Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Standing Committee of Council on Planning and Environment

FROM:

Director of Current Planning in consultation with the General Manager, Park Board, Director, Office of Cultural Affairs, and General Manager, Engineering Services

SUBJECT:

Granville Island Reference Document

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On April 18, 1978, Council approved the "Reference Document for Granville Island" noting that it "be approved for use by persons involved in the preparation of plans and proposals for the redevelopment of the Island, including the Development Permit Board." It was most recently amended on March 23, 1999 to reflect the current scale of development of Granville Island.

On March 12, 1998, Council resolved that amendments to the "Reference Document for Granville Island" to accommodate a multi-cinema complex at 1405 Anderson Street "beprocessed similarly to an amendment to an official development plan whereby Council may consider such changes, along with the principles of the development, at a Special Meeting of Council, similar to a Public Hearing, following a report including staff analysis and recommendations."

On December 14, 1999, Council approved a joint planning process involving City staff and CMHC - Granville Island in the review and amendment of the Reference Document for Granville Island.

The City's Transportation Plan, approved in May 1997, called for accommodating the growth in demand for transportation to be accommodated by improving alternatives to the car, primarily transit, but also walking and cycling.

PURPOSE AND SUMMARY

This report recommends the adoption of principles and objectives that will guide the preparation of detailed amendments of the Reference Document for Granville Island. Council's approval of the principles and objectives will conclude the first stage of a two stage planning process. During the second stage detailed amendments will be prepared and brought back for Council's consideration in the fall.

The review of the Reference Document is needed now for the following reasons:

1. To address the form, use and access issues related to the reuse of the remaining buildings.
2. To plan for the projected increase in visitors to Granville Island.
3. To clarify what are the appropriate uses and types of businesses for Granville Island, and the ultimate amount of development that may be accommodated.
4. To address the parking and access issues related to the increase in visitors.

It is recommended that Council endorse the following principles and objectives (listed in the main body of the report) which will guide future development:

1. Maintain a Public Place
2. Retain and Enhance Character
3. Balance Uses
4. Preserve and Enhance Open Space
5. Ensure a Broad Means of Access.
6. Ensure Financial Viability
7. Pursue Inclusive Decision-Making

BACKGROUND

Granville Island is managed and developed by the Canada Mortgage and Housing Corporation, a federal agency, on behalf of the Government of Canada. Granville Island is considered to be a significant federal asset and CMHC sees themselves as stewards of that asset on behalf of Canadians residing in the Vancouver region.

In May 1999, CMHC - Granville Island staff approached the City with a proposal to review and update the Reference Document for Granville Island (hereafter referred to as the Reference Document).

Since March, City and Granville Island - CMHC staff have worked together in consultation with affected stakeholders on drafting a set of principles and objectives for guiding the future evolution of Granville Island (in this report it will also be referred to as the Island). Granville Island is used by many residents for grocery shopping, education, entertainment, dining and other services. It provides a significant amount of employment, providing up to 3000 jobs. Granville Island is home to Emily Carr School of Art and Design, Children's Arts Umbrella, the Arts Club Theatre, artisans' studios and numerous arts and cultural festivals and events.The Island is also a significant destination for tourists. It is easily accessed by several neighbourhoods on English Bay and False Creek (See Map One).

Map One - Context MapIt is timely to now review and update the Reference Document for the following reasons:

1 Remaining Development Potential: There are 5 buildings or sites with a total development potential of approximately 116,128 m2 (125,000 ft2). A thorough examination of the Reference Document is needed to ensure that it will adequately address the form, use and access issues for these development opportunities.
2. Increased Visitors to the Island: It is anticipated that there will be significant growth in Island visitors related to an increased resident population in the False Creek basin and adjacent to English Bay, as well as visitors from Greater Vancouver and tourists. The projected population growth of these adjacent neighbourhoods from 115,060 residents in 1997 to 162,150 residents by 2021 (a 41% increase in population) will likely result in an increase in visitors to the Island. As the Vancouver region grows it can be expected that an increased number of residents from further afield will also want to visit the Island due to the range of specialty services and products available on the Island. In addition, Tourism Vancouver has projected that there will be a 3% increase in visitors over the next decade. This will also contribute to an increase in the number of tourists visiting the Island.
3. Future Uses: The controversy surrounding the proposed cinemas in 1998 illustrates the need to provide clarity in the Reference Document on what uses and types of businesses are appropriate for the Island.
4. Parking: 4 buildings will likely be renovated for new uses, some of which are currently used for parking. The Reference Document must address the replacement of this parking
5. Access: Planning needs to be done to provide access for an increased number of visitors to the Island. While there can be some enhancement for access by the private automobile, it is expected that an increasing proportion of Island visitors will come by other modes.

Map Two - Access Map

Map Three - Potential Development Sites * Note: Assuming that Ocean Cement remains, a corner of the

pe000713.htm

DISCUSSION

It is recommended that City Council and the Granville Island Trust approve the following principles (in bold) and associated objectives (in italics). They will guide the preparation of revisions to the reference document and also provide a summary of the overall direction for the future evolution of Granville Island.

The Proposed Principles and Objectives

Maintain a Public Place

· To encourage uses and activities which serve a wide variety of publics.
· To encourage a variety of uses and activities on the Island which maintain daytime and evening activity.
· To encourage uses and forms of development which are pedestrian-oriented.
· To provide public access to (and along) the water's edge.

CMHC - Granville Island see Granville Island first and foremost as a locale where residents of the lower mainland can interact. However, it is recognized that the success of the Island over the past 20 or so years is evidenced to a large extent by the increasing number and diversity of visitors from throughout the region as well as visitors nationally and internationally. While Granville Island does not market itself as a tourist destination, the Island management must account for tourist needs in a balanced fashion so as not to jeopardize the attractiveness of Granville Island as an important Vancouver commercial and cultural neighbourhood.

Granville Island's success has rested to a great degree on the diverse mix of uses and activities. The pedestrian-orientation and scale of the Island, the easy access to the water, the maritime-oriented businesses and in particular, the public market are also significant contributors to its success.

There is also the potential to increase the amount of evening activity. This will make better use of the existing facilities on the Island which will augment the existing evening theatre and restaurant use and improve the perception of personal safety during the nighttime hours. Prior to proceeding with this development, there will need to be public consultation on proposals that result in a significant amount of evening activity with impacted parties and the local community.

Granville Island - CMHC are also considering the extension of the waterfront walkway along the water's edge in front of Ocean Cement.

Retain and enhance character

· To identify an upper limit on the amount of floor space that can be developed on the Island.
· To foster development which generally stays within the footprints of existing buildings, but also allows for some minor additions to buildings.
· To ensure that building heights shall not exceed 55 feet and variations in building heights shall be encouraged.
· To ensure that new buildings and renovations use materials and forms that reflect the industrial character of the Island.
· To foster, where appropriate, the maritime experience of Granville Island.
· To favour locally-owned and operated independent businesses.
· To encourage the development of those arts, crafts and cottage industries where goods are produced on the premises and the production process is visible to the public.
· To sustain and enhance the environment.
· To maintain the soft separation between pedestrians and vehicular traffic so that pedestrians can use all open areas of the Island, including roads, pedestrian areas and parking lots, except for the Anderson Street causeway roadway.

The Reference Document must ensure that Granville Island's unique character and scale is maintained. Development should continue to emphasize the reuse of existing buildings, locally-owned and operated businesses and the production of arts and crafts on the Island.

It is proposed that future development should, for the most part, stay within the footprint of existing buildings and that renovations continue to use industrial materials to ensure that the Island's character and scale is maintained.

The current Reference Document identifies an upper limit on the amount of floor space that can be developed. During the second part of the planning process, both City and CMHC -Granville Island staff will be examining a variety of approaches to place a revised upper limit that may increase the amount of some types of development. The approaches for implementing this upper limit may include the identification of a maximum amount of floor space, floor space ratios or new approaches such as maximum building envelopes.

There are currently 5 buildings and sites that could be renovated for future development. Any development, however, should at a minimum maintain the existing number of automobile parking spaces on the Island while at the same time, enhancing access to the Island by means other than the private car.

Balance Uses

· To encourage variety in the land uses and activities on Granville Island, by ensuring that there is a balance between the following groups of uses:

A diverse and balanced mix of uses is essential to the future success of the Island as a unique destination. For example, it is important that maritime-oriented uses and the arts and cultural uses continue to be present on the Island to enhance the quality of one's visit and provide a centre for these services and goods. However, the retail activities and most importantly, the public market generate the most revenue for sustaining the Island's financial viability. Planning must ensure that shoppers continue to be attracted to the Island.

Historically, residential has not been viewed as a use appropriate for Granville Island. An exception was made for the handful of floating homes located adjacent to the northeast corner of the Island. Staff and CMHC do not expect that additional residential development will be considered in the future for the Island.

Preserve and Enhance Open Space

· To retain all existing open green spaces.
· To maintain, where possible, views through to the water.

Grassed open space and views through to the water should be retained to "soften" the environment and enhance the quality of one's experience on the Island.

Ensure a Broad Means of Access

· To maintain a balance between development and access to the Island, recognizing that access for a full-range of vehicular and non-vehicular modes is important for the functioning of the Island.
· To favour pedestrians, bicycles, public transit, ferries and goods movement for future transportation improvements, as called for by the City's Transportation Plan.
· To provide access for people of all abilities.
· Recognize that Granville Island has a limited capacity for vehicles and parking.

· To maintain parking for motor vehicles on the Island at approximately the current level and where an increase in parking is contemplated, it will be accompanied by an increase in the proportion of visitors arriving by means other than the private automobile.
· To maintain the Anderson Street causeway as the only means for vehicular access to the island, except for emergency vehicles.

The viability of Granville Island will, to a great degree, rest on planning for providing access for an increased number of visitors. Automobile access will continue to be important for many Island activities, particularly the Public Market. Island tenants in particular have identified access and traffic congestion as key issues. Several factors lead to congestion, including the balance between development and parking supply, the circulation pattern on Island roadways and the availability of free versus pay parking.

During the second phase of the review of the Reference Document, staff will be identifying ways of ensuring that the Island can accommodate an increase in the number of visitors, including the development of off-peak (i.e. winter) and evening attractions. These increases will have to primarily rely on alternatives to the private automobile such as public transit and ferries. Nearby off-Island parking will also be considered to accommodate increases in visitors using their automobiles. However, attempts to do this in the past have met with resistance from nearby residents.

Ensure financial viability

· To consider the need to achieve a balance between those enterprises which generate market-rate income for the operation of the Island and those enterprises and activities which are charged lower rents so that they may locate on the Island.

Granville Island sustains itself through revenue generated on the Island and does not receive federal funding. While financial viability has been assisted by the reuse of empty buildings, the opportunities for such projects are diminishing as only a few buildings remain to be reused. Financial viability in the future will increasingly rely on rental income from Island tenants. Those which generate market-rate rents should be fostered, but also balanced with other activities such as arts and crafts producers which are charged lower rents.

Pursue inclusive decision-making

· To involve the general public in the consideration of new projects for the Island.
· To use the reference document for a consensual joint-review process involving the City and CMHC - Granville Island and outline a clear process for revision of development proposals.
· To amend the reference document with the mutual consent of City Council and CMHC - Granville Island.

Currently, most development proposals have required the amendment of the Reference Document and therefore, the involvement of Council. Once the Reference Document is amended and an approval process is endorsed by Council, City staff believe that the majority of future approvals will be by the Director of Planning or the Development Permit Board, for higher profile projects.

It is proposed that in the case of significant future development projects, particularly those which impact other Island businesses or the local community, there will be input from affected and interested parties.

Public Involvement

The preparation of these principles and objectives was preceded by three Open Houses in 1999 to generate ideas for the future planning of the Island. During April the draft principles were presented to the general public at an Open House and a Stakeholders meetings with representatives from Island merchants, the Granville Island Trust, the local community and nearby off-Island businesses. A meeting with the Island tenants and businesses was also organized to obtain input. These comments resulted in the redrafting of the principles and objectives. A summary of the comments is attached as Appendix `B'.

CONCLUSION

A revised reference document will ensure that the City, Granville Island - CMHC and those operating businesses and working on the Island are prepared to accommodate the expected growth in those shopping, visiting and working on the Island while at the same time ensuring that the character of the Island is respected.

Part two of this study will generate detailed revisions to the Reference Document for Granville Island. The preparation of these revisions will be guided by the overall principles and objectives recommended in this report. The key issues to be addressed in the part two of this study will be establishing an upper limit for the amount of development on the Island, an approach for access and parking for an increased number of Island visitors, and identifying the appropriate balance of uses and types of businesses for the Island.

-----

APPENDIX `A'
Page one of two

Principles and Objectives for the Reference Document for Granville Island

Maintain a Public Place

· To encourage uses and activities which serve a wide variety of publics.
· To encourage a variety of uses and activities on the Island which maintain daytime and evening activity.
· To encourage uses and forms of development which are pedestrian-oriented.
· To provide public access to (and along) the water's edge.

Retain and enhance character

· To identify an upper limit on the amount of floor space that can be developed on the Island.
· To foster development which stays within the footprints of existing buildings, but also allows for some minor additions to buildings.
· To ensure that building heights shall not exceed 55 feet and variations in building heights shall be encouraged.
· To ensure that new buildings and renovations use materials and forms that reflect the industrial character of the Island.
· To foster, where appropriate, the maritime experience of Granville Island.
· To favour locally-owned and operated independent businesses.
· To encourage the development of those arts, crafts and cottage industries where goods are produced on the premises and the production process is visible to the public.
· To sustain and enhance the environment.
· To maintain the soft separation between pedestrians and vehicular traffic so that pedestrians can use all open areas of the Island, including roads, pedestrian areas and parking lots, except for the Anderson Street causeway roadway.

Balance Uses

· To encourage variety in the land uses and activities on Granville Island, by ensuring that there is a balance between the following groups of uses:

Preserve and Enhance Open Space

· To retain all existing open green spaces.
· To maintain, where possible, views through to the water.

Ensure a Broad Means of Access

· To maintain a balance between development and access to the Island, recognizing that access for a full-range of vehicular and non-vehicular modes is important for the functioning of the Island.
· To favour pedestrians, bicycles, public transit, ferries and goods movement for future transportation improvements, as called for by the City's Transportation Plan.
· To provide access for people of all abilities.
· Recognize that Granville Island has a limited capacity for vehicles and parking.
· To maintain parking for motor vehicles on the Island at approximately the current level and where an increase in parking is contemplated, it will be accompanied by an increase in the proportion of visitors arriving by means other than the private automobile.
· To maintain the Anderson Street causeway as the only means for vehicular access to the Island, except for emergency vehicles.

Ensure financial viability

· To consider the need to achieve a balance between those enterprises which generate market-rate income for the operation of the Island and those enterprises and activities which are charged lower rents so that they may locate on the Island.

Pursue inclusive decision-making

· To involve the general public in the consideration of new projects for Island.
· Use the reference document for a consensual joint-review process involving the City and CMHC - Granville Island.
· To amend the reference document with the mutual consent of City Council and CMHC - Granville Island.

APPENDIX `B'
Page one of two

Summary of Comments Received on the Draft Principles and Objectives

Sources:

-Comment Sheets received from the general public at the Open House - April 12th
-Stakeholders Workshop - April 18th
-Meeting with Island Merchants and Employees - May 9th
-Letter from the False Creek Neighbourhood Association - May 26th

Maintain a Public Place

-although Granville Island is a major tourist destination, the uses and activities on the Island should be driven by the needs and interests of Vancouver residents because this will ensure that it is distinguishable from other destinations frequented by tourists.

Retain and Enhance Character

-not every building should be built to a height of 55 feet.
-some felt that there should be no upper limit on the amount of floor space permitted on the Island.
-the maritime character of the Island should be maintained.

Balance Uses

-recognize that the market is the anchor tenant of the Island and generates the most income.

Preserve and Enhance Open Space

-green space should be increased.

Ensure a Broad Means of Access

-access by the private automobile is important to ensure the continued success of the public market.
-public transit needs to be improved.
-traffic has a major impact on the adjacent residential community in False Creek.
-the Public Market has to compete with supermarkets which provide free parking.

Ensure Financial Viability

-commercial development needs to be fostered to support the Island.

APPENDIX `B'
Page two of two

Pursue Inclusive Decision-making

-tenants are important stakeholders in decision-making.
-the richness, diversity and subtlety of the Island is not easily captured by traditional planning processes.

* * * * *

pe000713.htm

Comments or questions? You can send us email.
[City Homepage] [Get In Touch]

(c) 1998 City of Vancouver