Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date: July 10, 2000
 

Author/Local: LChallis/7135
  RTS No. 01593
  C.C. File No. 5304-1
  Council: July 25, 2000

TO: Vancouver City Council

FROM: Director of Current Planning in consultation with the Director of City Plans

SUBJECT: CD-1 Text Amendment - 3003 Grandview Highway

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On April 24, 1990, Council enacted CD-1 By-law No. 6654 and adopted the "Still Creek CD-1 Guidelines", both pertaining to a number of sites within the Grandview/Boundary Industrial area including the subject site.

On July 22, 1999, Council adopted the "Highway Oriented Retail (HOR); Interim Rezoning Policies and Guidelines: Grandview /Boundary Industrial Area".

PURPOSE AND SUMMARY

This report assesses an application to permit highway oriented retail uses on the site shown on the map on Page 3. The proposed rezoning would take an area already zoned CD-1 and assign new uses and regulations.

In July 1999, Council adopted policies and guidelines for sites along the Grandview Highway frontage between Renfrew Street and Boundary Road to allow for large scale retail uses. The application proposes to reuse an existing building (currently Danier Leather's warehouse, distribution centre and retail store) as three separate retail units. The proposal generally conforms to Council's policies and guidelines. Enhancements to the portion of Still Creek which runs through the site are recommended as conditions of approval.

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

DISCUSSION

Use: The site is presently developed with an approximately 3 600 m¾ (38,750 sq. ft.) building which operates as a warehouse, distribution centre and retail store for Danier Leather. The application proposes to reuse the existing building as three separate retail units for the sale of clothing. The HOR rezoning policy requires an impact assessment for retail uses which include clothing. The applicant has undertaken a retail impact assessment which indicates that the proposal will not lead to over-saturation of the market and will increase the number and variety of retail clothing business within the trade area. Real Estate staff find this assessment acceptable and, on this basis, Planning staff support the proposed use. Additional comments on the retail impact assessment are provided in Appendix C.

Density: The proposed overall density of 0.37 FSR (floor space ratio) is significantly less than the recommended maximum of 0.60 FSR for retail use. Each of the three retail units will have a minimum retail floor area of more than the 929 m¾ (10,000 sq. ft.) as recommended in the HOR rezoning policy.

Height: The HOR rezoning policy recommends a maximum height limit of 12.2 m (40 ft.), relaxable to 18.3 m (60 ft.) for mixed use development. The majority of the existing building is within the maximum 12.2 m height limit, except a portion on the northern elevation which is approximately 14.3 m (47 ft.) in height. Staff support the additional height which is located towards the rear of the site, away from the Grandview Highway frontage, and already exists.

Setbacks: The Zoning and Development By-law requires a landscape setback of 12.1 m (40 ft.) for I-2 properties fronting on Grandview Highway but does not have a similar requirement for sites zoned CD-1. The HOR design guidelines recommend that all properties fronting on Grandview Highway between Boundary Road and Renfrew Street should provide the 12.1 m landscape setback. Surface parking is not permitted in the landscape setback. On this site, the building would be setback 27.4 m (90 ft.) from the property line and staff recommend a 12.1 m landscape setback which can be provided with the removal of one parking stall along the west property line.

Form of Development: The HOR design guidelines specify that developments should improve and enhance the quality of the public realm through high quality architectural building expression, careful site planning, public and private landscaping, and appropriate vehicular and pedestrian circulation. Recognizing that the proposal is for reuse of an existing building, staff have proposed conditions of design development to address the HOR design guidelines where feasible. In particular, staff recommend that the building reflect a more industrial character, that entries be more visible and transparent, and that weather protection and lighting be provided and integrated into the site (Conditions of Approval: Appendix B).

Still Creek: Still Creek is a significant watercourse and has been identified in the Greater Vancouver Regional District (GVRD) as part of the Green Zone. The site is presently regulated by a CD-1 By-law which includes Still Creek protection policies. The HOR rezoning policy recommends that the Still Creek protection policies should continue to apply to individual sites. A portion of the creek which runs through the site has been daylighted and landscaped along its edge. The HOR rezoning policy notes that it is the City's intention to fully daylight the creek and provide pedestrian/cycle access along the creek edge in conjunction with other landscape/public open space amenities. A key criterion in assessing proposed developments is the ability to secure this amenity.

To meet City objectives, staff recommend the following enhancements to the Still Creek corridor as conditions of approval (see Appendix B):

… revisions to the parking area to ensure compliance with the Greater Vancouver Sewage and Drainage District (GVSDD) 12.2 m (40 ft.) easement through the property;
… naturalization of the triangle-shaped piece of land south of the Creek;
… retention of existing vegetation along the Creek;
… widening of the green edge to provide a 3.05 m landscaped setback along the north side of the Creek;
… provision of a public right of way on the north and south sides of the Creek, to provide the potential of future public access in the form of a continuous trail as part of the Still Creek Greenway.

Staff also recommend a public right of way along the east side of the site to provide a future connection between the Still Creek Greenway, the Central Valley Greenway and areas to the north.

The applicant accepts these proposed conditions of approval.

Traffic and Parking: The HOR rezoning policy stipulates that a Parking and Traffic Study should accompany a rezoning application. The study submitted with this application indicates that:

… the proposal will not significantly impact through-traffic movement on Grandview Highway;
… access to the site should continue to be available from both the east and west directions;
… the proposed parking supply of 87 spaces is sufficient.

The HOR rezoning policy recommends that parking requirements should be based on the Parking By-law requirements for grocery stores, but if the use is furniture or similar type of retail, the lower parking standard for office and retail uses may apply. Engineering Services recommends that for individual retail units of less than 2 000 m¾ (21,529 sq. ft.) the parking requirement should be at the rate required for office and retail use and for individual units of 2 000 m¾ (21,529 sq. ft.) or greater the parking standard for grocery store be required. The rezoning application proposes units of less than 2 000 m¾, so the requirement for office and retail use would be applied and 67 parking spaces would be required.

Environmental Considerations: An objective of the HOR guidelines is to maximize permeable surfaces. The Still Creek Guidelines also note that parking lots are a source of potentially harmful runoff and that applicants should limit the potentially negative impacts of parking lot development. The proposal has increased the non-permeable surface by extending the parking area towards the east property line. Staff recommend that the eastern edge of the parking area remain in its current location to reduce the size of the parking lot. This is feasible because the parking lot can be reconfigured as the application proposes 20 parking spaces in excess of the recommended parking requirement. Oil interceptors are also recommended to provide greater control on inputs to the Creek.

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

CONCLUSION

Staff support the proposed rezoning which generally meets the criteria for rezoning sites to CD-1 for highway oriented retail use. Staff recommend that the application be referred to Public Hearing, subject to the proposed conditions of approval presented in Appendix B.

- - - - -

DRAFT AMENDMENTS TO CD-1 BY-LAW NO. 6654

Use

Condition of Use

Density

Height

Setback

Parking and Loading

PROPOSED CONDITIONS OF APPROVAL

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by Opus Building Canada Inc., and stamped "Received City Planning Department, March 1, 2000", 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:

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

Where the Director of Legal Services deems appropriate, the preceding agreements are to be drawn, not only as personal covenants of the property owner, but also as Covenants pursuant to Section 219 of the Land Title Act.

Such agreements are to be registered in the appropriate Land Title Office, with priority over such other liens, charges and encumbrances effecting the subject site as is considered advisable by the Director of Legal Services, and otherwise to the satisfaction of the Director of Legal Services prior to enactment of the by-law; provided, however, the Director of Legal Services may, in her sole discretion and on terms she considers advisable, accept tendering of the preceding agreements for registration in the appropriate Land Title Office, to the satisfaction of the Director of Legal Services, prior to enactment of the by-law.

The Preceding agreements shall provide security to the City including indemnities, warranties, equitable charges, letters of credit and withholding of permits, as deemed necessary by and in a form satisfactory to the Director of Legal Services.

The timing of all required payments shall be determined by the appropriate City official having responsibility for each particular agreement, who may consult other City officials and City Council.

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: The site consists of one legal parcel with an area of 9 550 m¾ (102,802 sq. ft.) and is located on the north side of Grandview Highway between Renfrew and Rupert Streets. The site has a frontage of 91.4 m (300 ft.) and a depth ranging from 94.9 m (311 ft.) along the west to 113.8 m (373 ft.) along the east. The site, which is regulated by the Still Creek CD-1, is presently occupied by a one-storey building used for warehouse, distribution and retail use with surface parking for 60 vehicles. A daylighted portion of Still Creek runs through the southeast corner of the site.

Land east of the site is also covered by the Still Creek CD-1 and is developed primarily with one-storey commercial buildings. Further east is a CD-1 zoned site developed with a Real Canadian Super Store. West of the site is zoned I-2 with a mixture of retail, industrial and service uses. North of the site is the BNR railway right of way which will be redeveloped for the SkyTrain extension. South of the site is zoned RS-1S and developed with 1‡ to two-storey one family dwellings - some with secondary suites.

Proposed Development: The proposed rezoning would allow the reuse of an existing building for highway oriented retail use. A small portion of the building at the southwest corner would be removed. The remainder of the building would be divided into a maximum of three retail units. The proposal includes 87 surface parking spaces located primarily along the eastern side of the site.

Retail Impact Assessment: Real Estate Services staff reviewed a retail impact assessment of apparel retailing (the Study), dated March 2000 and prepared by Harris-Hudema for the applicant, and found the methodology and analysis reasonable and acceptable.

In summary, the Study, based on quantitative demand analysis, identifies a shortage in the local trade area (bounded by Commercial/Victoria Drives to the west, Kingsway to the south, Willingdon Avenue to the east and Burrard Inlet to the north) of apparel retail space of about 25 percent of warranted space. The proposed retail project would add 18 percent of space. Due to space shortage, leakage of retail spending has been leaving the area for other Vancouver and Burnaby shopping areas. Some of this leakage is expected to be recaptured by the proposed additional retail space. The proposed retail project is estimated to draw about four percent of current sales from existing retailers in the local trade area, and in the context of the greater trade area, inclusive of the City and part of Burnaby, one or two percent of current sales. Sales recaptured from Pacific Centre and Oakridge are expected to be less than one percent individually; and while negative impact is minimal, the amounts are significant for the proposed project due to the very large sales volumes in Pacific Centre and Oakridge. The low percentages indicate that average negative impacts to existing apparel retailers are expected to be marginal.

On the question of whether there will be any closure impact on small apparel retailers in the local trade area, the Study analyzed price samples of apparel goods, and the analysisindicated that small existing retailers in the area are price competitive. The consultant concluded that the proposed additional retail space will not likely cause closure of existing smaller apparel retailers. This part of the Study is not rigorous but is the best that any consultant can be expected to perform. A thorough supply analysis would require detailed cost and profit data that are confidential to retailers, hence difficult if not impossible to obtain. Finally, the consultant offered the opinion that the proposed project is a specific event and not a trend in the retail industry.

Social Implications: There are no major positive or negative social implications to this proposal. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

APPENDIX D

COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES
AND THE APPLICANT

Public Input: On March 20, 2000 a notification letter was sent to 236 nearby property owners and on March 31, 2000, a rezoning information sign was posted on the site. On April 5, 2000, the applicant sponsored an Open House which was attended by two members of the public. There have been no concerns raised regarding this application.

Comments of the City Engineer The City Engineer has no objection to the proposed rezoning, provided that the applicant complies with conditions as shown in Appendix B.

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

"While we are supportive of the objective of maximizing permeable surfaces, the staff recommendation that the parking lot remain in its current location will have detrimental impacts on the retail nature of this site, given that we have already agreed to the elimination of several parking stalls along the south side of the building.

We request that this recommendation be deleted so as to permit the parking lot to be reconfigured as illustrated in the attached plans."

"The applicant requests the deletion of:

Appendix B, Item (b)(xv):

… The requirement for a double row of streets will undermine the visibility and viability of the proposed retail areas. We are in agreement with the addition of a single row of street trees, additional tree planting along the north side of the Creek, and the addition of natural vegetation to the triangle on the south side of the Creek. This will present a heavily vegetated, well-treed appearance from Grandview Highway;

Appendix B, Item (c)(i):

… The requirement to underground the new utilities for this existing building will be of no public benefit, as the utilities are located behind the building and not visible from Grandview Highway, with the BNR right-of-way immediately to the north."

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address 3003 Grandview Highway
Legal Description Lot 1, South part of SE º of Section 36, Town of Hastings Suburban Lands, Group 1, N.W.D., Plan 8464
Applicant Brook Development Planning Inc.
Property Owner/Developer DCD Management Ltd.

SITE STATISTICS

  GROSS DEDICATIONS NET
SITE AREA 9 550 m¾ (102,802 sq.ft.)   9 550 m¾ (102,802 sq.ft.)

DEVELOPMENT STATISTICS

  DEVELOPMENT PERMITTED UNDER EXISTING ZONING PROPOSED DEVELOPMENT RECOMMENDED DEVELOPMENT (if different than proposed)
ZONING CD-1 CD-1  
USES Manufacturing, Service, Transportation and Storage, Utility and Communication, and Wholesale Uses; Accessory Retail Use Manufacturing, Service, Transportation and Storage, Utility and Communication, Wholesale Uses and Retail Uses (not including Grocery Store),
Accessory Uses 		 
MAX. FLOOR SPACE RATIO 3.00 FSR 0.37 FSR  
MAXIMUM HEIGHT 18.3 m (60 ft.) 14.3 m (47 ft.)  
SETBACK   11.0 m (36 ft.) along Grandview Highway 12.1 m (40 ft.) along Grandview Highway
PARKING SPACES Per Parking By-law 87 parking spaces Retail units < 2 000m¾ per Parking By-law section 4.2.5.1
Retail units > 2 000 m¾ per Parking By-law section 4.2.5.3

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