POLICY REPORT
DEVELOPMENT AND BUILDING

Date: September 12, 2001
Author/Local: RJenkins/TPhipps-

7082/6604

RTS No. 02294

CC File No. 6007

CS&B: September 20, 2001

TO:	Standing Committee on City Services and Budgets
FROM:	Director of Current Planning in consultation with the Director of the Office of Cultural Affairs, General Manager of Park Board and General Manager of Engineering Services
SUBJECT:	Vancouver Convention and Exhibition Centre Expansion Pre-rezoning Design Review

RECOMMENDATION

The Director of Current Planning recommends Council receive this report for information.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS the above.

COUNCIL POLICY

· Central Area Plan (1991)
· Coal Harbour ODP (1990)
· Views Policy (1989 with subsequent amendments)
· Cost Recovery Policy (1992)
· Cultural Facilities Priorities (1991)

PURPOSE

This report outlines the status of pre-rezoning design discussions related to the proposed expansion of convention and exhibition facilities on a site at Burrard Landing.

A companion report submitted by the Director of Finance addresses the City's role in financial aspects and related matters.

BACKGROUND

City staff have provided a coordinating role in a cooperative dialogue with project proponents to develop a common understanding of parameters for a successful rezoning to accommodate the Vancouver Convention and Exhibition Centre (VCEC) program objectives on this site together with City policy objectives. The City has played this key coordinating role since 1995 in support of the expansion initiative.

Staff began reviewing a new concept for an expansion of VCEC facilities on the Marathon Burrard Landing site in late 1999. The concept involves a two phased expansion. A complete program of facilities would first be developed on the Burrard Landing site, including a 250,000 sq. ft. exhibition hall, 83,000 sq. ft. of meeting space, a 50,000 sq. ft. ballroom, a 12,000 sq. ft. "signature" room and a 1,500 seat (24,000 sq. ft.) lecture theatre. In a second phase, existing facilities at Canada Place would be renovated and linked to the Burrard Landing facility to provide a total of 529,000 sq. ft. of function space.

On January 5, 2000 staff reported to the proponents' Convention Centre Expansion Team, that the City continued to support expansion efforts. However, in the context of meeting both City and expansion program objectives, a number of key issue areas were identified related to the waterfront walkway, plaza and Canada Place Way elevation and views, Arts Complex, parking, loading and other infrastructure elements. These issues and others have been explored by the proponents and staff through 2000 and 2001.

Very limited work was initiated by the proponents on the issues until late 2000. In November 2000 Council directed staff to explore options to achieve both the Arts Complex and the Convention Centre on a combined site. Since that time, discussions on the Arts Complex site have resulted in considerable progress. Further analysis by the proponents on other issues was not advanced until the spring of 2001. Since May 2001 a series of ten workshops and several reports to the City's Major Projects Steering Committee (MPSC) have resulted in progress in a number of key issue areas. Although issues remain which require further analysis, staff are completing the review which will provide direction in the submission of a rezoning application.

For reference a site context map and the current design submitted by the proponent team is attached as Appendix A.

DISCUSSION

The Burrard Landing site and the project concept have both great potential and challenges to be successful both in terms of the Convention Centre program and City public objectives. From the City's perspective the site grades allow for the large `box' of the exhibition hall to be integrated below the escarpment. The site has a spectacular orientation to the north and northwest, affording some of Vancouver's best views of the water and mountains. The large public plaza and waterfront walkways will take advantage of this opportunity.

A further advantage of this proposal is that the project program is less complicated than that of previous initiatives. The hotel has been separated from the project (201 Burrard Street -rezoning approved at Public Hearing on April 10, 2001), and other complicating elements of the previous Portside proposal, including Sea-Bus access, a large retail complex and full integration with Canada Place are not part of this proposal.

A constant theme in the current pre-rezoning review is the challenge of accommodating all the Convention facility elements, including the large exhibition hall, and meeting City requirements within a limited site area. The convention facilities are larger than in Portside, impacting parking, loading and other aspects. The need to relocate the existing Arts Complex is a further challenge. There is room to expand the site farther into the water but the proponents are naturally concerned about the cost implications.

The following outstanding issues remain, many of which were identified in January 2000 before completion of the project budget estimate:

- sufficient site area to comfortably accommodate waterfront walkway and pedestrian/wheeled access connections from lower to upper levels
- design development to animate the walkway routes
- views from Thurlow Street and Portal Park through the plaza and the 10 metre change in grade from lower level to upper plaza and Canada Place Way level
- Arts Complex siting and building reorientation, while possible, there are additional cost implications
- Convention Centre and Arts Complex parking shortfall, with some potential for accommodation on adjacent sites
- bus and taxi on-site storage, queuing and management
- on-site and off-site passenger loading, pick-up and drop-off
- design development of the plaza.

A detailed description and commentary on these issues is provided in Appendix B.

The staff team will continue to work with the proponents over the next few months to address outstanding issues in anticipation of a rezoning submission. If the project proceeds, an expedited, fully cost-recovered rezoning application is anticipated.

CONCLUSION

Staff and the proponent teams continue to work together to address pre-rezoning issues and rezoning submission requirements. Considerable progress has been made in a number of areas. Based on the latest information provided by the proponents and staff analysis, staff have reasonable confidence that identified issues can be resolved with further work committed by the proponents. Staff will continue to ensure that important City requirements, standards and policy objectives will be met while being mindful of project cost and program implications.

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Appendix A on file in the City Clerk's Office

APPENDIX B - VCEC EXPANSION PROPOSAL - PRE-REZONING REVIEW

1. Urban Design

(a) Waterfront Walkway

In January 2000 staff noted the pedestrian connections along the waterfront did not meet City standards, and that additional site area may be required. Through recent workshops applicable City policy, Burrard Landing CD-1 zoning provisions and walkway standards have been confirmed. Additional design parameters have also been identified.

For pedestrian and wheeled access (including disabled, bicyclists and roller bladers) two routes have been identified and tested with design alternatives. It is proposed that a primary route rise from the lower water's edge, elevation 3.5, at Harbour Green Park and work its way up gradually around the perimeter of the site to elevation 13.5 at Burrard Street and Canada Place Way. A secondary route would remain at elevation 3.5, providing direct water's edge access around the site and also providing emergency access and pedestrian access to marina, floatplane and other commercial operations. In addition, for pedestrian only access from the lower level directly to the plaza a generous stair connection has been identified in the northwest portion of the site.

Several design alternatives have been explored for the primary route. The solution currently proposed by the proponent team (illustrated in Appendix A) would rise in a diagonal fashion around the exhibition hall structure. Another solution would concentrate the 10 metre vertical climb in a specific location, likely at the northwest or northeast portions of the site. There are advantages and disadvantages to each alternative (and variations of these alternatives), which are currently being explored with the proponents.

The alternatives being explored involve adjustments in site area. Depending on the final resolution of the design more site area may be required, likely in the northwest or northeast portions of the site.

(b) Animation of the Walkway

This issue, as it relates to the provision of retail space, was identified in January 2000 and it remains an issue. While there are spectacular views to north, more attention is needed on the in-land side of the walkway system to ensure it is animated. This will address safety and security (CPTED) requirements as well as provide pedestrianinterest around the large `box' of the exhibition hall. At present there is a combination of somewhat isolated retail and landscape elements proposed with long stretches of blank walls and ventilation grills.

Additional work to successfully animate the walkway system is required. This should include consideration of compatible convention centre uses (prefunction, circulation or administrative uses with windows) retail/restaurants/other commercial uses (where viable), as well as marine related uses, architectural elements and landscape elements.

(c) Plaza and Canada Place Way Elevation

The proposed elevation of Canada Place Way at Thurlow Street is 15.8 m and the Plaza is 16.5 m above City Datum which is about 4 metres higher than the equivalent point of land in the approved Burrard Landing zoning. While the design of vertical elements potentially obstructing the view (i.e., Arts Complex and above plaza convention centre facilities) have been or can be satisfactorily reconciled with Thurlow and Portal Park views, the view of the water to the north is also impacted by the 4 metre rise in all the grades of the streets to accommodate the top of the exhibition hall. In addition the north/south dimension the exhibition hall, further blocks the water view (the northern edge of the exhibition hall is approximately 160 m or 525 ft. north of Canada Place Way).

Staff and the proponents have looked at existing public and private view impacts, possible new views created, as well as opportunities and implications for reducing the plaza elevation by various means. The proponents have advised there are a number of constraints to lowering the exhibition hall significantly including meeting exhibition hall program requirements, building below the floodplain elevation and related significant costs. Further, even if the exhibition hall were reduced in height no recovery in views of the water would occur unless there was also a commensurate height reduction in Canada Place Way. This, in turn, would significantly reduce parking capacity below the roads (identified in Section 3(a) following, as already being in a shortfall situation).

The proponents have identified the possibility of reducing the depth of the roof structure by about 1.5 metres in the northwest corner of the exhibition hall. While this will achieve no real improvement on long views down Thurlow Street, it will be of some benefit for views from the Plaza and for dealing with the grade change in achieving a more manageable transition to the lower level.

Staff will continue to assist the proponent with further analysis to generate alternatives which can successfully marry the public objectives of view protectionand maintaining the vital sense of linkage to the waterfront with the desire to optimize program potentials of the convention and exhibition facility.

2. Arts Complex

This report addresses the physical design aspects of the Arts Complex. A future report back will advise Council on the negotiations for compensation for the site.

The Arts Complex site was secured as a condition of the Burrard Landing rezoning. The delivery of the site to the City, filled, fully serviced and remediated, is tied to the development of either Burrard Landing or Harbour Green Neighbourhood. With development proposals for both Phase 2 and Phase 3 now proceeding, the delivery of the Arts Complex site is triggered.

In November 2000 the Trade and Convention Centre Task Force proposed siting their facility on the City's Arts Complex site. In response to this proposal, Council reaffirmed its commitment of the Coal Harbour Arts Complex program and the integrity of the City's site, and directed staff to work with the Trade and Convention Centre team to realize the objective of achieving both the arts complex and the convention centre on the Burrard Landing sites. At that time Council also directed staff to review and report back on the Arts Complex updated Feasibility Study including revised cost estimates resulting from the changes resulting from the revised site configuration.

In February 2001 Council approved a further series of recommendations with respect to the Arts Complex - reaffirming the Arts Complex Building Program including a 1500-1800 seat lyric hall, a 450 theatre and an outdoor civic performance plaza; reaffirming its commitment to the Coal Harbour Arts Complex waterfront site, and the objective of achieving both the arts complex and the convention centre on the Burrard Landing sites; and directed the City Manager, in consultation with the Director, Office of Cultural Affairs, to commence discussions with the Trade and Convention Centre and senior levels of government in order to secure both objectives, and further, to ensure future option for the Arts Complex are maintained, and compensation for the use of portions of the site are achieved.

Since February, staff and the City`s architectural, engineering and cost consultants have worked extensively with the Trade and Convention Centre team to accommodate both building programs on the combined Marathon and City sites. The guiding premise for City staff has been to explore options which secure site conditions for the Arts Complex which are as good as those previously secured.

The Arts Complex program has been compressed to accommodate the full rectangular volume of the Trade and Convention Centre exhibition hall. At the same time, the ArtsComplex has been reoriented to position the lobby areas adjacent to the park and civic plaza and to help mask the exhibition hall with the back stage areas of the theatres. The revised foot-print for the Arts Complex is illustrated in Appendix A. Generally, staff believe that the reoriented Arts Complex site can be made to work. The site can accommodate the full Arts Complex Building Program and, subject to confirmation by the applicant team, meets the City's view corridor policy. There remain a series of urban design issues (plaza interface, access between the upper plaza level and waterfront pathway etc.) and engineering issues (passenger drop off, parking, emergency access etc.) which are reviewed elsewhere in this report. The outcome of these issues may have a significant impact on the arts complex site. It is therefore difficult to complete the technical analysis of the revised site option until the applicant resolves these related issues.

Staff and the Convention Centre team agree that it would be mutually beneficial for the two projects to proceed concurrently. However, as with the previous Arts Complex site, agreements will need to be secured to ensure that the facilities can be constructed independently or concurrently as opportunities permit, and that the Convention Centre will provide appropriate interim site treatment for the City's land in the event that their application proceeds in advance of the Arts Complex.

While the program may be made to work on the reconfigured site there are cost implications to this option.

Once the issues reviewed in this report have been resolved staff will report back to Council with a final cost estimate and implementation plan for the Arts Complex.

3. Engineering and Infrastructure

(a) Parking, Loading and Access

Parking was flagged as an issue in January 2000. At that time staff identified a shortfall of 138 spaces for the convention centre and 207 spaces for the Arts Complex. The Arts Complex shortfall assumes that of the 375 spaces required by the Arts Complex 120 evening use spaces would be provided in the convention centre parkade in addition to 48 daytime reserved spaces. The remaining shortfall of 207 spaces (subject to revision based on further parking analysis) may be obtained via the No Build Covenant for Arts Complex Parking and located within the Live/Work tower parkade (to be located on Lot 2) and the Hotel parkade (to be located on Lot 1). In recent discussions between City staff and the project consultants, further numbers related to this issue have been brought forward based on a preliminary report provided by the proponents' transportation consultant. There currently appears to be a 162 space shortfall related to the convention centre consultant's calculateddemand of 535 spaces (373 spaces are provided in the integrated parking/viaduct structure) noting that staff have yet to confirm the consultant's parking numbers. There has been little further work to address the Arts Complex parking other than to show 12 spaces for staff parking on the Arts Complex site and suggest that there are different peak periods for parking demand and the Arts Complex may be able to take advantage of spaces made vacant in the Convention Centre. The properties to the south have been identified by both the Arts Complex and the Convention Centre as possible sites to provide off-site parking. It should be noted that there is a No Build Covenant for Arts Complex Parking on title that obligates the properties to the south to provide parking for the Arts Complex patrons at prevailing market rates.

The resolution of loading and access continues to remain unresolved. Staff are currently reviewing the traffic demand and management report that outlines the transportation requirements for and traffic impacts created by the Convention Centre, Arts Complex and Seaplane facility. Currently the applicant has shown 21 trailer-truck loading spaces, and a bus area that may accommodate the bus loading and unloading activities; a bus storage area on-site has not been identified. Furthermore, bus management is an issue that requires more discussion and will ultimately lead to the submission of a bus management plan. Taxi storage and queuing is also an issue that has been identified as requiring resolution. Passenger loading, pick-up and drop-off, both on and off-site are currently under review by Engineering staff. Staff feel that with the conclusion of the review of the Traffic Review report it will be possible to provide further guidance to the Convention Centre consultants allowing them to move forward and resolve theses issues.

Overhead clearance on the lower level road was also identified as an issue in January 2000. The current proposal for Waterfront Road shows utilities located below the driving surface. As per City staff's comments in January 2000, the requirement for 7.6 m overhead clearance still exists. The implications of this requirement for the Convention Centre would be the loss of one level of parking and/or the shift of the Convention Centre site north, further into the water. Alternatively, staff are willing to consider a reduction in overhead clearance to the 5 m minimum clearance required by the Fire Department provided the Convention Centre enters into an agreement that obligates the Centre to pay for all costs related to the replacement of City owned utilities located below Waterfront Road.

Other uses adjacent to the Convention Centre, including a seaplane terminal and possible commercial ventures, will require parking spaces. Recent submissions by the project consultants show a possible 80-150 spaces being created on the eastern edge of the building. The exact number provided and required has yet to finalized. The parking shortfall remains an outstanding issue that requires further work by the applicant.

(b) Integrated Viaduct and Convention Centre Structure

Although not an issue identified in January 2000, the ownership and maintenance of an integrated viaduct and convention centre structure was identified early in the current review process as a significant issue. Staff working with the Convention Centre consultants have outlined a solution that has the support of both parties. The proposed extension of Canada Place west to intersect with Thurlow Street would be within a street dedication. The City will lease back an airspace parcel to the Convention Centre allowing them to build, own and maintain the viaduct and convention centre structure. The upper surface of the viaduct will be City Street, and the lower level road which will run through the parcel leased to the Convention Centre will provide public access via a Statutory Right of Way.

(c) Other Infrastructure Issues

Standard practice will apply to the Convention Centre site regarding servicing and the construction of City infrastructure. During the rezoning process the obligations of the Convention Centre as they relate to City Services will be confirmed. The services required by the redevelopment of this area are somewhat different than those originally planned by Marathon as part of the Burrard Landing rezoning. Engineering staff are currently reviewing preliminary design submissions by the Convention Centre consultants. Issues identified in this review that require Council approval will be brought forward to Council.

(d) Emergency Access

Emergency access is a challenging issue for a project of this scale and context. Initial analysis indicates that there will need to be access provisions to deal with uses located on the water, as anticipated in the Burrard Landing ODP, and for associated occupancies along the waterfront edge. Discussions between City staff, including the Fire Department, and project consultants with expertise in this field have identified three potential approaches to providing this access. These options will be further analyzed in the context of other design parameters of the project. The choice among these options must reflect the balance of other objectives for the waterfront and project program. It is recognized that some design modifications could result.

(e) Summary of Engineering Review

In January 2000 staff flagged the need for a comprehensive parking, loading and access plan for proper review. On many aspects of this work we are still dealing with general project information and only preliminary analysis provided. Based on the latest information provided, staff have reasonable confidence that identified issues can be resolved with further work committed by the proponents and completed as part of a rezoning submission.

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4. Other Issues

This report has highlighted physical design issues identified to date. Plaza design has not been addressed in this report but remains a significant aspect to address prior to and through the rezoning process. Great potential exists for the plaza to be an outstanding civic space and, as in the case of Portside, in addition to urban design, matters of ownership, programming and operation need to be addressed.

Other aspects of the project including the City's financial interests will be reported separately. In previous stages of the convention expansion project (i.e. Portside and earlier) aspects including potential housing impacts, together with employment and training opportunities were addressed by the Province and the City. Prior to rezoning staff will report to Council on these matters.

(c) 1998 City of Vancouver