Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Vancouver City Council

FROM:

Director of Current Planning in consultation with the General Manager of Engineering Services

SUBJECT:

Burrard Landing - Major Planning Issues

 

RECOMMENDATIONS

Appendices A-E on file in the City Clerk's Office.

CITY MANAGER'S COMMENTS

The issues outlined in this report deal with some fundamental changes in the Burrard Landing CD-1 zoned area. Part of the site is proposed for a new Trade and Convention Centre which will require a full public review process, and rezoning by City Council. The balance of the site is now the subject of a rezoning application. Therefore, it is suggested that Council deal specifically with only the key issues on the lands under rezoning application (the proposed sites).

Accordingly, the City Manager recommends approval of A, B and D. Recommendation C should not be approved until more information is provided on proposals for a Trade and Convention Centre, and Recommendation E is not supported.

There is one very significant issue in the report which suggests options to deal with residual density if the Convention Centre is built.

This Burrard Landing area was rezoned in late 1996 and Council considered the density matter in detail. Density transfer from Burrard Landing may not be appropriate since it is a newly zoned area - if trade and convention facilities expansion had been part of the1996 rezoning there would be no transfer of density issue. There is no clearly articulated public objective to justify density transfer, and the impact on policies, such as Heritage Density transfer may be significant.

Therefore, the City Manager does not support RECOMMENDATION E, but instead suggests approval of the following:

F. THAT Council not support any density transfer from Burrard Landing and further, that any moving of the density must be done within the Burrard Landing CD-1 bylaw area (Bylaw No. 7679).

COUNCIL POLICY

Relevant Council policy includes:

· The Coal Harbour Policy Statement approved in June, 1990;
· The Coal Harbour Official Development Plan (CH ODP) approved in November, 1990;
· The Burrard Landing CD-1 (363) By-law No. 7679, Guidelines and Form of Development approved in November, 1996;
· The Central Area Plan approved in December, 1991; and
· General Policy for Higher Buildings approved in May, 1997.

SUMMARY

Marathon Developments, the owner of the Burrard Landing site (see map below) wants to make major changes to the approved zoning because they wish to take advantage of current hotel and mixed-use development opportunities and contend that the office component of the previously approved scheme will not be economically viable for development except overa long term. Their rezoning application raises several key planning issues and will require changes to the CH ODP as well as the existing Burrard Landing CD-1 zoning and form of development.

In summary, these key planning issues are:

PURPOSE

This report seeks Council direction on key planning issues raised by an application on behalf of Marathon Developments Inc. to amend the Coal Harbour Official Development Plan (CH ODP) and the approved CD-1 zoning and form of development of Burrard Landing (sub-area 1)in Coal Harbour. With direction on these issues, the applicant can prepare final rezoning submission documents for staff and public review, leading to a report to refer the rezoning application to Public Hearing.

BACKGROUND

Burrard Landing (see map below) was rezoned in 1996, having been initially zoned CD-1 in 1993. The 17 ha ( 42 acre ) site contains four development parcels, a street and pedestrian system, the Arts Complex facility and site, a waterfront park and two major public open spaces. The largest development precinct - sub-area 1 - is intended as a centre for major office use, with associated retail/ service uses to animate street edges and provide pedestrian interest at grade. This includes three of the development parcels. A major public plaza is located as a central focus for this sub-area, linked by pedestrian crossings to the downtown and adjacent waterfront. The other development precinct - sub-area 2 - is intended for hotel use with a commercial marina, seaplane terminal and a retail-lined waterfront walkway. The area also includes a major portion of Harbour Green Park, the shoreline works of which are now under construction. Park completion is expected by 2002.

No development permits have been approved to date, although preliminary exploration is underway regarding an alternate site for expansion of the Trade and Convention Centre (TCC) on sub-area 2 adjacent to the waterfront.

SITE CONTEXT

DISCUSSION

The developer's proposed changes include:

Hotel and Live/ Work Use: Currently the zoning allows only commercial office and retail/service uses within sub-area 1, and hotel use is only permitted in sub-area 2, adjacent to the waterfront. Residential use is not permitted in Burrard Landing, being considered incompatible with major office development and limited to other Coal Harbour development areas west of Thurlow Street. The original intent was to concentrate commercial office uses in one large precinct close to transit services and the downtown. The applicant wishes to allow hotel and new live/ work uses by reducing office commercial use currently permitted in sub-area 1, as follows:

Sub-area 1

Maximum Floor Area
(in m²)

  

Use

Current Zoning

Applicant's Proposal*

Office

139 500

23 600

Hotel/ Office

N/A

75 000

Retail Service

3 665

3 665

Live/ Work

N/A

21 400

Totals

143 165

123 665

*NOTE: These are approximate amounts only and may be subject to adjustment at the rezoning stage.

Staff are supportive of this conversion and preliminary talks suggest the downtown business community will also be supportive.

Generally in downtown office locations, conversions from office use to hotel have been seen as reinforcing of the tourism and business function of the CBD.

Regarding live/work, the supposition is that live/work use, while admittedly intruding residential into the CBD, would not actually foreclose commercial office opportunities. Indeed, by fostering high tech uses (which tend to be supported by live/ work arrangements), the proposal may foster the one kind of commercial office activity that is fast growing to select a downtown rather than suburban location. This will likely spur take-up of other office space nearby. This theory is supported by staff in principle, but needs to be checked and impacts on existing office capacity need to be better understood through a proper office supply impact study, as called for in the Central Area Plan.

Form of Development Changes: Currently, the approved form of development for Burrard Landing consists of four towers, three of which are intended for office use and located on sub-area 1, and the other intended for hotel use located adjacent to the waterfront on sub-area 2 (see Appendix A). The three towers on sub-area 1 are arranged around a central public open space, and step up in height from the lowest at the Cordova/ Thurlow corner (Tower2B) to the highest at the Cordova/ Burrard corner (Tower 2A). The three towers are relatively bulky with floorplates ranging from about 1 600 m² to 1850 m². The street system consists of a loop formed by extending Thurlow and Burrard Streets, and Cordova Street extended through to the west from Burrard Street.

The applicant wants to change the approved street system and site parcelization, so that Canada Place Way is extended directly through to Thurlow Street and smaller mixed-use and hotel development sites consisting of two lots 29 and 30 are created to the south between Canada Place Way and Cordova Street, Burrard to Thurlow (see Appendix B). This would likely pull the entire development site inland for either less overall water coverage, or in order to create a larger development site for expanded trade and convention facilities to the north of Canada Place Way adjacent to the waterfront. The third northerly tower 2C in sub-area 1 would be eliminated, although this tower might still be built in sub-area 2. Public open space lost in the adjusted sub-area 1 would be replaced by a larger, more usable open space amenity at the foot of Thurlow Street in sub-area 2 adjacent to the waterfront and closely linked to Harbour Green Park.

Staff feel there are considerable public benefits from these proposed changes in terms of more usable public open space close to the water's edge, improved views, reduced massing and shadowing close to the waterfront, an improved form relationship with existing buildings in the downtown, and improvements to the downtown skyline.

The current concepts for the lower level building massing, however, remain a concern. This massing by virtue of sitting wider on the site increases enclosure from the waterfront. Views through the site are compromised; pedestrian routings are not as numerous nor as spacious; and pedestrian interest along the sidewalks has eroded. It is felt that refinement of the ground plane is needed in response to the following design objectives:

With the remassing to be undertaken at the base of the buildings, staff support in principle the general changes proposed to the form of development.

Building Height Increases: Currently, the maximum heights permitted by the zoning for sub-area 1 range from 92 m (302 ft.) for Tower 2B, 101 m (331 ft.) for Tower 2C, and 115 m (377 ft.) for Tower 2A.

The applicant wishes to increase the maximum height limits for the two remaining towers in the adjusted sub-area 1 precinct between Cordova Street and Canada Place Way as follows:

Building Heights

Tower 2A 115 m 131 m 16 m
(Burrard/Cordova) (377 ft.) (430 ft.) (53 ft.)

Tower 2B 92 m 137 m 45 m
(Thurlow/Cordova) (302 ft.) (450 ft.) (148 ft.)

Combined with and as a partial justification for these proposed height increases, the applicant is proposing to delete one tower and to also reduce the floorplates of both remaining towers as follows:

Tower 2A 1 600 m² 1 450 m² 150 m²
(Burrard/Cordova) ( 17,223 sq.ft.) ( 15,608 sq.ft.) ( 1,615 sq.ft.)

Tower 2B 1 850 m² 850 m²-1 254m² 1 000 m²
(Thurlow/Cordova) ( 19,914 sq.ft.) ( 9,150 sq.ft. ( 10,764 sq.ft.)

Note: These are approximate areas only and will be subject to adjustment at the rezoning stage.

In summary, staff conclude that the proposed height and floorplate changes would have the following impacts and benefits:

· most private views would benefit from the slimming of tower floorplates while a few existing buildings higher than 300 ft. in the downtown would experience some view intrusion;
· shadowing of public open space would have an overall net public benefit due to the slimming of the two remaining towers (if the third tower does not reappear in sub-area 2 because this site is used for trade and convention facilities expansion, then this benefit will be further enhanced);
· the cresting in height of these two proposed towers at the eastern end of the Coal Harbour waterfront is consistent with Council policy for encouraging some higher buildings in the downtown and would complement the downtown skyline emphasis of the CBD, as seen from Stanley Park;
· the principle for a transition in building heights down to the west towards the park would be weakened by the extent of the height increase proposed for Tower 2B; and
· lower level massing proposed for both buildings would negatively impact grade level public views of the waterfront, including Portal Park and sidewalk areas on Burrard Street.

Staff support in principle the proposed height increases subject to careful evaluation of view gains and losses, as well as the resolution of other concerns noted above.

Public and Private Views: An important objective of the 1996 development proposal approved for Burrard Landing was to maximize views to the mountains and waterfront from the adjacent downtown. The approved ODP and CD-1 guidelines:

See Appendix C for existing required public open space, as well as public view corridors.

While the applicant's initial rezoning submission would protect the Marine Building view, it would reduce or block the extent of public views currently mandated from several grade level plazas and sidewalk areas, including:

While staff note there are considerable public benefits from the proposed elimination of the northerly Tower 2C, assuming the convention centre expansion, additional design development to the lower portion of Tower 2B is recommended to maintain public views from Portal Park, consistent with current guidelines.

With respect to private views, the approved development concept for Burrard Landing has respected the existing neighbouring buildings and maximized private views out to the waterand mountains. These private views include those from the adjacent Guinness Building on West Hastings Street, and from the Marine Building on Burrard Street. (See Appendix D.)

The applicant's rezoning submission would generally benefit most private views from neighbouring towers, mainly through the slimming of the floorplates of the remaining Towers 2A and 2B, and if the trade and convention facilities expansion proceeds, through the removal of the northerly tower 2C. This assumes that any future tower on sub-area 2 is located close to Burrard Street so as not to block views from the south through sub-area 1. Additional height proposed for the westerly Tower 2B would, however, have minor negative impacts on upper floor views from a few higher downtown towers further to the south ( See summary of view analysis in Appendix E).

In conclusion, staff feel that private views from nearby downtown towers would have an overall net benefit from the rezoning proposal.

Assignment of Residual Density: Currently the maximum density permitted in Burrard Landing is 196 000 m² ( 2,109,795 sq. ft. ) allocated as follows:

Use

Maximum Floor Area in m²

    Office (sub-area 1)

139,500

    Hotel (sub-area 2)

37,000

    Hotel/ Office

N/A

    Live/ Work

N/A

    Cultural and Recreational (sub-area 3)

10,000

    Retail and Service, excluding Hotel (sub-areas 1, 2 and 4)

9,500

    TOTAL

196,000m²

If the applicant's development proposal for Lots 29 and 30 is supported, the residual amount of density left on the remainder of the site is as follows:

Use

Maximum Floor Area in m²

    Office (lot 30, sub-area 1)

23,600

    Hotel (sub-area 2)

37,000

    Hotel/ Office (lot 29, sub-area 1)

75,000

    Live/ Work (lot 30, sub-area 1)

21,400

    Cultural and Recreational (sub-area 3)

10,000

    Retail and Service, excluding Hotel (sub-areas 1,2 and 4)

9,500

    RESIDUAL (office in former sub-area 1)

19,500 m² (209,903 sq. ft.)

    TOTAL

196,000 m² (2,109,795 sq.ft.)

A key concern of staff, particularly in regard to trade and convention facilities expansion, is that the assignment of residual density not be left up in the air, especially if a request could come forward to transfer that density to other sites in the downtown. Such a transfer opportunity would neutralize the City's heritage density transfer program by devaluing the market price of such transferrable density by virtue of oversupply. This would remove a vital tool to support heritage restoration and preservation, thus putting significant heritage resources at risk.

There are several options to deal with the residual density that should be explored and one tied down before considering the current Burrard Landing rezoning.

· The density could be used in a reconfiguration and intensification of sub-area 2 on the waterfront. This would clearly be the preferred option if the trade and convention facilities are not expanded into this area.
· The density could be foregone, although this might also lead to an increase in infrastructure cost per developable square foot.
· The density could be assigned to a nearby Marathon site along Coal Harbour, although these sites have been tightly designed with few infill opportunities.
· The density could be taken up now by development on specific other downtown sites, thus being effectively transferred, but not through a `banking' mechanism that would impact market value of all other transferrable square footage.

Solutions are being explored, but the motivation to do so seriously rests with Council's indication that it expects this matter to be resolved before the Public Hearing on the current rezoning.

Resolution of Site Planning for the Remainder of Burrard Landing: Staff will report back (Recommendation C) at the time of the referral report on proposed changes to the Burrard Landing sub-area parcelization, and street pattern including the potential extension of Canada Place way from Burrard to Thurlow and two parcels to the north, including the existing Arts Complex parcel and a new larger waterfront parcel for possible future use as an office commercial, hotel and/or trade and convention site.

However, until a decision is made by development proponents to proceed with one of the two quite different and complex futures for sub-area 2, and details are confirmed through a rezoning, site planning remains conceptual. For example, in the case of the trade and convention facilities expansion option, a number of City issues have been identified which must be addressed by the proponents before parcelization, access and other aspects can be confirmed. Staff would proceed on the basis that any changes to the existing zoning (e.g. open space configuration, Arts Complex Facility and site, views, built form, etc.) must be equal to or better, in terms of public benefit, than that achieved in the existing zoning and agreements. In the meantime, it is contemplated a `no development covenant' be registered against the remaining sub-area 1 and 2 parcels to allow the proposed sub-area 1 development to proceed while restricting development on the remainder of the site until City requirements and agreements are addressed through future rezoning. Staff will report back on this matter at the time of the referral report.

APPLICANTS' COMMENTS

James K.M. Cheng Architects Inc.:

"We concur with the staff recommendations in this report."

Baker McGarva Hart Architecture:

"This rezoning will provide an excellent opportunity to complete Burrard landing much earlier than otherwise possible. This spectacular waterfront site is well-suited for higher towers as landmarks, acknowledging that the heights are consistent with the adjacent Downtown zone."

The rezoning will provide for the expansion of the Convention Centre to occur. The proposed 800 room hotel is an essential ingredient for the Convention Centre. Generally, the changes to height and use have been supported by the downtown business community, City staff, the Urban Design Panel and two public information meetings".

NEXT STEPS

Following Council direction on the issues in this report, the applicant will finalize his rezoning application. When received, staff will initiate a public process to discuss the rezoning proposal with the community. Since there has been considerable public review to date, this will take a shorter than normal period, expected to be about three to four weeks. Based on this public input and further detailed staff review, a rezoning referral report would be forwarded for Council consideration, for a possible Public Hearing early in the new year.

CONCLUSION

Several important planning and urban design issues arising from proposed development initiatives in Burrard Landing on the Coal Harbour waterfront are submitted for Council's review in this report. These require resolution in principle now to avoid unnecessary delay and to expedite further staff and public review of this rezoning application.

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