Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date: June 5, 2001

 

Author/Local: TPhipps/6604

 

RTS No.: 02039

 

CC File No.: 5308

 

Council: June 12, 2001

TO: Vancouver City Council

FROM: Director of Current Planning

SUBJECT: CD-1 Rezoning - 601 West 10th Avenue (Cancer Research Centre)

RECOMMENDATION

CONSIDERATION ( as an alternative to B, above)

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Relevant Council Policies for this site include:

· Central Area Plan - Central Broadway Goals and Policy: Council approved these policies in 1991 identifying Central Broadway as an uptown business district of non-residential uses;

· C-3A Guidelines: The Central Broadway C-3A Urban Design Guidelines adopted in March 1976 and updated most recently in September 1996, form the basis for approval of conditional developments in the C-3A District proposed to exceed 9.2 m (30 ft.) in height or 1.0 FSR. The guidelines address most aspects of urban design, principal among them being scale, shadow and view impacts of height, massing, and pedestrian amenity. A maximum sub-area building height of 36.6 m (120 ft.) is recommended. The massing of the building above (30 ft.) height should be slimmer to allow for views and for sunlight penetration to the north sidewalk of Broadway; and

· VGH Precinct Policy Statement: This policy framework, adopted by Council in June 2000, set out parameters for redevelopment, the most relevant for the Cancer Research site being height and massing. A maximum height of 38.4 m (126 ft.) is recommended together with north-south orientation of principal building massing

to relieve scale, shadow and view impacts. Grade level retail and other active uses are sought to animate the ground plane of an otherwise long institutional frontage on the 10th Avenue pedestrian corridor.

PURPOSE AND SUMMARY

This report assesses an application to permit a two phase development of a Cancer Research Centre, including laboratory, hospital and ancillary uses, office, and limited grade level retail with a maximum density of 6 FSR and a maximum height of 57 m (187 ft.) on the north side of 10th Avenue from Heather to Ash Streets.

DISCUSSION

Background: On June 15, 2000 Council resolved "THAT the Director of Current Planning be instructed to meet with the BC Cancer Foundation and report back to Council at an early date on any policy adjustments which would be needed to accommodate the design concept for the Cancer Research Centre." In response, an Issues report dated March 13, 2001 dealing with the initial design submission and a number of substantive urban design concerns was submitted for the March 29, 2001 Planning and Environment Committee. That report was withdrawn as positive meetings between Staff and the applicant generated alternative designs addressing concerns. Subsequently, two memorandums to the Mayor and Council from the Director of Current Planning outlined significant progress around a design concept responding to the issues identified in that report.

Use: Staff support the choice of site for this very important non-profit research facility which will benefit from links to treatment facilities, as well as proximity to VGH, and offers benefits for establishing a nearby research precinct as proposed by VGH.

Density: The proposed increase in density from 3.0 to 6.0 Floor Space Ratio (FSR) reflects a doubling of density relative to C-3A development and would substantially exceed permitted densities in other parts of the C-3A District and the VGH Precinct. This is primarily justified in terms of the unique public benefit of the proposed research centre. However, in 1996 Council approved a comparable increase in density from 3.0 to 4.47 FSR for the nearby
CD-1 District which contains Holiday Inn, with the Broadway frontage built to 5.97 FSR. Therefore this density is not entirely out of context and as an isolated occurrence is not in itself a major concern given the importance of the use and the benefits of this location.

However, in the Holiday Inn case, density was to be added in a low rise form and floor to floor heights were more conventional. In the current case, the density figure does not adequately reflect the impact on massing implied by the proposed double-height spaces exceeding 6.1 m (20 ft.) from floor to floor for six laboratory levels. The effect of these lab floors is to create a massing approaching the visual impact similar to that of 9.0 FSR.

The rezoning plans submitted are conceptual, which is appropriate for a rezoning application. However, the design is too preliminary to permit analysis of the precise floor area exclusions and inclusions which will apply at the development permit stage. Therefore, the applicant acknowledges that staff cannot assure them that the full envelope is achievable within 6.0 FSR and must assume responsibility for making the ultimate floor area of phase 2 conform to the FSR limit. Alternatively, a rezoning application could be made at that time for a text amendment.

Form of Development

Height: The proposed height of the tower (phase 1), including the mechanical penthouse, is 57 m (187 ft.) measured from the low (lane) side (as per the by-law) or 52 m (170 ft.) on the higher 10th Avenue side. This exceeds the height recommended for both the C-3A District at 36.5 m (120 ft.) and the VGH Precinct at 38.4 m (126 ft.). As seen along 10th Avenue, this would be between four and five conventional storeys higher than recommended.

While the visual impact of upper storey massing at the proposed height will be obvious, staff are satisfied the increase can be accepted in this location given the desirability of the use and the general fit with C-3A Guidelines. Design development to the architectural treatment and articulation of this very large building mass is recommended to minimize its apparent visual bulk.

The initial phase 2 building height of 36 m (118 ft.) generated significant shadowing and loss of sun access through the fall and winter months to the north sidewalk and restaurants on Broadway. The revised building envelope consisting of a height of 32.3 m (106 ft.) and angled roof profile would result in a 21 degree angle of sun exposure to the north sidewalk on Broadway instead of the guideline 17 degree angle. This still has a residual impact, from late November to mid January but preserves the benefits of the sun during most months and certainly during the key months. (Note Plans: Appendix D.)

Future Development of 600 Block West Broadway: The complete lack of rear lane setback in the initial scheme presented serious constraints to good design for future developments across the lane on Broadway. The revised plans provide a 3 m (10 ft.) setback above a lane height of 18m (30 ft.) which is adequate for visual separation between the proposal and future buildings without compromising the form of such future buildings on Broadway.

Guidelines: In addition to conditions contained in Appendix B, staff will present guidelines at Public Hearing which will address design objectives for the development application stage such as the roof angle required to provide sun access to Broadway.

Parking
Parking Standard - Given the institutional nature of this use, it is recommended that the parking ratio of 1 space per 93 m² be used, which is the same as applies elsewhere on the VGH site and reflects the mix of office and lab uses proposed.

Surface Parking - The easterly 60 percent of the site will be cleared and will be undeveloped until fund raising permits a phase 2 development. VGH Precinct Policies strive for a more amenable pedestrian environment to encourage people to conduct their business here by means other than single occupant vehicles. Surface parking is not acceptable under C-3A zoning and would not contribute to VGH Precinct policy objectives. To contribute positively to the urban fabric of the precinct, the applicant has agreed to treat the easterly portion of the site with an attractive landscape buffer along the 10th Avenue property line, including public seating nodes as well as other landscaping and interim tree planting to screen and green the view into the interim surface parking.

Pedestrian Overpass: The applicant proposes a pedestrian overpass, which is not a part of this rezoning application as it would occur over unzoned City street and requires approval of the City Engineer. If such a proposal was found to be supportable, provision for it to connect to the building could be made in the form of development to be approved by City Council prior to issuance of a development permit. If Council believes that the case for transfer of patients by wheelchair between the treatment centre and research labs is compelling and wishes to contemplate approval, staff should be instructed to report back on technical requirements and urban design parameters to permit an overpass.

However, the Director of Current Planning and the General Manager of Engineering Services do not support this feature as it is inconsistent with long established Council policy and would result in undesirable technical consequences and detrimental public realm impacts on 10th Avenue and potentially throughout the VGH Precinct.

The VGH Precinct Policy Statement prescribes extensive measures to strengthen the vitality of pedestrian atmosphere which the Central Area Plan strives to achieve for the city core. It does not envisage nor support a pedestrian system removed from street level. A precedent such as this could encourage numerous above grade connectors among hospital and research buildings which would undermine a healthy pedestrian environment.

It is common for patients to be transferred between buildings at VGH without creating a system of overhead structures which shadow the sidewalk, dominate the visual image of the street, diminish the value of street trees and other pedestrian amenities and remove the pedestrian life which makes the street animated and safe. As the patients are described to be in wheelchairs which would utilize elevators between floors, alternate means of transfer should be achievable.

If Council is prepared to consider an overpass, an application to the General Manager of Engineering Services should be made as soon as possible and concerns which need to be resolved include:

· removal of a diagonal configuration,
· minimization of all dimensions,
· adequate clearance for utility access or relocations of those utilities,
· ALRT implications,
· no loss of street trees,
· minimum and aesthetically acceptable visual impact,
· maximum visual transparency, and
· demountability.

Engineering Services does not support the construction of the proposed angled bridge over 10th Avenue. The previous application proposed a bridge at right angles to the property lines; any application to construct this proposed bridge should be consistent with the original rezoning application. All aspects will be considered and if solutions can be found, the development permit may reflect Engineering Service support.

Community Amenity Contribution [CAC]: On January 28, 1999, City Council approved an Interim City-wide CAC Policy which applies to all private rezoning applications received as of December 8, 1998. CACs would provide funds for additional community amenities needed for new people living or working on a site.

This rezoning application, received 21 November 2000, is subject to a CAC because it does not meet the criteria for exemption. While the research centre is a largely government funded, non-profit society, Council policy contemplates increased demand upon civic amenities required to serve an increased workforce. The CAC would be charged on the net increase in allowable floor area at a rate of $32.29 per square metre ($3.00 per ft²). The proposed net floor area increase of 17 419 m² (187,500 ft²) would equate to a CAC of $562,500. This would include a contribution of $289,797 to address increased child care demand. There is also a standard required commitment for public art and a requirement for traffic management measures, as shown in Appendix B.

CONCLUSION

Planning staff recommend approval of the rezoning albeit with some anxiety regarding the upper storey massing in the phase 1 building. Development of a Cancer Research Centre in this location fits exceptionally well with policy directions for the VGH Precinct as a whole. The use itself would have been appropriate within the C-3A District in any case. The proposed density and height both exceed normal standards for this district but staff conclude these aspects can be managed, given the overall fit with Broadway C-3A Guidelines and the desirability of the use.

The floor- to- floor heights combined with floor plate requirements of this type of building generates a massing which is challenging to manage, particularly for the more visible upper storeys. Staff have therefore worked with the applicant to make changes in upper storeys of both phases of the project. Resulting amendments for the phase 2 building have resolved staff concerns regarding shadowing and preserving acceptable massing options for adjacent development sites on Broadway. Design refinements to phase 1 upper storey massing are recommended to address visual impact to the greatest extent possible, accepting that the research centre program can not be achieved together with significant reduction of this upper storey floor area.

An elevated pedestrian crossing of 10th Avenue is not supported. It would not be structured into the proposed CD-1 zoning in any case because streets are not zoned. However, if Council directs staff to consider this proposal it would require further analysis at the development permit phase and will be reported back to Council at that time. Visual impacts of interim surface parking are addressed by design conditions.

- - - - -

DRAFT CD-1 BY-LAW PROVISIONS

Use

Density

Height

Setback

Parking

PROPOSED CONDITIONS OF APPROVAL

(a) That the proposed form of development be approved by Council in principle, generally as prepared by Richard Henriquez / IBI Group, Architect, and stamped "Received City Planning Department April 3, 2001", 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:

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 5 806.25 m² ( sq. ft.) site is comprised of 10 parcels on the north side of 10th Avenue currently occupied by a former bakery building converted to research labs, parkade with ground floor retail and temporary structures housing research. The site has a frontage of 152.4 m (500 ft.) and a depth of 38.1 m (125 ft.). There is a slope of 6.1 m ( 20 ft.) from 10th and Heather Street down to the lane at Ash Street.

Proposed Development: The "phase 1" high-rise block proposed on the westerly portion of the site would be comprised primarily of laboratories, support spaces and offices above the second level, with a theatre, library and public functions on the first and second levels. Retail is proposed on Heather Street near the lane south of Broadway. The proposed building height, including a 6.2 m (20.3 ft.) mechanical penthouse, is 56 m (184 ft.).

The existing research functions would be moved into the tower on the westerly 40 percent of the site. Then the former bakery building, which now contains these functions, is to be demolished. This would allow a parking access ramp to be built mid-block from the lane into the second and third below grade levels of the tower. Surface parking would be provided at lane level on that remaining 60 percent of the site until a second fund raising campaign can be completed for the proposed mid-rise block on the easterly 91 m (300 ft.) of frontage. A number of years may pass before the easterly portion of the site would be developed.

Phase 2 is proposed on the easterly portion of the site with laboratories, support spaces and offices. The proposed mid-rise height for the full length of the building is 36 m (118 ft.) including the mechanical/ventilation penthouse.

The floor-to-floor heights proposed for laboratory floors are 6.2 m (20.3 ft.), including interstitial space for mechanical. The applicant suggests that the FSR over the entire site is 6.0. This figure does not adequately reflect the impact on massing implied by the proposed double-height spaces. The effect of these lab floors is to create a massing approaching the scale normally reflected by 9.0 FSR.

Public Input: A notification letter was sent to nearby property owners on April 11, 2001 and rezoning information signs were posted on the site on February 28, 2001. One letter favouring the proposal cited the health benefits of the project. Two phone calls were received from residents and two people came to City Hall to view plans. Concerns focused on the adequacy of parking and visual impacts. No letters expressing opposition were received from nearby residents. One enquiry was received but no comments were offered from businesses on Broadway.

Comments of the General Manager of Engineering Services: The General Manager of Engineering Services has no objection to the proposed rezoning, provided that the bridge location and orientation are addressed to the satisfaction of the General Manager of Engineering Services the applicant complies with conditions as shown in Appendix B.

Engineering Services does not support the construction of the proposed angled bridge over 10th Avenue. The previous application proposed a bridge at right angles to the property lines, any application to construct this proposed bridge should be consistent with the original rezoning application. An application to the General Manager of Engineering Services should be made as soon as possible. Engineering issues such as utility clearances or relocation, ALRT, bridge use, design and demountability, including impact on existing street trees will all be considered and if solutions can be found the development permit may reflect Engineering Services support.

Public Benefit: Development of a major non-profit, primarily government-funded, Cancer Research Centre at 601 West 10th Avenue would be an important achievement for Vancouver. It would have positive linkages with nearby medical facilities and have a symbiotic relationship with other research functions in the area.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on December 13, 2000 (see Minutes, Appendix E) and supported the proposed use, density and form of development while noting the following concerns:

· the size of the building seemed out of scale with the surrounding context;
· the pedestrian bridge should go underground; and
· potential impacts on sites to the north on Broadway due to lack of rear setback.

Environmental Implications: Nearby access to transit and commercial services may reduce dependence on use of automobiles.

Social Implications: There are positive social benefits to the advancement of cancer research and treatment offered by this proposal. The implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements are addressed by a requirement to pay the City for Childcare development as noted in Appendix B.

Comments of the Applicant: The applicant has been provided with a copy of this report and has his comments are attached.

Comments of the Applicant:

APPENDIX D
Page 2 of 3

APPENDIX D
Page 3 of 3

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

601 West 10th Avenue

Legal Description

Lots 11 - 20; Block 359; D.L. 526; Plan 991

Applicant

Henriquez Partners / IBI Group

Architect

Richard Henriquez

Property Owner

B.C. Cancer Foundation

Developer

same

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

5 806.25 m²

0

5 806.25 m²

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT
(if different than proposed)

ZONING

C-3A

CD-1

CD-1

USES

Retail, Office,
Commercial Services

Laboratory, Hospital, Office, Retail

same but including service commercial uses

MAX. FLOOR SPACE RATIO

3

6

  

MAXIMUM HEIGHT

9.2 m (30 ft.) / 36.6 m (120 ft.)

57 m (187 ft.)

  

PARKING SPACES

varies by use

1 per 100 m²

1 per 93 m²

FRONT YARD SETBACK

negotiated for conditional use

3 m (10 ft.)

  

SIDE YARD SETBACK

0

0

  

REAR YARD SETBACK

7.6 m

3 m above 2nd storey for east 83.6 m

  

* * * * *

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