Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

Text Amendment - Downtown District Official Development Plan
(910 Mainland Street - Showmart Building)

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

On May 16, 1991 Council adopted the Downtown South Goals and Policies.

On July 30, 1991 Council adopted amendments to the Downtown ODP for Downtown South and adopted the Downtown South Guidelines.

PURPOSE AND SUMMARY

This report assesses an application by The Spaxman Consulting Group to amend the Downtown District Official Development Plan to allow for an increased range of permitted uses and redistributed densities for the life of the existing Showmart Building located at 910 Mainland Street.

The Director of Current Planning recommends that the application be referred to Public Hearing and approved subject to a condition.

Figure 1 Site and Surrounding Zoning

Map here

DISCUSSION

Zoning Context: The subject site is situated in Downtown South (sub-area L of the Downtown District), which encourages residential use while permitting smaller scale local serving, office, retail, service and cultural and recreational uses. It is flanked by sub-area C and the Yaletown Historic District (HA-3) which permits residential use plus a broader range and higher densities of office, retail, service, cultural/recreational uses than sub-area L. In addition, some manufacturing uses are permitted in both sub-area C and HA-3.

Zoning History: When the Downtown South zoning was enacted in 1991, it was envisioned that over time the area would develop into a high density residential area supplemented with some local serving retail, service, office, cultural and institutional uses. To achieve the maximum residential densities, in most instances site assemblies would be required with the associated redevelopment of older small scale commercial and service use buildings. Since1991 approximately 3,700 new units accommodating about 5,500 new residents have been built in Downtown South.

Subject Site: The site is a full city block (without an internal lane) under a single ownership. The whole block is developed with a three storey building built in the 1950s as a warehousing/wholesaling building. It contains large clear span floor plates and rooftop parking. The currently approved uses are office with ancillary storage lockers and restaurant for a total FSR of 2.74. (See Appendix C).

Rezoning Proposal: Due to the substantial size of the building and the recent significant upgrades for new tenants, the owner wishes to retain and re-use the building for the foreseeable future. The owner believes the current zoning does not permit a possible and practical array of uses and densities in the existing building.

At the rezoning inquiry stage, staff suggested that rather than pursuing a CD-1 rezoning of the site, the prospective applicant may wish to submit an application to amend the Downtown District ODP to create a new sub-area within Sub-Area L, essentially to permit uses and redevelopment now permitted in Sub-Area L, along with new uses that would only be permitted for the life of the Showmart Building. This procedure would permit the ultimate redevelopment of the site without a further rezoning. All the existing sub-area conditions would apply, and the expanded provisions for a previously existing building (L2) could be removed as a miscellaneous text amendment. The applicant followed this suggestion and included with the application a list of proposed new uses for the building.

Uses: The current zoning (sub-area L) encourages high density residential development, limits certain retail, service, office and cultural and institutional uses, and does not permit manufacturing uses. Across both Nelson Street in HA-3 and Smithe Street in sub-area C, a greater array of uses is permitted. The intent of the amendment is to permit this greater array of uses while recognizing the intent of Council policy and area zoning which identifies residential as the preferred land use in sub-area L. Therefore, when evaluating the proposed new land uses, staff considered the likely impacts on residential livability. Staff believe most potential impacts resulting from the new uses will be contained within the building and vehicular traffic will use the existing entrance and exit adjacent to Nelson Street and Smithe Street.

The new uses proposed to be included for the life of the existing building are as follows (see Appendix D for details):

Retail Uses: Add Furniture Store, Secondhand Store and Vehicle Dealer

Service Uses: Add Animal Clinic, Auction Hall, Catering Establishment, Print Shop, School - Arts or Self-Improvement, Business and Vocational or Trade, Sign Painting Shop and Work Shop

Transportation None currently permitted, add Packing Plant and Storage Warehouse
Uses

Utility & None currently permitted, add Radiocommunication Station
Communications

Manufacturing None currently permitted, add some uses currently permitted in
Uses Yaletown but prohibit noxious or potentially incompatible uses (i.e., Chemical or Plastic Products Manufacturing, Laboratory)

Wholesale None currently permitted, add Wholesaling - Classes A & B, same
Uses as Yaletown

As agreed by the applicant, Adult Retail Store and Casino - Class 2 would not be permitted in L2.

Density: The current zoning on a site of this size permits maximum FSR of 5.00, which can be all residential, or a maximum of 1.00 FSR for office, institutional or cultural and recreational uses or a maximum 2,500 sq. ft. of retail and service uses, limited to corner sites. (See Appendix E for details). The current office, ancillary storage and restaurant uses are legally non-conforming at a FSR of 2.74, over the permitted 1.00 FSR.

In addition to an expanded list of permitted uses, the proposed amendment would increase the density limits for each type of use. If approved, the amendment would limit the total of all permitted uses for the life of the existing building to the current FSR of 2.74, with a further restriction that retail uses be limited to a maximum of 4 645 m² (50,000 sq. ft.). This amount would allow animation of the building's street frontages until the ultimate redevelopment of the site.

With respect to retail uses, the General Manager of Engineering Services has requested that for any single retail use over 929 m² (10,000 sq. ft.) the maximum parking permitted shall be 10% greater than the minimum prescribed in the Parking By-law.

Public Benefit:

a) Corner Bulges/Pedestrian Access: The change in use of the site to a higher intensity use will generate increased pedestrian activity in the area. There are a number of pedestrian improvements that need to be made, but many are not practical due to theextent of the changes required, the high related costs and unfair burden on the applicant. Two corner bulges adjacent to the 910 Mainland have been identified as appropriate measures that would improve the pedestrian connections to the site. One is on the southeast corner of Mainland and Smithe, and the other is on the northeast corner of Mainland and Nelson. Both bulges would reduce the pedestrian crossing distance across Mainland Street, provide areas for additional streetscape elements and prevent cars from parking too close to the intersection. The corner bulge at Smithe would also facilitate access between the applicant's site and the Library Square precinct by realigning the intersection and reducing the pedestrian crossing distance across Smithe. Both bulges would help to further reinforce Hamilton and Mainland Street as a pedestrian priority route between Library Square and the Yaletown Historic District as identified by the Downtown Transportation Plan staff and Greenways staff. The General Manager of Engineering Services recommends, that as a condition of rezoning, two corner bulges be installed adjacent to 910 Mainland at Smithe and Nelson streets at the property owners expense.

b) Building Facade Improvements: The Downtown South Guidelines apply to this site. Although it is not anticipated there will be major proposed alterations to the building, staff will use the guidelines when assessing development permit applications to achieve improvements such as weather protection, landscaping and facade enhancements. This may include improvements to the car ramps on the Cambie Street facade.

CONCLUSION

Planning staff support the proposed amendments to the Downtown Official Development Plan, thereby creating a new sub-area within area L to permit new uses for the life of the Showmart Building without compromising the longer term objective of creating a high density residential community in Downtown South when the property is ultimately redeveloped. Staff recommend that the application be referred to a Public Hearing and approved.

- - - - -

APPENDIX A

A. DRAFT DOWNTOWN DISTRICT ODP TEXT AMENDMENTS -

Introduction: The general intent of the proposed changes is to reletter the existing sub-area L as L1 and create a new sub-area for the subject site referenced as sub-area L2. This would permit additional uses and revised densities for L2 (over and above L1), but only for the life of the existing building. Upon demolition of the existing building, the ODP could be amended to revert this site back to L1 identical to the rest of the New Yaletown Neighbourhood.

Section 1 Land Use

Section 2 Retail Use Continuity


"(b) except that ground floor retail-commercial and service uses are permitted:

Section 3 Density

Section 4 Height of Buildings

B. PARKING BY-LAW

APPENDIX B

PROPOSED CONDITION OF APPROVAL

(a) THAT, prior to enactment of the amendments to the DD ODP, the registered owner shall make arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for the installation of two corner bulges adjacent to 910 Mainland Street, one at Smithe Street, and the other at Nelson Street, at the property owner's expense.

APPENDIX C

ADDITIONAL INFORMATION

Site, Existing Zoning and Context: The subject site is a full block site with no lane bounded by Smithe, Cambie, Nelson and Mainland Streets. It is located in sub-area L of the Downtown District and is in the emerging Downtown South residential area. The current zoning encourages high density residential development, along with local serving retail, service, cultural and institutional and office uses. The existing three storey Showmart Building covers most of the site and provides roof top parking accessed by two ramps on the Cambie Street elevation. The currently approved uses are office with ancillary storage lockers and restaurant at a FSR of 2.74.

Across Cambie Street to the southeast are two high density residential towers developed under the existing Downtown South zoning. Across Mainland Street to the northwest is another full city block site currently developed with older warehousing buildings. To thenortheast across Smithe Street is sub-area C of the Downtown District developed with high density residential development and older lower scale commercial and office buildings. To the southwest across Nelson Street is the Yaletown District (HA-3) developed with mixed-use residential, office and warehousing buildings. Further to the south is the residential Quayside Neighbourhood (CD-1) of False Creek North.

Public Input: A notification letter was sent to nearby property owners on July 18, 2001 and rezoning information signs were posted on the site. Approximately fifteen phone calls were received from nearby property owners and residents, mainly requesting clarification of the types of uses that would be permitted if the rezoning were approved. No major objections were noted.

Comments of the General Manager of Engineering Services: Engineering Services has no objections to the proposed rezoning and recommends the following conditions apply:

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

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.

Comments of the Applicant: The applicant has been provided with a copy of this report and concurs with the contents.

APPENDIX D

Comparison of Permitted Uses
X = Permitted Use (Outright or Conditional)
XX =Proposed New Use limited to the life of the Showmart Building

Use

Yaletown
(HA-3)

Sub-area C

Sub-area L

Proposed

Residential

X

X

X

X

Office Uses

X

X

X

X

Cultural/Recreational

Arcade

X

X

    

Artist Studio - Class A

X

X

X

X

Artist Studio -Class B

X

X

X

X

Billiard Hall

X

X

X

X

Bingo Hall

  

X

    

Bowling Alley

X

X

X

X

Casino - Class 1

  

X

    

Casino - Class 2

    

X

No

Club

X

X

X

X

Community Centre or Neighbourhood House

X

X

X

X

Fitness Centre

X

X

X

X

Hall

X

X

X

X

Library

X

X

X

X

Museum or Archives

X

X

X

X

Park or Playground

X

X

X

X

Rink

X

X

X

X

Theatre

X

X

X

X

Zoo or Botanical Garden

X

X

X

X

Retail Uses

Adult Retail Store

  

X

X

No

Furniture or Appliance Store

X

X

  

XX

Grocery or Drug Store

X

X

X

X

Liquor Store

X

X

    

Pawnshop

X

X

    

Retail Store

X

X

X

X

Secondhand Store

X

X

  

XX

Vehicle Dealer

X

X

  

XX

Service Uses

  

Animal Clinic

  

X

  

XX

Auction Hall

X

X

  

XX

Barber Shop or Beauty Salon

X

X

X

X

Bed and Breakfast

X

X

X

X

Catering Establishment

X

X

  

XX

Hotel

X

X

    

Laboratory

X

X

    

Laundromat or Dry Cleaning

X

X

X

X

Neighbourhood Public House

X

X

    

Photofinishing/studio

X

X

X

X

Print Shop

X

X

  

XX

Production/Rehearsal Studio

X

X

  

XX

Repair Shop- Class A

X

X

    

Repair Shop - Class B

X

X

X

X

Restaurant-Class 1

X

X

X

X

Restaurant - Class 2

X

X

    

School-Arts/Self Improvement

X

X

  

XX

School Business

X

X

  

XX

School -Vocational/Trade

X

X

  

XX

Sign Painting Shop

X

X

  

XX

Work Shop

  

X

  

XX

Manufacturing Uses

Bakery Products

X

X

    

Chemicals

X

X

    

Clothing

X

X

  

XX

Dairy Products

X

X

    

Electrical Products

X

X

  

XX

Food or Beverages

X

X

    

Furniture

X

X

  

XX

Jewellery

X

X

  

XX

Leather Products

X

X

  

XX

Metal Products

X

X

    

Miscellaneous Products

X

X

    

Paper Products

X

X

    

Plastic Products

X

X

    

Printing/Publishing

X

X

  

XX

Shoes or Boots

X

X

  

XX

Textiles or Knit Goods

X

X

  

XX

Tobacco Products

X

X

    

Wood Products- Class B

X

X

    

Transportation and Storage

Packing Plant

X

X

XX

  

Storage Warehouse

X

X

XX

  

Utility & Communications

Public Utility

X

      

Radio Communications

X

X

  

XX

Wholesale

Lumber & Building Materials

X

X

    

Wholesaling - Class A

X

X

  

XX

Wholesaling - Class B

X

X

  

XX

APPENDIX E

COMPARISON OF DENSITIES (CURRENTLY PERMITTED VS. PROPOSED) -910 MAINLAND STREET

 

Current
(Maximum
FSR = 5.00)

Proposed ++++

(For existing building only:
Maximum FSR = 2.74)

Cultural and Recreational Uses

1.00+

2.74

Dwelling Uses

3.00++

Not Applicable

Institutional Uses

1.00+

2.74

Office Uses

1.00+ and +++

2.74

Retail and Service Uses

Corner Sites
(2,500 sq. ft. per site)

4 645 m² (50, 000 sq. ft.)

Manufacturing Uses

Not permitted

2.74

Transportation and Storage

Not permitted

2.74

Utility and Communication

Not permitted

2.74

Wholesale Uses

Not permitted

2.74

+ Cultural and Recreational, Institutional and Office Uses shall not exceed 1.00 FSR in total

++ Can be increased to FSR 5.00 for social housing or if minimum site size exists.

+++ Current approved uses for subject site are office with ancillary storage lockers and restaurant FSR =2.74 (legally non-conforming)

++++ Proposed sub-area L2 would also permit the same uses and densities (except for Adult Retail Store, Casino - Class 2) for redevelopment of the site as is currently permitted.

 

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

910 Mainland Street

Legal Description

Lots 60 & 61, Blk. 76, DL 541, Pl 3469 and Lot Z, Blk 76, DL 541, Pl 20357

Applicant

The Spaxman Consulting Group

Property Owner

Laurelton Investments Ltd. & KBK No 197 Ventiures Ltd.

Developer

Laurelton Investments Ltd.

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

9 461 m²

nil

9 461 m²

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED PERMITTED DEVELOPMENT

ZONING

DD (Sub-area L)

DD (new sub-area L2)

USES

Residential
Office, Retail, Service, Cultural and Recreational, and Institutional Limited

No change, but exclude Adult Retail and Casino - Class 2 and add some additional Retail, Service, Transportation, Utility and Manufacturing uses for life of existing building

MAX. FLOOR SPACE RATIO

Residential Uses = 5.00
Office, cultural and recreational, and institutional to total of 1.00 FSR
Retail and service to 2,500 sq. ft. per site on corners

No change, but no additional to existing building (2.74) and retail limited to 4 645 m² (50,000 sq. ft.) in existing building

MAXIMUM HEIGHT

300 ft (91.44 m)

No change, but no height increase to existing building

* * * * *

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