Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Standing Committee on Planning and Environment

FROM:

Director of City Plans in consultation with the General Manager of Engineering Services

SUBJECT:

Broadway/Commercial SkyTrain Station Precinct - Guidelines for C-3A and C-2C Zones

 

RECOMMENDATION

CITY MANAGER'S COMMENTS

COUNCIL POLICY

Council has endorsed numerous policies and actions for the Broadway/Commercial area including:
· the Broadway Station Area Plan (1987) and related zoning changes;
· the Greenway Plan (1995), especially the Central Valley Greenway;
· the Transportation Plan (1997), especially the recommendation for a "pedestrian priority area" pilot project;
· the Kensington/Cedar Cottage Community Vision (1998), which identified Broadway/Commercial as a pedestrian-friendly neighbourhood centre and transit hub;
· preferred alignment, station locations, and mitigation plans for the Millennium SkyTrain Extension (1999 - 2001) and related rezoning, guidelines and forms of development for Commercial Drive Station;
· restrictions on conditional uses that are not pedestrian friendly in neighbourhood centres (2000);
· the Broadway/Commercial SkyTrain Station Precinct Plan - Transportation Element (2000) and Public Realm and Streetscape Element (2001).

PURPOSE AND SUMMARY

This report seeks Council adoption of guidelines for conditional approvals in the C-2C and C-3A zones in the Broadway/Commercial Station Precinct. The intent is to encourage the development of a unique sense of place for the shopping street, with attractive, pedestrian-friendly, livable and neighbourly mixed use developments. The C-3A guidelines will replace existing ones for the area, while new area specific guidelines are proposed for the C-2C zoned lands. Further, staff recommend reviewing possible changes to C-2C1 zoned sites on Commercial Drive between 12th and 16th Avenues to permit residential development on the ground floor, and that Council instruct staff to explore the feasibility of public parking beneath the SkyTrain guideway east of Commercial Drive.

BACKGROUND

The 1987 Broadway Station Area Plan made a number of changes to this area's C-2 commercial zoning in anticipation of impacts from the Expo SkyTrain line. As shown in Figure 1, the corner of Broadway and Commercial and the east side of Commercial Drive north of 12th Avenue were rezoned to C-3A, a retail , service and office oriented zone. C-2C was established on the west side of Commercial Drive north of 12th Avenue and also north of Grandview Highway North. This zone encourages residential uses in addition to retail and service. C-2C1was established south of 12th Avenue (see Figure 1). The recommended guidelines will not change these zoning schedules. Rather, they are intended to give additional shape and clarity to the preferred mix of uses and character of buildings in the C-2C and C-3A zones, given more recent planning and transportation initiatives.

Figure 1. Broadway/Commercial Station Precinct, with the C-3A and C-2C zones highlighted

DISCUSSION

C-3A and C-2C Guidelines

During the Kensington/Cedar Cottage Community Vision and the more recent SkyTrain Planning program, Cedar Cottage residents expressed concern about the poor appearance of both buildings and sidewalks, generally low maintenance, and the changing nature of shops and services in this area. Since the Expo SkyTrain line opened in the mid-1980s, bakeries, delis and cafes have been replaced by fast food outlets, convenience stores and cheque-cashing services. The KCC Community Vision directions and Station Precinct Plans approved by Council aim at reversing these trends and improving both the station environs and shopping street.

The revised and new guidelines included in Appendices A and B are intended to assist in creating an attractive, vibrant and pedestrian oriented neighbourhood centre with a special traditional character and high quality public realms. The guidelines call for:
· strengthening Commercial Drive between 6th and 12th Avenue as a core shopping and mixed-use business area by providing continuity of retail development at grade, supplemented with office, service and residential uses above grade;
· promoting employment opportunities, especially in office uses, to provide daytime vitality and to take advantage of the transportation infrastructure;
· accommodating convenience retail and services at the transit hub catering to transit users; and
· ensuring a high standard of livability for new residents and that new development is neighbourly to nearby residential areas.

In terms of built form and character, the guidelines intend to:
· encourage contemporary interpretations of the community's historical commercial building styles;
· provide a basis for conditional increase in height increase to 18.4m on sites adjacent to Broadway Station;
· animate the sidewalk with outdoor display and cafes through a 1m setback on arterial street frontages as well as opportunities to use corner bulges previously approved by Council.

The guidelines will apply when a discretionary action is required. They will also function as a reference document for possible rezonings in the immediate vicinity.

Public Process

The broad directions of the guidelines emerged from the planning and consultation processes, in particular a design charrette held in July, 1999. The charrette also generated ideas reflected in the Public Realm and Streetscape Element approved by Council this past April. There have been five meetings on the guidelines and related land use matters between September 2000 and this July. Details of these meetings are on file in the Planning Department. From the public meetings it is clear that both residents and merchants generally support the need for an improved image for the area and the need for guidelines to help this come about.

It should be noted that some residents have expressed concern about an increased concentration of health care offices in the area due, in part, to problems associated with dispensing of methadone and the clientele that is attracted for this reason. On balance, staff feel that increased employment in the office sector is a basic component of an economic revitalization strategy for the area, and one that can also make good use of the availability of SkyTrain and bus service here.

Zoning Amendments in the C-2C1 Zone

As noted, a main goal of the guidelines is to reinforce Commercial Drive between 6th and 12th Avenues as the heart of the neighbourhood centre. In support of this direction, consideration has been given to de-emphasize shopping and office-type uses in peripheral areas. The C-2C1 zone south of 12th Avenue is a good candidate for rezoning to permit full residential use at grade (Figure 1).

Lacking pedestrian activity, this area has limited viability for core shopping. It currently provides a wide mix of retail, cultural, repair and other services, as well as residential uses. Zoning amendments would continue to provide choice of use at grade, and would add residential use to the list. Staff discussed this idea with area residents and merchants and they have been strongly supportive of this change. If Council approves Recommendation C, staff will undertake a focussed consultation and report back with an amended zoning schedule for this zone for Council consideration and referral to a public hearing.

Collective Parking

The Street Use Agreement between the City and the Province for the Expo SkyTrain line included lane dedications east of Commercial Drive between the lane south of 10th Avenue and 12th Avenue. These lanes have not been opened, and would have to be opened for a public parking lot to be implemented. Merchants have indicated support for the idea, as additional short-term parking would help make the commercial area more convenient andviable. Area residents have expressed a desire to extend the Grace McInnes Parkway north in this same area. Staff feel there is a way to accomplish both of these objectives.

If Council approves Recommendation D, staff will explore the feasibility of developing and managing such a facility with the various stakeholders. Should this process have a positive outcome, staff will report back on the proposal along with a zoning amendment for referral to public hearing, since the RM-4N multiple-family residential zone precludes parking as a stand alone use.

CONCLUSION

The proposed C-2C and C-3A guidelines will provide clear direction for development in this SkyTrain station precinct's commercial zones, and will help address many of the concerns expressed by area residents and merchants during both the KCC Community Vision and Station Precinct planning programs. Further work in the C-2C1 area is recommended to test acceptability of and prepare zoning for residential use at grade. In the lane east of Commercial Drive, opportunities for public parking and a neighbourhood greenway will be explored with stakeholders to address both commercial area parking needs and local aspirations for off-street access and circulation.

LINK TO APPENDIX A

LINK TO APPENDIX B

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