This 0.5 ha (1.23 acres) site, comprised of a single parcel, lies between West Broadway and West 8th Avenue, adjacent to the west side of Heather Street. The lane between Heather and Willow Streets has been closed at the west edge of the site, diverted north to connect to West 8th Avenue. The site has a frontage of 70 m (229.65 ft.) along both West 8th Avenue and West Broadway, and a frontage of 32 m (105 ft.) along Heather Street, yielding a total site area of 4,970 m² (53,498 sq. ft.).

The site is currently zoned CD-1 (#358) with two sub-areas: Site A, where the current hotel (Holiday Inn) is located, and Site B, the parking lot where the proposed development would take place.

Site A has an area of 2,794 m² (30,074 sq. ft.) and a zoned FSR of 6.0 commercial (density measured with respect to the area of Site A only) with a build out of hotel/commercial and parkade of 5.6 FSR (3.3 FSR hotel/commercial, 2.3 FSR parkade). The existing hotel is 50 m (164 ft.) in height, with 60.93 m (200 ft.) of frontage on Broadway, and 43.7 m (144 ft.) of frontage along Heather Street, and has a gross floor area of 16,444 m² (177,008 sq. ft.). The existing hotel has 193 rooms and 175 parking spaces above grade and another 60 underground. Also included are the commercial uses of ancillary shops, restaurants and a casino.

Site B currently has an area of 2,176 m² (23,424 sq. ft.) and is being used as a surface parking lot. The 1996 amendment to the CD-1 By-law permits a total development density of 2.5 FSR (density measured with respect to the area of Site B only, of which 2.3 FSR is multiple dwelling residential and 0.15 FSR is for community amenity use) and a height of 18 m (59.0 ft) were approved.

Surrounding Zoning and Development: The site sits within the Central Broadway corridor, adjacent the Fairview Slopes neighbourhood, and commands a good view of the downtown and North Shore mountains. The Broadway corridor, zoned C-3A, offers a wide range of retail and commercial services. The health precinct, including the Vancouver General Hospital, zoned CD-1, sits south of Broadway and is currently undergoing a comprehensive rezoning process, involving further development of the hospital and adjacent biomedical research and high tech development, including a new Cancer Centre on West 10th Avenue. The Fairview Slopes neighbourhood, zoned FM-1 with a height limit of 10.7 m (35.1 ft.) and a density limit of 1.5 FSR, is largely a neighbourhood of two to four storey strata-titled multiple dwellings.

Immediately to the west of Site B is a CD-1 zoned site developed at 1.14 FSR with a four-storey strata-titled multiple dwelling (La Fortuna). To the south of that site is 777 West Broadway which shares the CD-1 zoning and is developed at 4.58 FSR with a 12 storey retail/office development. That CD-1 represents a density transfer permitting higher-than-normal commercial density on the Broadway site.

To the north of Site B, across 8th Avenue, is a 2 ½ storey cooperative multiple dwelling (Heritage Housing Cooperative), zoned FM-1. To the east of Site B, across Heather Street, is a four storey strata-titled multiple dwelling (Grand Heather Gardens), zoned C-3A. Between the Holiday Inn on Site A and 777 West Broadway is a 2-storey medical office.

Proposed Development: The rezoning application requests an amendment to the CD-1 By-law to permit hotel use, including some conference or banquet facilities, to replace the majority of the residential uses currently approved for Site B (the northerly portion of the CD-1 site). A community amenity space and a nine-unit multiple dwelling in a townhouse format are also proposed.

The proposed total FSR for Site B remains unchanged from that currently approved at 2.50 FSR, however, the application proposes to replace 2.02 FSR of the residential uses with hotel use, thereby reducing the residential FSR from 2.35 FSR to 0.33 FSR, while maintaining the community amenity space at 0.15 FSR.

To provide greater flexibility in the future should market conditions deteriorate for hotel use, staff propose structuring the CD-1 such that either hotel or residential uses would be permitted with hotel limited to 2.02 FSR.

Parking and Loading: Ninety-six (96) spaces of underground parking are proposed for the new hotel use, 10 for the community amenity space, and 12 spaces for the townhouse component.

The current porte cochere can provide either three to four car spaces or the required single tour bus loading space. When the space is in use by a bus, other passenger loading by taxis or private vehicles will be largely displaced. Staff believe this will be acceptable as the applicant has noted that tour bus activity is extremely light, reaching little more than four or five buses per month for the four months of the high season, and almost none in the low season months.

Staff note that the current and proposed passenger and bus loading facilities are awkward, however, provision of more passenger loading and bus spaces on the site would be exceedingly difficult. With this in mind, the applicant has agreed to initiate loading management measures, including a full time doorman and required phone contact with all large tour buses picking up or dropping off passengers to ensure the porte cochere will be ready to receive a bus, avoiding traffic disturbances along Broadway and discouraging buses from using local streets for maneuvering. As well, landscape improvements will be made to more clearly define vehicular and pedestrian areas.

Neighbourhood Impacts: Initially, staff did not support the expansion of hotel use due to concerns about potential impacts on the adjoining residential neighbourhood of Fairview Slopes. Traffic and loading management strategies will be employed to keep tour buses and other hotel-related traffic out of the neighbourhood to mitigate concerns over safety and noise. The applicant’s traffic consultant has identified a minor increase in traffic connected to the proposed development; however, the impact on the neighbourhood will be minimal.

The applicant has given assurance tour buses associated with the hotel will not use West 8th Avenue or the lanes adjacent the neighbourhood’s residential developments.

Community Amenity Space: The current proposal offers improvements to the publicbenefits approved in 1996.

The neighbours, as represented by the Fairview Slopes Residents’ Association (FSRA), in concert with the applicant, have proposed a community amenity space on this site to fill what they believe to be a growing need in the area. As background to the 1996 rezoning application, a Needs Survey of the Fairview Slopes Community was conducted by a consultant to the applicant. This report concluded that recreational services to the neighbourhood needed improvement; that 80 percent of those surveyed believed this site was a good location for a community facility; and that the greatest overall demand for space was for a multi-purpose activity space.

Staff continue to have concerns about the need and the operational viability of the amenity space. In 1996, and again in March of 2000, Park Board staff were asked to consider this site as a satellite or “mini” community centre. Their assessment was that a detached facility on such a limited scale would not support cost-effective programming. In 1996, the City Manager suggested that Council consider accepting cash-in-lieu of the amenity in the amount of $875,000 as staff had concerns about the sustainability of the operations of the space. This option was raised with the applicant again in March, 2000 but was not pursued.

In the 1996 proposal, the amenity space was to be managed by the FSRA. In the current proposal, the applicant has proposed that it be managed by the Holiday Inn but be available for community use only. As with the 1996 proposal, a $500,0000 endowment has been offered to help offset programming costs. The FSRA has not yet produced a Business Plan for the operations of the amenity space. Social Planning staff will review the applicants’ proposal that the Holiday Inn manage the amenity on behalf of the community, as well as any Business Plan submission from the FSRA, and report to Council prior to enactment of the rezoning (if approved) with recommendations for the management and operations of the community amenity space to ensure the highest level of public use with no additional costs to the City.

Public Input: A notification letter was sent to nearby property owners on December 2, 1999, and two rezoning information signs were posted on the site on December 16, 1999. One phone call of general inquiry was received from an office worker near the site. Two letters in opposition and one in favour were also received. The applicant submitted seven letters in favour of the application from residents living adjacent or near the site, including one from the Fairview Slopes Community Association. Support was focused on the provision of the community amenity space and the removal of the unsightly parking lot, and elimination of the view of the backside of the existing hotel.

Those opposed voiced concerns about impacts of hotel activity on the neighbourhood, and the need to encourage development on this site which preserves its transitional nature, linking Broadway to Fairview Slopes residential areas.

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

Vancouver/Richmond Health Board: Health Board staff note that a full amendment of the Noise By-law is not required but simply an inclusion of the CD number and By-law number under Schedule B of the By-law. Staff also asked that the City’s acoustical criteria form partof the Zoning By-law, and an Acoustical Consultant’s report be required which assesses noise impacts on the site and recommends noise mitigating measures. Planning staff note the acoustical requirements are part of the existing CD-1 and no change is recommended to these requirements.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on December 1, 1999, and supports (7-2) the proposed use, density and form of development. However, some concerns were noted:

“The Panel supported the change of use and the increase in density. . . but also noted that the agreement is very beneficial to the applicant. There were concerns expressed about the impact of noise and shadow, lack of privacy and setback issues, with the hotel expansion overlooking the residential area. One member requested a complete shadow study, including the existing structure. Members commented that the nine townhouses were seen as a token gesture with their livability questioned, and also that they blended curiously with the street level hotel units. It was suggested they be given more bulk, architectural expression, greater height for the roof terraces, and be set-back from the street, which would enhance privacy issues. One member felt that added height would detract from the views from the hotel and another thought they could be set back, their face on the courtyard blank, and that could become a shade garden for the hotel. Concerns were expressed about the placement of the community space and it being in the shadowed, sunken plaza, which should be raised to grade or it could become problematic.

The Panel said the Broadway and Heather Street frontages both needed major reworking from the ground up. On the major arterial, an urban feel should be developed, with serious attention paid to the separation of vehicular traffic and pedestrians, the integration of the small commercial spaces and the hotel entrance. Treatments could include landscaping, higher quality materials, and transparency, which would be consistent with the Broadway streetscape. A panel member suggested a model bus shelter could be part of the contribution to the public realm. A couple of members suggested the roof top of the parkade be transformed into a terrace for hotel patrons use and to benefit the views from surrounding buildings. There were many suggestions concerning the integration of the new expansion, with its different materials and curved element, and the old, unique concrete structure. How the two buildings are attached needs to be clarified, and a strategy developed in regards to materials, articulation and scale to either accentuate the difference or harmonize.”

With respect to the Panel’s concerns, shadow analysis indicated there was no more impact than that already considered and approved by Council in the 1996 rezoning, and that the shadow impacts of the existing tower far exceed those associated with the new development. The location of the community centre was requested and supported by the residents in the neighbourhood. Refinements on its placement and design may take place before a Development Permit is issued. Refinements to the design and positioning of the townhomes will also take place at this time. The form of development of the existing building and its relationship to the public realm and streetscapes along West Broadway and Heather Street is discussed in the body of the report, in the section titled Form of Development.

Public Benefit: This proposal provides a community amenity space, the removal of an unsightly surface parking lot in a residential area, and significant upgrading of the public realm.

Environmental Implications: Nearby access to transit, commercial services and a closer link between the Health Precinct and its needs for hotel uses, may reduce dependence on use of automobiles.

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

Comments of the Applicant: The applicant has been provided with a copy of this report and has provided the following comments on the proposed community amenity space as described in this appendix:

· The space would be available for the hotel to rent from the City or FSCA at market rates with the funds going to the FSCA to offset ongoing operations and programming.

· The hotel is prepared to offer management services to the FSCA, with the cost of management services credited to rent charged to the hotel for use of the amenity space.

· In accordance with the previous agreement, the hotel will provide $850,000 in funding for the amenity space, as follows: approximately $350,000 towards the construction of the space, with the balance allocated to an endowment fund."

APPENDIX D

APPENDIX E

9 pages of drawings - on file in City Clerk’s Office

APPENDIX E

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

711 West Broadway / 700 West 8th Avenue (Holiday Inn)

Legal Description

Lot A, Block 338, DL 526, Plan 11309

Applicant

Brook Development Planning Inc

Architect

Davidson Yuen Simpson Architects

Property Owner

Beaconsfield Holdings Ltd. (Inc. No. 352638)

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA (Sites A & B)

4 970.0 m²

(53,498 sq. ft.)

4.65 m²

(50 sq. ft.)

4 965.3 m²

(53,448 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

(Site B)

PROPOSED DEVELOPMENT

(Site B)

ZONING

CD-1

CD-1 Amended

USES

Residential, community amenity space, underground parking

Hotel, residential, community amenity space underground parking

DWELLING UNITS

Permitted, with no express limit on the number of units

9 townhouses

MAX. FLOOR SPACE RATIO

2.50 FSR

2.50 FSR in total, 0.15 for community amenity space, 2.02 for hotel and or residential, remainder for residential

MAXIMUM HEIGHT

18 m (59 ft.)

18 m (59 ft.)

PARKING SPACES

292 total (including existing hotel)

353 total (341 required)

* * * * *

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