Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date: July 11, 2000
 

Author/Local: RWhitlock/7814
  RTS No. 1507
 

CC File No. 5304-1
  Council: July 25, 2000

TO: Vancouver City Council

FROM: Director of Current Planning

SUBJECT: CD-1 Rezoning - 395 West 5th Avenue [Lookout Emergency Aid Society]

RECOMMENDATION

THAT the application by John Currie, Architect, to rezone 395 West 5th Avenue (portion of Lot A [see 379895L], Block 11, DL 302, Plan 5832) from I-1 to CD-1, to permit 37 non-market housing units, 22 sleeping rooms for short-term shelter accommodation and a multi-purpose space usable for emergency accommodation, be referred to a Public Hearing, together with:

FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 by-law for consideration at Public Hearing, including:

(i) an amendment to the Sign By-law to establish regulations for this CD-1 site in accordance with Schedule B (I-1); and

(ii) an amendment to the Noise By-law to include this CD-1 site in the activity zone established in Schedule A.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of the foregoing.

COUNCIL POLICY

Community Development Plan for Mount Pleasant, approved October 1987; and
Industrial Lands Strategy (July 1994) and Industrial Lands Policies (March 1995).

PURPOSE AND SUMMARY

This report assesses an application on behalf of the Lookout Emergency Aid Society to develop 37 dwelling units of non-market housing for low-income singles and couples living outside the downtown, 22 sleeping rooms for short-term emergency accommodation and a multi-purpose space usable for emergency shelter purposes.

The few expressed concerns in the community focus on perceived conflicts with the industrial nature of the area, traffic and parking issues, and distance to local shops and services for residents of the facility. The facility itself will have little or no affect on traffic and parking, and shopping and affordable restaurants are located along Broadway and Cambie, within easy walking distance of the site.

The Director of Current Planning concludes this unique facility is badly needed, the location works well for its requirements and it will not unduly impact the local industrial area and therefore recommends that the application be referred to Public Hearing and be approved.

DISCUSSION

Housing Need: In the period 1999-2000, approximately 4,100 individuals were turned away from two of the existing shelters in the city. Work is underway to develop five shelters outside of Vancouver, two in the lower mainland and three elsewhere in the province.

Efforts have been underway since 1995 to find funding and an appropriate location for another shelter in the City of Vancouver. Reports for the Province of B.C. done in 1996 and 1998 identify the need for a shelter outside the downtown core. An extensive land search over several years identified a number of sites. Only the present site was strategically located, of suitable size and available for purchase. On this basis, the site was purchased and a rezoning application submitted.

Staff believe that such a specialized form of special needs residential facility in conjunction with related non-market housing will not serve as a precedent for other housing proposals, and that the over-riding critical need for the shelter outweighs the marginal impacts on the surrounding industrial area and industrial capacity.

Industrial Land Use Policies: The Community Development Plan for Mount Pleasant, the Central Area Plan, the Industrial Land Use Strategies and Policies and guidelines for Central Broadway call for protection of the Mount Pleasant I-1 industrial area for industry and business-serving operations. The location close to both the downtown and Central Broadway make it an important component in the overall industrial strategy.

Protection of industrial land resources has been an ongoing concern for the City for a number of decades. There is no question that industrial capacity will be cut back by the amount of industrial development offset by this development. However, as a "one off" this is felt to be a marginal loss that will not generally endanger the industrial base of the inner city. Beyond the question of capacity, the following other issues related to the industrial land use policies have been addressed [staff responses are indicated in italics]:

1. Concern that escalation of land values would lead to pricing industrial operations out of the area:

The land has been purchased by the City at prevailing industrial land values. The land will be owned by the City and used for non-profit purposes for at least 60 years and this will insure the project will not provide a catalyst for speculative pressures.

2. Concerns about the expectations of permanent residents for a quiet environment, resulting in pressure for industrial operations to limit noise and activity:

Housing Centre staff believe that the needs of residents of the non-market housing and shelter components are focussed on the basics of living such as food, shelter, clothing, obtaining the skills and services to provide for themselves economically, rather than on the residential amenities of the area. They are likely to feel more comfortable in an industrial area than in a purely residential area.

3. Concern about the expectations for normal neighbourhood infrastructure, such as shops and parks:

The project is designed for singles and possibly couples without children and infrastructure requirements will be considerably less. The site is well located close to social and health services, modest-priced restaurants and transit. Jonathan Rogers Park, South False Creek and the Southeast Shore are within easy walking distance. As well, the project features an attractive internal courtyard for residents' enjoyment.

Residential Use Not Unique to Area: Residential use is not unique to the Mount Pleasant industrial area, particularly in the area between 5th Avenue and Broadway where a number of houses remain in the area as a remnant of residential zoning which existed prior to the 1960s. Zoning changes resulting from Council's adoption of the Community Development Plan gave formal legal status to these existing residences, upon the basis that normal residential expectations for quiet enjoyment would not apply. Planning staff believe this project can be permitted under the same "peaceful co-existence" policy.

Density and Height: The proposed floor space ratio [FSR] of 2.75 and height of 14.0 m [46 ft.] are both less than the development limits permitted in I-1.

Form of Development [Note Plans: Appendix D]: The street-wall form of development is seen to be compatible with the surrounding industrial area.

Community Response: Feedback from notification letters, a rezoning sign and an open house held on June 21, 2000 has been mainly favourable. Most concerns relate to an existing parking shortage in the area, on which the proposal will have little or no effect. A number of questions were raised about resident activity patterns, loitering and client referrals. A member of Lookout indicated that residents would not loiter around the site and those needing shelter would largely be referred by other agencies. Very few residents would simply come in off the street.

One resident of the area specifically wrote and requested that a mechanism for monitoring operations be established. As this viewpoint was echoed at the open house by others who live and work in the area, staff have recommended the establishment of a community liaison contact to work with neighbours and to ensure an immediate response to problems if they occur. Lookout is supportive of this approach.

CONCLUSION

The Director of Current Planning believes that the proposed emergency shelter and related non-market housing will serve an urgent need in this area and represents a unique circumstance that will have little negative impact on the local industrial area or general industrial capacity. It is recommended that the application be referred to Public Hearing, and that the application be approved.


- - - - -

APPENDIX A

DRAFT CD-1 BY-LAW PROVISIONS

Use

Density

Height

Parking and Loading

Acoustics

APPENDIX B
Page 1 of 2

PROPOSED CONDITIONS OF APPROVAL

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by John Currie, Architect, and stamped "Received City Planning Department" April 17, 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:

APPENDIX B
Page 2 of 2

(c) THAT prior to enactment of the CD-1 By-law, the registered owner shall:

APPENDIX C
Page 1 of 2

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development This 1 122.09 m¾ (12, 078 sq. ft.) site is comprised of part of a larger parcel on the northeast corner of West 5th Avenue and Yukon Street. The site has a frontage of 30.2 m (99 ft.) and a depth of 37.18 m ( 122 ft.). A portion of the site is presently occupied by a two-storey frame structure with an auto shop at the lower level and studio level and studio spaces at the upper level. The remainder of the site is used for parking.

The City has purchased two lots, Lot A and the adjoining Lot 13. Only a portion of Lot A (30.2 m/99 ft.) will be used for the proposed non-market housing and shelter development. The remaining portion of the property acquisition will continue to zoned I-1 and will be leased by the City for industrial purposes or it will be sold.

The site is on the edge of the Mount Pleasant I-1 industrial area, which Yukon Street serves as the westerly edge. The area is characterized by one- and two-storey light industrial and service-industry buildings. The area west of Yukon Street is zoned C-3A. Immediately west of the site is the ICBC Claim Centre and Vancouver Police Department head office.

Proposed Development: The project will provide 22 short-term rooms and a multi-purpose space (for 15 to 20 people) to provide short-term, emergency accommodation for the homeless, as well as kitchen and dining facilities. This emergency shelter component is particularly important during the winter months. The building will also provide 37 units of longer term non-market housing for low-income singles and couples living outside the downtown core. The average unit size will be 35.3 m¾ (380 sq. ft.). Three of those units will provide accommodation for persons with physical disabilities. Preference will be given to the residents of the shelter component of the development for occupancy of the long-term housing, thus providing the prospect of stable housing for up to two years.

One of the objectives is to replace an inadequate temporary facility in the Marpole area which is no longer available to the Society and which provides emergency shelter in the winter. Another objective is to provide a permanent shelter facility outside of the downtown area. The location has been chosen to have the least impact on the neighbourhood, yet to be easily accessible by public transportation and to support services. Capital funding for the project will be provided by B.C. Housing Management. Operating funds will come from B.C. Housing, the Vancouver-Richmond Health Board and other government agencies. The site is owned by the City of Vancouver.

APPENDIX C
Page 2 of 2

The proposed project consists of four storeys plus basement, incorporating amenity space on the ground floor. An internal courtyard is proposed, which provides secure outdoor amenity for residents. Parking and loading is accessed from the existing lane. Twelve underground parking spaces are provided.

APPENDIX E
Page 1 of 6

ADDITIONAL PUBLIC AND OTHER INPUT

Public Input A notification letter was sent to nearby 384 property owners on May 4, 2000 and a rezoning information sign was posted on May 12, 2000. Letters have been received from 11 organizations and societies and 4 individuals in support of the project. Two letters of opposition and a few phone calls have been received in opposition, mainly focused on the inappropriateness of the use in the area, parking problems in the area and the lack of nearby shopping and local facilities.

On Wednesday, June 21, 2000, Lookout sponsored an open house. Seventy-three signed attendance sheets, and 47 people returned response forms. Responses indicated that many worked in close proximity to the site, and a few lived within 4 blocks of the project. Overall, 39 people indicated support for use of the site for housing, and 4 did not support the proposal.

Many individuals indicated serious parking problems in the area, particularly with larger employers such as the Vancouver Police Department. Staff note that the proposed shelter and transition housing will make little difference to this existing situation.

One individual acknowledged the social need for the project, but sought assurances on four points, ideas that were echoed by several who work or live in the area in attendance at the open house:

1. That the City require and enforce that residents be properly supervised by the Lookout Emergency Aid Society or any future operator of the home at all times;
2. That three meals per day be provided for all residents on site, and that further rezoning not be permitted for support facilities such as food banks that will encourage a ghetto to develop in the area;
3. Ensure that any development would not allow the uncontrolled solicitation for drugs and other unenforced criminal activity such as now exists in parts of the Downtown Eastside, particularly at Main and Hastings; and
4. That this be an isolated rezoning and not a new trend for the area.

Staff have addressed the precedent issue in the report. In response to neighbours concerns, staff recommend a condition that Lookout formally establish a community liaison committee and appoint a representative to serve as a liaison with the community to ensure that the operation does not create the problems identified by several people in the area.

Comments of the General Manager of 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.

APPENDIX E
Page 2 of 6

Comments of the Manager of the Housing Centre: The following comments have been received:

The rezoning is supported. The purpose of this project is to serve people outside the Downtown Core. Research by the Housing Centre confirms that there is a group of homeless people who are centred in the Broadway Corridor area and who will not access services in the Downtown Core.

An extensive site search has been undertaken for this project. The criteria include: proximity to services (social and health services, inexpensive food), good public transportation accessibility, price supportable by BC Housing's program, and away from schools and single-family residential neighbourhoods. The site meets this criteria. As noted in the body of the report, there will be minimal, if any, impacts on the industrial area. The location at the edge of the industrial area and in proximity to the Police station is also advantageous.

Comments of the Seniors Committee: The following resolution was received from the Seniors Advisory committee:

Vancouver/Richmond Health Board: The Health Board has reviewed this rezoning application and requests the following responses:

1. the City's acoustical criteria shall form part of the Zoning By-law, and an Acoustical Consultant's report shall be required which assesses noise impacts on the site and recommends noise mitigating measures;

2. if a Community Care Facility (adult or child care) is proposed, plans will have to be submitted for approval to C.C.F.L.; and

3. the Noise Control By-law requires amendment at time of enaction of Zoning By-law to include this CD-1 in Schedule A.

Environmental Protection: No requirement.

APPENDIX E
Page 3 of 6

Sign Requirement: If the application is approved at Public Hearing, an amendment to the Sign By-law is needed at the time of enactment to establish regulations for this CD-1 site in accordance with Schedule B (I-1).

Public Benefit Provides much needed shelter and non-market housing. As project is made possible by Provincial funding, neither Development Cost Levies or Community Amenity Contributions apply.

Urban Design Panel Comment The Urban Design Panel reviewed this proposal on June 14, 2000 and supported the proposed use, density and form of development and offered the following comments:

"EVALUATION: [8 - 0]

Full Support - Rezoning and Form of Development

… Introduction:

The Rezoning Planner, Rob Whitlock, introduced this rezoning application which would replace the existing I-1 Industrial zone with a CD-1 Comprehensive Development district zone, to provide an emergency shelter and transition building on the northeast corner of West 5th Avenue and Yukon Street. He noted there were various industrial and business-serving operations, including auto repair and supplies. Mr. Whitlock advised this non-marketing housing project would feature 37 short-term stay units [sleeping rooms] to house homeless persons, and 37 units for those requiring longer term housing. This facility would include a kitchen/dining area, lounges and a multi-purpose room. Twelve underground parking stalls are proposed with access from the north lane. Mr. Whitlock confirmed that the height of 13.5 m [44 ft.] and an FSR of 2.75 are well within the I-1 Industrial zoning limits [maximums: 18.3 (60 ft.) and 3.0 FSR, respectively].

Mr. Whitlock advised the most prominent office building to the southeast of this proposed project was occupied by an ICBC Claims Centre, as well as the Vancouver Police Department's Headquarters. He advised there was a minor component of recently-constructed artist live/work units between Yukon and Cambie Streets, as well as approximately 100 dwelling units in the adjoining I-1 Industrial area, as well as various commercial ventures to the west of this site, zoned C-3A.

In conclusion, Mr. Whitlock introduced Ms. Anita Molaro, to present the form of development details.

Ms. Molaro confirmed this 4-storey building with underground parking, having the main entrance located off Yukon Street, and providing handicapped access off West 5th Avenue. She referred to Mr. Whitlock's description of the long term non-market units [for durations of up to 1 year], adding that these units would be articulated with balconies. Ms. Molaro confirmed that the 37 short-term rooms would be located at the rear of the building on the Main and 2nd Floors - some facing the lane, others would be looking into the courtyard, and that this project would be situated around an internal 50 ft. x 50 ft. courtyard, providing secure outdoor amenity space for the residents.

APPENDIX E
Page 4 of 6

Ms. Molaro described this project as a simple building to reflect the industrial character of the neighbourhood with store-front openings to the main floor amenity and office areas, and that the proposed materials were concrete at the base of the building, metal cladding and brick [blending in with the nearby ICBC/VPD building].

Ms. Molaro stressed the special need for this type of housing, advised that staff supported the overall form of development and architectural expression, and asked Panel's advice on the following:

1. overall massing impact and architectural expression, which was well within the adjacent massing context I-1 zoning;
2. proposed materials; and
3. change of use.

In response to Panel's query regarding the change of use, Mr. Whitlock stated this rezoning was for a very specialized need of housing and would not serve as a precedent, nor impede on operational limitations in industry. He went on to explain that this proposed "Lookout" facility would replace the one in Marpole, situated on BCBC property, who now wish to develop their land.

When the proposed location was questioned, i.e., why not the Downtown Eastside - Mr. Currie noted this facility would house people from the temporary "Lookout" shelter in Marpole who would not wish to relocate to the Downtown eastside and the Society felt this to be an appropriate alternate location.

Mr. Whitlock confirmed the property is owned by the City of Vancouver and this project would proceed with the support of the City's Real Estate Division; the land would be leased to, and operated by, "Lookout".

… Applicant's Opening Comments:

Mr. Currie referred to their difficult search for an appropriate location in Vancouver and felt this industrial edge which was well-serviced by transportation, available to outreach services on Broadway, close to downtown, as well as various take-out restaurants, indicated this to be an appropriate location. He concurred this was a complex use to insert in a residential area due to the clientele but felt having the VPD in close proximity would be an asset, and referred to ICBC's full support for this facility.

Mr. Currie noted that their choice of materials had been dictated by the brick ICBC/VPD building and the industrial character in the area.

He described the sleeping rooms as being 100-125 sq. ft. and the long-term units in the range of approximately 350 sq. ft., contained in a repetitive format. They had attempted to add a residential-like element by the use of large glass openings and small balconies, punched windows for the sleeping rooms in the back of the building; the ground floor amenity space would include offices, lounges, kitchen/dining services, located around an internal courtyard which would provide secure outdoor space for the residents. Their intent was to keep the long-term and sleeping room areas separate, with a common lobby; however, these plans were schematic at this point.

APPENDIX E
Page 5 of 6

In conclusion, Mr. Currie hoped the presentation by the Rezoning Planner, Development Planner, the review of the model and posted drawings had provided the Panel with a level of comfort regarding this proposed rezoning and form of development, without re-referral to Panel for the Development Application.

In response to various questions from the Panel, Mr. Currie confirmed that the maximum FSR and allowable height had not been utilized due to the proposed 4-storey wood frame structure, with concrete base and didn't need to utilize the maximums. He confirmed there were no setbacks in I-1 zones, and the building line would be 4 ft. from the property line on Yukon Street which had been pulled back to allow for the 2 ft. balcony projections.

… Panel's Comments:

The Panel was unanimous in its approval of the proposed use, location, form of development, liked the simplicity of the project, proposed materials, general treatment, and encouraged this project be expedited.

The Panel was also unanimous in their concern for the internal courtyard scale, i.e., depth, height, lack of sunlight, shadowing, perhaps requiring a stronger sense of connection to the outdoors by opening up the lobby with more glazing, enabling the residents to see out to the street. The majority of the Members suggested that in order to increase the courtyard size, the building could be pushed out to the maximum building line in order to maximize the building footprint. Some Members noted that although the balconies provide this project with some articulation, reducing the depths of these balconies from 4 to 2 ft. would add to the courtyard. They also felt the roof line and interior size of the building could be articulated more.

A Member felt the choice of materials was too close to that of the ICBC/VPD building and that this project should have a more residential appearance. Perhaps some outdoor seating at the Yukon Street sidewalk could be an added amenity. Others felt that although this was an industrial area, the proposed use was not and therefore an effort should be made to present a more residential look on the exterior, suggesting landscaping be incorporated with the architecture in the form of trellises. A stronger elevation from a landscape point of view was also suggested.

The Chair reiterated the Panel's unanimous support for the use and massing, but stressed concern about the courtyard size. Although the Panel was supportive of the bldg form, they suggested some articulation of the interior roof line; the Members were split on increasing the courtyard size vs retaining some of the exterior, i.e. the balconies. The Chair noted his support for the retention of the balconies and the use of landscape elements to reinforce the residential character of this facility, even though it is in an industrial area. The Panel applauds the proposed quality of materials. With respect to a re-submission, the Panel was split.

… Applicant's Response:

Mr. Currie confirmed the Panel's concern about the courtyard size were valid and appreciated their alternative suggestions. However, as the sleeping rooms face the back and their adjacency to the courtyard, the privacy of those residents had to be considered. He also confirmed that although it may not show well in the model or the drawings, their intent was to make that visual connection through from the street to the courtyard.

APPENDIX E
Page 6 of 6

The Chair called for the vote and advised the Application he had full support of the Panel on the rezoning."

Environmental Implications This project is intended to fill a critical housing shortage for individuals and couples who rely on public transportation or walking. Locationally it is well situated to serve its potential population and will benefit the environment to the extent that the client group will need to travel smaller distances.

Social Implications: This proposal adds much needed shelter and related housing in a location where it will serve the intended population.

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 supports the recommendation of the Director of Current Planning.

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address 395 West 5th Avenue
Legal Description Lot A (see 379895L), Block 11, District Lot 302, Plan 5832
Applicant John Currie, Architect
Architect Same
Property Owner City of Vancouver
Developer Lookout Emergency Aid Society

SITE STATISTICS

  GROSS DEDICATIONS NET
SITE AREA 1 122.09 m¾ (12,076 sq. ft.) 45.34 m¾ (488 sq. ft.) 1 076.8 m¾ (11,590 sq. ft.)

DEVELOPMENT STATISTICS

  DEVELOPMENT PERMITTED UNDER EXISTING ZONING PROPOSED DEVELOPMENT
ZONING I-1 Industrial CD-1 Comprehensive Development
USES Industrial, industrial-service, office Dwelling rooms, Special Needs Residential Facility - Group Living
DWELLING UNITS Dwelling unit for a caretaker, Dwelling Units existing as of and used continuously since October 25, 1988 22 short-term rooms and multi-purpose space for emergency shelter plus 37 units for longer-term living
MAX. FLOOR SPACE RATIO 3 2.75
MAXIMUM HEIGHT 18.3 m (60 ft.) 14.0 m (46 ft.)
NO. OF STOREYS n/a 4 plus basement
PARKING SPACES Parking By-law Dwelling units pursuant to Parking By-law; SNRF: one space for every 16 rooms
FRONT YARD SETBACK None required None
SIDE YARD SETBACK None required None
REAR YARD SETBACK 3.1 m (10 ft.)except where there is a lane 3 m (10 ft.)

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