Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Standing Committee of Council on Planning and Environment

FROM:

Director of Current Planning in consultation with the Director of the Housing Centre and Director of Social Planning

SUBJECT:

CD-1 Rezoning: 955 Burrard Street (Downtown YMCA) and 969 Burrard Street & 1017-1045 Nelson Street (First Baptist Church) -Major Planning Issues

RECOMMENDATION

CONSIDERATION

OR

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

· Central Area Plan: Goals and Land Use Policy, adopted in December 1991;
· Downtown District Official Development Plan and related Guidelines;
· RM-5B Multiple Dwelling District Schedule and related Guidelines;
· Heritage Policies and Guidelines, adopted in May 1976 and last amended in January 1998;
· Transfer of Density Policy and Procedure, adopted in January 1983 and last amended in July 1997;
· Affordable Housing Policies, adopted in May 1989 and last amended in May 1991;
· Downtown District Low Cost Housing Policies and Procedures, adopted in January 1995;
· View Protection Guidelines, adopted in December 1989 and last amended in December 1990;
· Interim City-wide Community Amenity Contribution Policy, adopted January 1999;
· Public Art Policies and Guidelines, adopted in June and November1994.
· Oakridge Langara Policy Statement, approved July 1995 and last amended March 1998.

SUMMARY AND PURPOSE

This report seeks Council direction on significant policy questions raised by a rezoning application submitted June 29, 2001 by Davidson Yuen Simpson Architects on behalf of the Downtown YMCA and the First Baptist Church (FBC) to rezone their sites at 955 and 969 Burrard Street and 1017-1045 Nelson Street from DD and RM-5B to CD-1.

The YMCA and FBC have formed a partnership to pursue redevelopment of their two sites so as to replace and expand their respective facilities and to develop some market housing on both sites. The development initiatives which they propose raise several significant policy questions. These require resolution in principle to clarify the extent of development opportunity on the site and to guide the applicant's preparation of a more detailed rezoning application and the subsequent staff and public review of the application. Staff are deferring normal rezoning application processing, including neighbourhood notification, until Council advice is obtained.

There are several potential density bonuses, floor space ratio exclusions and other mechanisms in City policies and practices which might support aspects of the density increases requested in this rezoning application. Staff have reviewed them to determine which might be supported in the present circumstances, and under what conditions.

Based on this assessment, staff recommend that Council consider a rezoning application for comprehensive development which at minimum achieves the retention of existing heritage resources, the replacement of existing affordable housing and the provision of child daycare. Other possible density increases, particularly for the provision of recreational facilities, are not so clearly supported in City policies and practises and are presented for Council consideration. Other aspects of this proposed increase in density are not supported by City policy. In all cases, staff recommend that the proposed comprehensive development of the YMCA and FBC sites achieve appropriate pro forma analyses, support by the Downtown and West End communities and the Vancouver Heritage Commission, and demonstrated neighbourhood fit, livability and urban design quality. Staff also recommend that no height increases be considered except those which are possible on the YMCA and FBC sites under existing DD and RM-5B zoning regulations and guidelines respectively.

SITE AND SURROUNDING ZONING

The site is comprised of several lots with an intervening lane and has a total site area of 8 043.4 m² (86,484 sq. ft.). (See map below and more detailed site information in Appendix G, the last page of this report.) The easterly, Burrard Street frontage is in the DD, in area "G" which is outside the CBD. The portion north of the lane, and at the corner of Burrard and Barclay Streets, at 955 Burrard Street, is zoned DD and contains the three-storey YMCA, a heritage building in Evaluation Group `B' on the Vancouver Heritage Register.

The southerly DD portion at the corner of Burrard and Nelson Streets, at 969 Burrard Street, contains the First Baptist Church, a municipally-designated heritage building in Evaluation Group `A' and the remainder to the northwest and fronting on Nelson Street is in the RM-5B West End District and includes a parking lot, two multiple conversion dwellings, and a three-storey rental apartment building at 1045 Nelson Street.

Figure 1. Site and Surrounding Zoning

The 

The site is located on the west side of Burrard Street which in this area contains a mix of institutions (in addition to the YMCA and FBC, there is St. Andrew's-Wesley United Church and St. Paul's Hospital), a hotel (Century Plaza) and a major mixed-use development (Vancouver Tower). The zoning boundary between the higher-density DD and lower-density RM-5B (West End) meanders through the blocks between Burrard and Thurlow Streets.

Across the street at 1012 Nelson Street is St. Andrew's-Wesley United Church, a municipally-designated heritage building (in Evaluation Group "A" of the Vancouver Heritage Register), and next to it construction is underway for a 28-storey market residential building at 1038 Nelson Street. Both of these form one site, zoned DD. Across the street at 970 Burrard is the 21-storey Electra, the former BC Hydro Building, now primarily in residential use, and Dal Grauer Substation (both are municipally-designated heritage buildings in Evaluation Group "A"). The large site at 900 Burrard (at Smithe Street), zoned CD-1, remains undeveloped. Other significant adjacent development includes Wall Centre, Phase 2, a 137 m (450 ft.) recently constructed hotel and residential tower.

PROPOSED DEVELOPMENT

The rezoning application contemplates considerable redevelopment of the YMCA and First Baptist Church sites. (See existing, permitted and proposed development summarized in Figure 2 on page 8. The site information in Appendix G is also a useful reference.)

· The following is proposed on the Downtown YMCA site (955 Burrard Street):

· The following is proposed on the First Baptist Church site (969 Burrard Street and 1017-1045 Nelson Street):

Staff note that the rezoning application on behalf of YMCA and FBC is not yet explicit about the heritage preservation commitments which these institutions are prepared to undertake, for the stated reason that neither can easily afford such effort. Staff also acknowledge that, while the amount of a heritage bonus will add allowable density to a site, it is calculated so as to be sufficient to cover heritage preservation costs. When this heritage bonus density is located on parts of the YMCA and FBC sites for market residential development, and sold to developers, it is unlikely to generate additional value, or at least this will be the staff assumption in the heritage bonus density calculation.

DISCUSSION

Density (Maximum Permitted Floor Area and Floor Space Ratio)

The residential and institutional land uses proposed in this rezoning application are permitted by the existing DD and RM-5B zoning on the YMCA and FBC sites, however the application seems ambitious about the increases in density it seeks on these sites. The maximum floor space ratio (FSR) on the YMCA site is proposed to be increased from 6.0 to 11.6, while on the portion of the FBC site which would be redeveloped it is proposed to be increased from 2.75 to 6.4 (like rezoning from RM-5B to DD). The overall density on both sites combined would increase from 4.05 to 7.64. Maximum permitted floor area would be increased from 31 911 m² (343,500 sq. ft.) to 61 384 m² (660,750 sq. ft.). This is an increase of 29 473 m² (317,250 sq. ft.), or 92 percent.

The central question is whether the proposed density increases can be supported by City policies, practices and precedents. To clarify the magnitude of development opportunity on the site, staff undertook a preliminary assessment of the potential FSR exclusions, increases, bonuses, density transfers and other mechanisms which are available through existing applicable City policies and practices. We have determined which might be supported in the present circumstances, and under what conditions and provisos.

The number, and complex layering, of potential FSR exclusions, bonuses and transfers in this one rezoning application is unprecedented in the City. To facilitate communication of the results of staff assessment in this present circumstance, staff have prepared the two tables on the following pages to list and summarize the many potential FSR exclusions, bonuses and transfers and related mechanisms which might apply to the YMCA and FBC sites. The complete analysis is provided in Appendix A. (Note: The numbering of each item in the tables corresponds to the numbering of sections in Appendix A.)

The YMCA Site at 955 Burrard Street:

Three of seven potential exclusions, bonuses, transfers or other mechanisms for increased density on the YMCA site can be supported on the basis of existing City policies and practices, as shown on Table 1. Staff therefore make RECOMMENDATION A(a) to (c) which would provide the following:

· transfer of density, 2 209 m² (23,776 sq. ft.), from the two YMCA lots at 1017-1019 Nelson Street,
· FSR exclusion for licensed child daycare facility, about 557.4 m² (6,000 sq. ft.), and
· bonus for the retention, restoration and designation of the YMCA heritage resource.

Approval of the first two would generate an increase of 2 787 m² (30,000 sq. ft.) in maximum permitted floor area, about 16 percent of the 17 837 m² (192,000 sq. ft.) which is requested. No more than this can be anticipated with any certainty. The amount of heritage bonus could be considerable but it will obviously depend on what those efforts towards the existing YMCA building will be. A very preliminary estimate is that preservation of the YMCA building's Burrard Street facade might require a bonus in the order of 2 322.5 m² (25,000 sq. ft.). This might be the subject of an off-site density transfer, although this could only be justified if the bonus is so large that it cannot be acceptably accommodated on the site.

Applying existing City policies, staff are not able to directly support an FSR exclusion or bonus for the estimated 4 831 m² (52,000 sq. ft.) of public recreational facilities in the new YMCA building. The DD ODP provides for the exclusion of needed social and recreational amenities from floor area measurement if they are ancillary facilities (i.e., accessory to a principal use on the site) and do not exceed 929 m² (10,000 sq. ft.). This is not that kind of space. The ODP also provides a bonus for needed public social and recreational facilities, but subject to being preserved in the public domain by way of a dedication and with a registered agreement securing public access and being operated by the City or its delegates (which could be the YMCA). The City also usually looks for security regarding funding for long-term operations. Staff suspect that the YMCA will not find these ownership constraints acceptable.

Table 1. Potential FSR Exclusions, Bonuses and Transfers on the YMCA Site

Type of Bonus or FSR Exclusion

Amount

Policy

Staff Assessment

1.1 heritage density bonus for the retention, restoration and designation of the YMCA heritage resource (evaluation group "B" on Vancouver Heritage Register)

to be determined
(sufficient to finance the heritage retention )

Heritage Policies

can be supported if surrounding redevelopment is sympathetic, and subject to pro forma analysis and support by the Vancouver Heritage Commission; heritage retention should be a requirement for any rezoning of the site

1.2 transfer of density from the two YMCA lots at 1017-1019 Nelson Street to the YMCA site

23,776 sq. ft.

Transfer of Density Policy

can be supported in a comprehensive development

1.3 FSR exclusion for portion of floor area of proposed YMCA for licensed child daycare facility

6,000 sq. ft.
facility

DD ODP Section 6 (I.)

can be supported subject to the customary City terms and conditions regarding ownership, standards, and licensing

1.4 FSR exclusion or bonus, for portion of floor area to be used for public recreational facility (and not school and residence or hotel)

100,000 sq. ft. facility is proposed, containing an estimated 52,000 sq. ft recreational facilities

DD ODP Section 6 (I and II.)

no clear basis for support, but there might be some precedent in the approval of YWCA redevelopment at 530 Hornby Street (CD-1 Rezoning in 1990)

1.5 off-site density transfer

100,000 sq. ft. requested

Transfer of Density Policy

not supported, unless it is heritage bonus density, and only if the total floor area which can be considered on the site on the basis of existing policies cannot acceptably be accommodated

3.1 a negotiated, site-specific Community Amenity Contribution (CAC) rather than an Interim City-wide flat rate CAC
(Note: Heritage Preservation is exempt.)

$3.00
per sq. ft.
for net increase in allowable floor area

Interim
City-Wide
CAC Policy

no clear basis for support
(Note: Policy provides for Council to chose between flat rate or negotiated approach if site size is 10 acres or more, or site is zoned for industrial use); however, Council can consider in-kind as well as cash payment

3.2 Development Cost Levies (DCL's) (Note: Social Housing and Churches are exempt.)

$2.50 per sq. ft. ($0.51 for Daycare)

DCL
By-law

exemptions or relief not generally available, except as noted, and through Heritage Revitalization Agreements.

Because the proposed YMCA facility does not meet the requirements for an FSR exclusion and because it cannot be supported as envisaged by the Y according to the City's practice with amenity bonuses, an increase in density for the proposed recreational facilities will depend on whether or not Council is willing to repeat an unprecedented decision, beyond normal policy, involving the YWCA at 530 Hornby Street. In the CD-1 rezoning for "Bentall V" at 550 Burrard Street in 1990, the 5 000 m² (53,821 sq. ft.) YWCA was excluded from floor area calculation in a manner similar to bonusing, but the property was not dedicated to the City. Instead, a right of first refusal for $1.00 in favour of the City was accepted to ensure the facility shifts to the public domain if the YWCA ever ceases operations at this location. (See more detailed discussion in Appendix A.) Should Council be prepared to consider this approach for the YMCA, staff have put a resolution forward for Council's CONSIDERATION (E).

The request for off-site density transfer, in the order of 9 290 m² (100,000 sq. ft.), is supportable only to the extent the proposal achieves any of six public objectives set out in the Transfer of Density Policy. Only the preservation of heritage resources qualifies for the YMCA site, as the proposal does not further the other objectives. Off-site transfer of a heritage bonus can be considered but only to the extent that such bonus cannot be acceptably accommodated on the site. No other component of allowable density, density available from exclusions or bonus density is supportable for transfer off site by current City policy.

It appears that payments for Community Amenity Contribution (CAC) and Development Cost Levy (DCL) for the proposed redevelopment of the YMCA site could be considerable. There is no alternative to these except that in-kind as well as cash payment can be considered for CACs, and DCL relief can be considered as an alternative to heritage bonus density through a Heritage Revitalisation Agreement. Both of these opportunities are presented to Council for CONSIDERATION (F).

The First Baptist Church Site at 969 Burrard Street and 1017-1045 Nelson Street:

On the First Baptist Church site, three of six potential exclusions, bonuses, transfers or other mechanisms for increased density can be supported on the basis of existing City policies and practices, as shown on Table 2. Staff therefore make RECOMMENDATION A(d) to (g), which would provide the following:

· bonus for premium costs of seismic upgrading of the building and the restoration and designation of the church interior,
· "shift" of potential "residual" density from the designated First Baptist Church to adjoining property at 1017-1045 Nelson Street,
· bonus for the provision of new affordable rental housing, and
· FSR exclusion or amenity bonus for social service facility.

It is not possible to estimate the density increase which approval of these recommendations can generate, and whether the full amount of 13 842 m² (149,000 sq. ft.) which is requested can be achieved. First, the amount of a bonus for an additional heritage commitment on the designated church will depend on what that commitment will be. Second, although there is an estimated 5 853 m² (63,000 sq. ft.) of potential "residual" density on the FBC site, staff will need to confirm this discretionary amount and so we cannot state with any certainty what portion of it could be "shifted" to the adjoining property. In addition, staff would compare the value realized through the density shift with the potential heritage bonus request and may determine that compensation for the new heritage offering would be fully satisfied through shifting residual density to the adjacent property.

Table 2. Potential FSR Exclusions, Bonuses and Transfers on the First Baptist Church Site

Type of Bonus or FSR Exclusion

Amount

Policy

Staff Assessment

2.1 heritage density bonus for the seismic upgrading and interior designation of the municipally designated First Baptist Church

to be determined
(sufficient to finance additional heritage)

Heritage Policies

can be supported, provided that compensation is based on the premium cost associated with seismic upgrading and restoration & designation of the interior, and subject to pro forma analysis and support by the Vancouver Heritage Commission

2.2 "shift" of potential "residual" density from the designated First Baptist Church to adjoining property at 1017-1045 Nelson Street

estimated
63,000 sq. ft.
maximum

Transfer of Density Policy

can be supported if there is additional heritage offering (interior designation and/or heritage premium for seismic upgrading); amount of "residual" density to be determined through a technical check and urban design analysis, and taking account of heritage bonus density (2.1 above)

2.3 density bonus for the provision of new affordable rental housing or social housing

proposed
20,000 sq. ft.
floor area
(existing
24,000 sq.ft.)

DD Low Cost Housing Policies

can be supported, subject to pro forma analysis and a Housing Agreement, and replacement of existing affordable rental housing on the site

2.4 FSR exclusion or bonus, for a portion of the floor area of the proposed community ministry building to be used as a social service amenity facility

proposed
20,000 sq. ft.
facility

DD ODP Section 6 (I and II.)

can be supported, if operated by a Council-approved non-profit service provider, if providing services identified as a civic priority, and if secured in the public domain to ensure public access

3.1 negotiated, site-specific Community Amenity Contribution (CAC) rather than Interim City-wide flat rate CAC Note: Heritage Preservation and Social Housing are exempt.)

$3.00
per sq. ft.
for net increase in allowable floor area

Interim City-Wide CAC
Policy

no clear basis for support
(Note: Policy provides for Council to chose between flat rate or negotiated approach if site size is 10 acres or more, or site is zoned for industrial use); however Council can consider in-kind as well as cash payment

3.2 Development Cost Levies (DCL's) (Note: Social Housing and Churches are exempt.)

$2.50 per sq. ft. ($0.51 for Daycare

DCL
By-law

exemptions or relief not generally available, except as noted, and through Heritage Revitalization Agreements.

Staff also wish to note that a heritage bonus might be the subject of an off-site density transfer to the extent that it cannot be acceptably accommodated on the site. However, there is no policy to support any further transfer of density off site related to other components of allowable density, FSR exclusion, bonus density, or "shifted" density.

Regarding the proposed community ministry building, the DD ODP and City policy provide two ways of treating this proposed social service amenity:

· As an amenity which is ancillary to the principal use of the site (Church), the zoning permits up to 929 m² (10,000 sq. ft.) to be excluded from floor area measurement in density calculation. As an ancillary amenity, however, no further area is excludeable.

· As a stand-alone social or recreational amenity offering a service felt to be a City priority, freely accessible to the public, secured in the public domain and operated independently of FBC, this facility would be bonusable under existing City policy.

In principle, the City has not approved FSR exclusions or bonuses for church owned and operated facilities in which general public benefit and accessibility are difficult to assess and then ensure. To do so in this case could grant a precedent with dramatic results as there are many, many church facilities like this in the city that would likely seek similar consideration. Accordingly, based on existing policy and with strong concern about the precedent, staff definitely do not support a general FSR exclusion beyond the 929 m² (10,000 sq. ft.) maximum allowed, or an amenity bonus for the ancillary Church "community ministry" facility. Nonetheless, if the rezoning application includes a proposed public service amenity which is qualifiable, staff recommend that it should be considered by Council. Staff therefore make RECOMMENDATION A(g).

Payments for Community Amenity Contribution (CAC) and Development Cost Levy (DCL) for proposed redevelopment on the FBC site could be considerable. There is no alternative to these except that in-kind as well as cash payment can be considered for CACs, and DCL relief can be considered as an alternative to heritage bonus density through a Heritage Revitalization Agreement. Both of these opportunities are presented to Council for CONSIDERATION (F).

Cautions:

As a general observation, the rezoning application faces considerable uncertainty about the density increases requested on the YMCA and FBC sites. Much of this uncertainty revolves around the nature and magnitude of heritage preservation commitments which the two institutions will be prepared to make in regards to the significant heritage resources on their sites. Some of the uncertainty pertains to the circumstances and conditions which governFSR exclusions and bonuses, particularly regarding the YMCA's proposed recreational facilities.

Maximum Building Height

In addition to increased FSR, the application seeks increases in maximum building height. (See additional discussion in Appendix B.)

YMCA Site

The maximum building height generally permitted by the DD ODP for this site is 91.44 m (300 ft.). In this area of the DD, the Development Permit Board may, in its discretion, permit buildings which exceed the height limit, up to 137 m (450 ft.), after taking account of overshadowing, view obstruction and other environmental criteria set out in the DD design guidelines. It can also be noted that the site is not in any of the Council-approved view corridors on the downtown peninsula. On the other hand, the site is also not in the area in which the General Policy for Higher Buildings allows consideration of building height above 137 m (450 ft.) and, in any event, this would involve an array of obligations probably beyond the capacity of the YMCA site, given the considerations currently requested.

Staff therefore support consideration of additional height on the YMCA site, in line with the 114.3 m (375 ft.) currently proposed and subject to complete impact assessment.

The First Baptist Church Site

The maximum building height permitted outright in the RM-5B District Schedule for the FBC site is 18.3 m (60 ft.). In this district, the Director of Planning or Development Permit Board may permit an increase in the maximum height to 58.0 m (190 ft.), subject to consideration of applicable Council policies and guidelines, and the submissions of surrounding property owners.

The application proposes a building height of 75.6 m (248 ft.), for market residential development in a tower at the western end of the site. Staff recommend that additional height be considered on this site but that it be limited to the conditional maximum of 58.0 m (190 ft.) currently allowable in the RM-5B District.

Form of Development (Urban Design)

While some of the density increases proposed in this rezoning application may be individually meritorious, staff still need to assess the cumulative consequence of the overall development in regard to massing, shadowing, views of surrounding residents, overlook and privacy and overall urban context. Depending on what the applicant brings forward in a more detailed application, it is possible that not all of the maximum density which isrequested might be comfortably accommodated on the site, even if it is supported by City policies or practices, or can be considered as a result of Council advice. Also, only a limited amount of the density proposed might be considered for transfer off-site (density related to heritage retention).

Staff have undertaken only the most preliminary urban design analysis of the application, pending resolution of policy issues and determination of the maximum density which can be considered on the site. In similar vein, the application has not been reviewed by the Urban Design Panel but has been to workshop only. (See minutes of UDP workshop proceedings in Appendix C.)

Engineering Services, Parking and Traffic

Staff have undertaken a preliminary review of the parking and traffic study submitted with the application and they have also reviewed the anticipated servicing requirements. These requirements and related advice should be noted by the applicant for the preparation of a more detailed rezoning application. Otherwise no significant issues are raised at this time. (See detailed commentary from Engineering Services staff in Appendix D.)

Public Art

All privately initiated rezonings resulting in increased floor area of 15 000 m² (161,463 sq. ft.) or greater participate in the City's Public Art Program as outlined in the Public Art Policies and Guidelines. A public art budget will be required, based on a rate of $10.23/m² ($0.95/sq. ft.) applied to all floor area included in FSR calculation. The policy does provide for the exemption of certain floor area, including:

- floor areas of existing buildings to be retained as part of a larger rezoning;
- floor areas related to heritage preservation;
- floor areas dedicated to the use by formally constituted non-profit societies providing childcare, community centre activities, neighbourhood house services, or Special Needs Residential Facilities; and
- government assisted housing and rental housing governed by rent controls.

Staff have reviewed the application and concluded that a public art contribution would apply to the proposed market housing on the YMCA and FBC sites, and also the residence (hotel) in the new YMCA facility.

PUBLIC CONSULTATION

The applicant has initiated a neighbourhood consultation program. An information package was delivered to the 5,700 property owners within a two-block radius of the site in June, 2001. Two Open Houses held in July were relatively well attended and provided considerable feedback which was diverse in perspective and areas of interest or concern. For example, immediate neighbours had questions about proposed building heights and tower locations while YMCA patrons, including some who were neighbours, asked about the period of time that the Y would be closed. Ongoing consultations with immediate neighbours, with staff in attendance, were initiated in early August and have been positive in tone.

This applicant outreach to the surrounding neighbourhood and broader community, and the resulting public feedback, is essential before staff will be able to conclude assessment of a detailed rezoning application.

APPLICANT COMMENT

The applicant was given a copy of this report and an opportunity to comment. The following comment was subsequently provided by George Rodger, Project Manager for the First Baptist Church / YMCA Strategic Alliance:

CONCLUSION

The development initiatives proposed by the YMCA and the First Baptist Church raise several significant policy questions with respect to the potential density bonuses, floor space ratio exclusions and other mechanisms in City policies and practices which might support components of the density increase requested in this rezoning application.

Staff have reviewed them to determine which might be supported by current City policies, and under what conditions. Based on this assessment, staff recommend that Council consider a rezoning application which achieves the retention of existing heritage resources, the replacement of existing affordable housing, the provision of child daycare, and, potentially, the provision of community service space. A possible density increase for proposed recreational facilities is not so clearly supported in City policies and is presented for Council consideration.

In all cases, staff recommend that the proposed comprehensive development of the YMCA and FBC sites achieve appropriate pro forma analyses, support in the Downtown and West End communities, support from the Vancouver Heritage Commission and Urban Design Panel, and demonstrated neighbourhood fit, livability and urban design quality. Staff also recommend that no height increases be considered except those which are possible under existing DD and RM-5B zoning regulations and guidelines.

Following Council direction on the issues described in this report, the applicant can prepare a more detailed, final rezoning submission, including pro forma analysis and detailed heritage proposals. Further work is needed by the applicant and staff regarding the opportunity to maintain or enhance the heritage resources on the site and to provide affordable rental housing, the site capacity for development, and, depending on Council advice, the provision of public-serving community service space in the FBC building and recreational space in the YMCA facility. When a revised application is received, staff will initiate public notification and undertake a detailed assessment of the heritage, non-market housing, and other elements of the application for report back to the City Council.

* * * * *

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APPENDIX A

PRELIMINARY POLICY ASSESSMENT OF PROPOSED DENSITY INCREASES

1. PROPOSED DENSITY INCREASES ON THE YMCA SITE

1.1. Heritage Bonus Density for YMCA heritage preservation and designation:

The Downtown YMCA building, constructed in 1940, is a "B" category building on the Vancouver Heritage Register (VHR). City Heritage Policies and Guidelines support protection of resources on the VHR. Category "B" and "C" buildings may be eligible for consideration of bonus density in exchange for designation, but must first be approved by Council. In this regard, the policy states:

Staff have little difficulty concluding that the YMCA building merits retention and heritage preservation. It is highly visible in a prominent heritage precinct comprised of the St. Andrew's - Wesley United Church, Dal Grauer Substation, The Electra (former BC Hydro Building) and First Baptist Church, all "A" buildings on the VHR and all municipally designated.

The amount of the heritage bonus will be commensurate with the degree of preservation offered on the site. The calculation will be based on the"premium" cost associated with retention of all, or part, of the heritage resource. Staff support consideration of a heritage bonus subject to submission of pro forma analysis and support by the Vancouver Heritage Advisory Commission.

Since heritage resources on the site could be enhanced or preserved at no net cost to the YMCA, preservation of this existing "B" building, or at minimum the original Burrard and Barclay Street facades, in a sympathetic surrounding redevelopment, should be an absolute requirement for consideration of any rezoning of the site.

Staff therefore recommend:

Rec. A. (a)

Staff also recommend:

1.2 Transfer of density from two lots on Nelson Street owned by the YMCA to the YMCA lot on Barclay Street:

The YMCA owns two small lots within the FBC redevelopment site (the vacant lots are addressed as 1017 and 1019 Nelson Street). YMCA and FBC have agreed between themselves to request a transfer of the RM-5B development potential of these lots to the YMCA site at 955 Burrard Street. At a maximum FSR of 2.75 in the RM-5B district, and a site area of 803 m² (8,646 sq. ft.), there is a potential of 2 209 m² (23,776 sq. ft.) for transfer.

Being within the entire site proposed for rezoning, staff believe this could be supported under the Transfer of Density Policy and Procedure, both to facilitate mixed-use development and to achieve urban design objectives. However, while this transfer shifts density to a site with less potential impact on adjacent RM-5B lands, that benefit would be somewhat negated by the additional density is being sought on the FBC site.

Overall, however, staff believe the requested density transfer from the two YMCA lots on the FBC site to the YMCA site can be considered, subject to acceptable overall urban design, livability, financial pro forma and related impacts of the comprehensive development proposed.

Staff recommend:

Rec. A. (b).

1.3 Child Day Care Facility:

The new YMCA building is proposed to contain a 557 m² (6,000 sq. ft.) child day care facility (see draft space budget in Appendix E).

Section 6 (I.) of the Downtown District Official Development Plan (DD ODP) provides for exclusion from floor area measurement for social and recreational amenities, including "ancillary facilities" such as "day care centres". Approval would be subject to customary City requirements regarding ownership, standards and provincial licensing.

Social Planning staff would describe the YMCA as an excellent operator of child daycare facilities, and note that the Y will be the operator of a new facility under construction at 1001 Beach Avenue.

Staff recommend:

Rec. A. (c).

1.4 FSR Exclusion or Bonus for the provision of a public recreational facility:

The Downtown YMCA offers a range of community centre-type activities such as fitness, aquatics, health and wellness programs, adult education and training programs as well as operating a residence (short-stay hotel). The Y proposes to replace the existing facility and to add some new programs such as childcare and child minding. The facility would remain about 9 290 m² (100,000 sq. ft.) in size. (See more detailed facility description in draft space budget in Appendix E).

Policies, Guidelines and Regulations: Section 6 (I.) of the DD ODP allows for the exclusion from floor area measurement for the provision of certain amenities. The maximum floor area which may be excluded for "ancillary facilities" is 20% of the allowable floor space, or 929 m² (10,000 sq. ft.), whichever is less.

Section 6 (II.) of the DD ODP provides for an FSR increase, or bonus, by the Development Permit Board for any needed public social or recreational facility, subject to prior approval by City Council. The ODP offers several considerations to be used in determining a bonus amount, and it provides that such a bonused facility can be preserved in the public domain and be operated by the City or its delegate.

Staff further note that density derived from FSR exclusion or bonus must be realised on the site where the amenity is sited and cannot be transferred or "banked".

City Procedures and Practices: The provisions of the DD ODP clearly limit FSR exclusion to ancillary facilities, which the YMCA building is not. On the other hand, the DD ODP amenity bonus provisions did not anticipate, and City practice to date has not approved, facilities of such large size as the existing or proposed new YMCA. Typically, an applicant proposes to build a fully finished public amenity, to the specification of the City, and would prepay twenty years of the amenity's operating costs in exchange for additional density of equal value on-site. The City secures the amenity for public use through legal agreements including a lease of the amenity space for the life of the building. The City sub-leases theamenity space to a non-profit society for a nominal rent with a condition that the society raise sufficient funds to create an endowment fund. The interest from the endowment fund is to cover the operating costs at the end of the developer's 20-year prepaid commitment and to ensure the public benefit for the life of the building.

The awarding of a bonus and the granting of a sublease to a non-profit organization is subject to City Council approval. Bonuses are only considered for non-profit organizations which provide significant public benefit and public use of the amenity space. The organization must also have a demonstrated track record, have managed a public facility and, in the City's judgement, the capacity to raise sufficient funds to meet the future obligations of the amenity space. In all instances the amenity facility and its programs must be open and available to the general public.

Applying existing City policies, staff are not able to directly support an FSR exclusion or bonus for the estimated 4 831 m² (52,000 sq. ft.) of public recreational facilities in the new YMCA building. The DD ODP provides for the exclusion of needed social and recreational amenities from floor area measurement if they are ancillary facilities (i.e., accessory to a principal use on the site) and do not exceed 929 m² (10,000 sq. ft.). This is not that kind of space. The ODP also provides a bonus for needed public social and recreational facilities, but subject to being preserved in the public domain by way of a dedication and with a registered agreement securing public access and being operated by the City or its delegates (which could be the YMCA). The City also usually looks for security regarding funding for long-term operations. Staff suspect that the YMCA will not find these ownership constraints acceptable.

Alternative Approach: The 5 000 m² (53,821 sq. ft.) YWCA at 535 Hornby Street, which was part of a CD-1 rezoning for the "Bentall V" at 550 Burrard Street in 1990, was treated somewhat as a hybrid. First, the CD-1 By-law for the site excludes the YWCA floor area from floor area calculation. However, the excluded floor area exceeded the 929 m² (10,000 sq. ft.) maximum set out in the ODP. Second, the mechanism to secure the amenity was similar to an amenity bonus. The facility, which is owned by the YWCA and located on an air space parcel, is secured by way of a covenant on title in favour of the City restricting use to recreational, cultural, educational, public service and charitable uses as the City shall approve, and prohibiting commercial uses. As well, the YWCA entered into an Option to Purchase in favour of the City ensuring that the City may purchase the air space parcel for $1.00 if it is not used for the permitted purposes for 18 months or more.

Although the Oakridge Langara Policy Statement (OLPS) does not apply to this site, it is useful context information here to note that the rezoning policies in the OLPS provide for the replacement and/or expansion of existing institutional uses in mixed-use development. The OLPS allows for the full replacement of existing institutional floor area in addition to the potential residential floor area. In the case of institutions such as Lubavitch and St. JohnAmbulance, approved floor space increases amounted to 38 to 40 % respectively over and above the residential floor space allowances. The OLPS also allows a further 20 percent increase in FSR in exchange for the provision of City-desired public amenities in the form of a cash payment or in-kind community amenity contribution. Council supported the full extent of floor space on both the Lubavitch and St. John Ambulance sites because a satisfactory form of development was achieved.

Staff also wish to remind Council that requests for increased density to provide for funding for the institutional replacement or operational endowments for non-profit organizations have not been approved, particularly in the case of Lubavitch in Oakridge Langara.

Policy Issues and Implications: With hundreds of social service, cultural and community non-profit organizations operating in the City, the use of exclusions and/or bonusing must be used with care. In addition to amenity bonusing, the City uses density bonusing for many other public purposes including replacement affordable housing and heritage retention. Changes to the current policy and practice, by either adding to the type of eligible amenity or by "banking" or transferring amenity bonus density off site, would have significant impacts on these tools.

Second, the YMCA proposal varies in significant ways from the YWCA precedent. The proposed new 9 290 m² (100,000 sq. ft.) facility includes a 200-room residence, 2 694 m² (29,000 sq. ft.) residence (hotel use), regional YMCA administrative offices, ESL classrooms, and a youth employment centre. (See draft space budget for the new YMCA in Appendix E.) Staff estimate that 4 831 m² (52,000 sq. ft.) of the proposed facility, at most, might be reasonably included in any consideration as a public recreational facility.

Recommendation: Because the proposed YMCA facility does not meet the requirements for an FSR exclusion and because it cannot be supported as envisaged by the Y according to the City's practice with amenity bonuses, an increase in density for the proposed recreational facilities will depend on whether or not Council is willing to repeat an unprecedented decision, beyond normal policy, involving the YWCA at 530 Hornby Street. Should Council be prepared to consider this approach for the YMCA, staff have put a resolution forward for Council CONSIDERATION:

1.5. Off-site Density Transfer:

As noted earlier, the YMCA seeks an off-site density transfer of 9 290 m² (100,000 sq. ft.) which can contribute capital funds for the new facility. Staff advise that off-site transfers can only be considered under the provisions of the Transfer of Density Policy and Procedure, and only if the transfer will assist in achieving one or more of the following public objectives:

a) to preserve heritage buildings or site, listed on the Vancouver Heritage Register, particularly where it is demonstrated that residual and/or bonus density required for the buildings' rehabilitation cannot be used on the heritage site;
b) to create desirable public open space or park land;
c) to facilitate development in areas with mixed use zoning;
d) to achieve and improve urban design;
e) to help implement Council-approved view protection policy in Downtown South; and
f) to help protect existing Single Room Occupancy Stock in Downtown South.

Only the first of these objectives can reasonably be pursued on this site. In this regard it remains to be seen what heritage commitment will actually be put forward for detailed assessment.

As noted earlier, Heritage Policy requires that all heritage density bonus amount be utilized on the heritage site. Off-site density transfer will be considered only if all of the heritage density bonus cannot be acceptably accommodated on the site. In the present case, it is not anticipated that the heritage density bonus for the retention and designation of the existing YMCA building, or facades, will be so large that it cannot be accommodated on the site.

Staff recommend:

2. PROPOSED DENSITY INCREASES ON THE FIRST BAPTIST CHURCH SITE

2.1 Heritage Bonus for Additional Heritage Offering at the designated First Baptist Church:

Until now City Council has not been asked to compensate an owner of a pre-designated site for further conservation efforts. With the advent of interior designation and the need for seismic upgrading, "new heritage offerings" present themselves. Staff support commitments that further preserve and protect additional aspects of heritage resources, and we support this in principle in the case of the FBC site. However, it is necessary to properly assess the notion of "new heritage offerings" in light of Council policy and past City practice.

Seismic Upgrading: Legal designation of a property does not encumber the owner to the extent that seismic upgrading would be a requirement to physically maintain the building against earthquake forces. Of the 300 or so designated heritage sites in Vancouver, only those protected after 1990 and a few others have been seismically upgraded. The cost associated with seismic upgrading can be high. Past City practice has been to bonus an owner for the "premium" cost associated with seismic upgrading in exchange for designation. The premium is typically the additional cost incurred when approaching the upgrading in a heritage sensitive manner.

In the case of FBC, the City has an opportunity to further preserve the church through requiring seismic upgrading as a condition of rezoning approval. Compensation for the cost of the seismic upgrading could either be considered the value realized through the ability to "shift" the potential "residual" density and/or through a bonus density calculation. In the case of FBC, any bonus density generated is proposed to be used on site and calculated on the basis of the premium cost associated with seismic upgrading the heritage building.

Interiors: The current municipal designation of the First Baptist Church applies only to its exterior and structure. It does not protect the interior of the building from changes at the owners discretion. Heritage legislation adopted in 1994, provides for compensation to an owner in return for designation of interior features. In addition, the heritage protection gained through seismic upgrading helps conserve those elements in the event of an earthquake. In 1996, Council endorsed funding for a City-wide study that identified interiors of heritage importance. Staff identified 138 addresses and Council requested that staff conduct a focus study with the owners of these resources to assess any potential conflicts with listing their buildings on the Vancouver Heritage Register (VHR). In many cases these sites are already listed on the VHR because of their exteriors. Given competing work program initiatives, the focus study has yet to be conducted, however staff have successfully advanced interiors protections through a number of voluntary interior designations brought forward to Council, e.g. Hotel Georgia, Stanley Theatre, Grauer House and ChineseConsulate. However in each case, the building in question was a listed heritage resource only and designation had not yet occurred.

The First Baptist Church would be the first designated building coming forward to Council for interior designation. Its interior was included within the resources noted in the 1996 Interiors Study and protection of this significant heritage space would make an important contribution to the overall protection of the city's heritage resources. In the case of FBC, any bonus density generated is proposed to be calculated on the basis of the premium cost associated with interior conservation.

Summary: Staff believe that new heritage "offerings" should be an absolute requirement for consideration of any rezoning of the site. Staff wish to emphasize that a density bonus for seismic upgrading or for restoration and designation of the interior of a municipally-designated heritage building has yet to be undertaken in the City, although both are positive efforts towards heritage conservation. Staff suggest that through a pro forma analysis of both conditions, compensation is either to be commensurate with the value realized through the potential"residual" density "shift", and/or as bonus density to be used on site and generated through a cost premium calculation.

Staff wish to recall from other discussions that the rezoning application on behalf of FBC and YMCA is not yet explicit about the heritage preservation commitments which these institutions are prepared to make. The stated reason is that neither can afford such effort. However, according to City heritage policies, the amount of any heritage bonus is sufficient to cover heritage preservation costs, and so the heritage resources on the site can be enhanced or preserved at no cost to FBC and YMCA. Heritage preservation effort should thus be an absolute requirement for consideration of any rezoning of the site.

Staff recommend:

And also:

Rec. B.

2.2 Transfer of potential "residual" density from the municipally designated First Baptist Church site to the balance of the FBC site:

Heritage Policies: To preserve a heritage resource on the Vancouver Heritage Register (VHR), the "Transfer of Density Policy and Procedure" permits density to be transferred from heritage sites located on the Downtown Peninsula to other sites also on the peninsula (including the DD and RM-5B districts) if the residual and/or bonus density cannot be utilized on site without undue impact on the heritage resource and the surrounding properties.

To date, Council has approved many heritage density transfers in exchange for legal designation of VHR buildings. It should be noted though that Council's practice has been to require that the value of any transferred density be re-invested in the conservation of the heritage building.

Pre-Designated Buildings: The First Baptist Church is already a protected heritage resource. It is one of approximately 41 buildings which were designated prior to 1976 at a time when compensation was not a requirement. To date, the off-site transfer of "residual" density from a heritage building which is already a designated site has not been considered and approved.

A key issue here is that the First Baptist Church could be the first of many designated buildings seeking off-site transfer of residual density. It is not known at this time the amount of potential "residual" density that might be available on each and all sites which were designated prior to compensation practice, however staff's early estimate is that it could be several million square feet. The availability of so much density for off-site transfer could have a major adverse effect on the value of heritage density. A large drop in value of transferable heritage density (otherwise known as the "density bank") would considerably diminish the incentive for the preservation of at-risk buildings that are not as yet designated. (Note: The Planning Department has retained a consultant to forecast the potential supply and absorption of transferrable density and make recommendations for managing the transfer policy so it remains an effective heritage conservation tool.)

A transfer of potential "residual" density is not completely out of the question. A "shift" in density from one lot to an adjoining lot within a larger comprehensive development and site, and within the same zoning district, has been permitted by the Development Permit Board. In the case of First Baptist Church, it appears that a similar shift could be considered because the recipient site is immediately adjacent the donor site, it has the same owner, and it is within the same proposed comprehensive development site. However, staff note that the zoning of the two lots differ, DD and RM-5B. In this instance, a new heritage offering on the designated site could justify a density shift. In the present case, a new heritage offering should come in the form of designation of interior features and/or seismic upgrading.

Calculation of "residual" density: Where a designated heritage building is located within an ODP (discretionary zoning) district, there may not be any potential "residual density" to utilize or transfer. What is in the DD ODP as the maximum density permitted on any given site is at the discretion of the Director of Planning or Development Permit Board and is not a de facto development right. Therefore, in order to determine the amount of density that may be shifted, an urban design assessment using all applicable policies and guidelines would be required. The stated estimate of approximately 5 853 m² (63,000 sq. ft.) of "residual" density (on Figure 2 earlier) may not be the actual residual density once a thorough urban design analysis and public process has been completed.

Summary: Staff believe that potential "residual" density on the FBC site could be considered for transfer to the adjacent FBC-owned RM-5B site, subject to acceptable urban design, livability, financial pro forma and related impacts of the total amount of development proposed. While it is not explicitly requested in the rezoning application, density transfer from the FBC lot to the YMCA site could also be considered, as they are within the same DD zoning district and the same proposed comprehensive development site. In all cases, the goal should be to preserve the First Baptist Church and any value realized through the transfer of density should be put back into conservation efforts on the building through interior designation and/or seismic upgrading.

Staff recommend:

2.3 Increased Density for Affordable Rental or Non-Market Housing:

Council policy is to maintain and expand housing opportunities for low and moderate income households with priority being given to downtown lodging housing residents, seniors on fixed income, the physically and mentally disabled, and single parent families with children. Directions from CityPlan outline the use of incentives to encourage the private sector to provide lower cost housing or require a percentage of new units to be more affordable. CityPlan directions further state that maintaining a supply of rental housing is important.

Section 3 (11.) of the DD ODP provides additional floor area for low cost and social housing. However, rezoning has generally been the primary tool in the creation of social housing, particularly with new communities and major projects throughout the city. Non-market housing has also been generated through rezonings on small sites, usually inconjunction with institutional, charitable or religious non-profit societies. A methodology for calculating the amount of increased floor space warranted for providing social housing is outlined in the Downtown District Low Cost Housing Policies and Procedures.

In this context, this rezoning application should be given the benefit of policies and practices for proposals that include social and/or affordable housing. Housing Centre staff note that the application proposes 16 722 m² (180,000 sq. ft.) of market housing on the site, and 1 858 m² (20,000 sq. ft.) of affordable rental or non-market housing. Staff clearly recommend support for the proposed affordable housing, although details about this would be provided only in a more detailed application. However, an important consideration is the fact that there is existing affordable rental housing on the site which would be demolished, approximately 35 dwellings in a 3-storey apartment building and two multiple conversion dwellings at the western end of the site.

Staff note that nothing would stand in the way of a demolition permit for this existing housing, except that a permit be obtained for new development on the site. City policy requires that any loss of rental housing be reported to Council, and that would be done. The policy that any rate of change in excess of 2 percent be addressed with mitigation measures would not come into play since West End development has been far below such a rate. In the context of a rezoning however, there is an opportunity to ensure that affordable rental housing can continue to be provided on the site at no economic hardship for the property owner through the provision of an FSR increase. Staff recommend that such an increase be provided, to be calculated through pro forma analysis, and subject to securing the affordable rental housing through a Housing Agreement.

Staff would go a step further, given the importance of affordable housing in the city generally and in the West End in particular, staff recommend that the existing affordable rental housing which would be demolished should be replaced, before consideration of any additional FSR on the site.

Staff offer three further considerations in regard to the proposed affordable rental housing:

a) Relocation of tenants will be subject to RM-5B and other City requirements. The applicant states that displaced tenants would be accommodated through phasing -- the new affordable housing would be built on the part of the site which is presently vacant (the church parking lots) and demolition of the existing housing would occur only after occupancy of the new affordable housing. No tenant would be displaced against their will, and arrangements for this should be a condition of rezoning approval.

b) The affordable rental or non-market housing should meet standards for livability, and standards for the provision of amenities for the individuals or families that are to be housed.

c) The overall density of the development proposal needs to be consistent with objectives for the site and the area, to be assessed as part of the rezoning.

Overall, staff believe that a density increase for new affordable rental housing, which would replace existing affordable housing, can be considered, subject to pro forma analysis and a housing agreement, and subject also to acceptable overall urban design, livability, financial pro forma and related impacts of the comprehensive development proposed.

Staff recommend:

And also:

2.4 Bonus or FSR Exclusion for the provision of a social amenity facility:

The First Baptist Church proposes to develop a 1 858 m² (20,000 sq. ft.) "community ministry" building to supplement existing church ancillary space, and to replace a small amount of space now provided at the western end of the site (in the Hobbit House). (See draft space budget in Appendix F.) In its existing space, FBC currently operates several community facilities including a drop in centre which offers a range of programs from ESL classes, to preschool parent/child drop-in to Friday evening meals, a youth drop-in centre, a community office and the Vancouver Christian Counselling Centre.

Policies, Guidelines and Regulations: Section 6 (I.) of the DD ODP allows for the exclusion from floor area measurement for the provision of certain amenities. The maximum floor area which may be excluded for "ancillary facilities" is 20% of the allowable floor space, or 929 m² (10,000 sq. ft.), whichever is less.

Section 6 (II.) of the DD ODP provides for an FSR increase, or bonus, by the Development Permit Board for any needed public social or recreational facility, subject to prior approval by City Council. The ODP offers several considerations to be used in determining a bonusamount, and it provides that such a bonused facility can be preserved in the public domain and be operated by the City or its delegate.

Staff further note that density derived from FSR exclusion or bonus must be realised on the site where the amenity is sited and cannot be transferred or "banked".

Policy Issues and Implications: As an amenity which is ancillary to the principal use of the site (Church), the proposed FBC "community ministry" building exceeds the 929 m² (10,000 sq. ft.) maximum FSR exclusion.

As discussed earlier regarding the proposed new YMCA facility, with hundreds of social service, cultural and community non-profit organizations operating in the City, the use of exclusions and bonusing must be used with care. To date, Council has not approved exclusions or bonuses for community services operated by churches. There are currently over 300 churches/places of worship in Vancouver. While many provide services and programs within their facilities to the broader community, broad public access to the facility and in particular, to faith-based services and programs such as counselling are particularly problematic to assess.

Community Needs: While the applicant offers many worthy services and programs to the community, there are additional needs in the neighbourhood including full-time facilities for youth, such as those offered by Dusk to Dawn (DTD) Resource Centre. DTD currently occupies temporary space in the neighbourhood and securing a permanent facility for this program is a Social Planning priority. While the church offers a youth shelter one night per week, staff are seeking a more permanent daily program and level of service in a dedicated and self-contained facility.

Recommendations: In principle, the City has not approved FSR exclusions or bonuses for church owned and operated facilities in which general public benefit and accessibility are difficult to assess and then ensure. Accordingly, based on existing policy, staff would not support a general FSR exclusion beyond the 929 m² (10,000 sq. ft.) maximum allowed, or an amenity bonus for the ancillary Church community ministry facility.

However, an amenity bonus could be considered on this site if the proposed facility is operated by a non-profit social service organization in a dedicated facility, i.e., not integrated into church facilities and activities, and secured through the lease of the space and programs and services available to the general public. If the rezoning application was to include a proposed public service amenity which is qualifiable as a stand-alone social amenity facility offering a service felt to be a City priority, freely accessible to the public, secured in the public domain and operated independently of FBC, staff believe such a facility would be bonusable under existing City policy. Staff therefore recommend:

3. OTHER

3.1 CAC Relief:

Community Amenity Contributions (CACs) will apply to some of the proposed development (payment is a condition of rezoning enactment) . The Interim City-Wide flat rate for the net increase in allowable floor space is $32.29 per m² or $3.00 per sq. ft. CACs do not apply to non-market housing, tax-exempt churches, and floor areas or bonuses (on-site, transferred or banked) related to heritage preservation.

Staff wonder if an in-kind payment rather than cash payment might be appropriate given the opportunity for provision of public-serving uses and amenities, such as child day care facility and social service space. Staff therefore present the following Council CONSIDERATION:

3.2 DCL Relief:

Development Cost Levies (DCLs) will apply (payment is a condition of building permit issuance). The city-wide rate for the net increase in developed floor space in residential, commercial and all other uses except industrial and child daycare is $26.91 per m² ($2.50 per sq. ft.) DCLs do not apply to social housing and churches exempt from taxation. Staff will need to confirm that FBC's 3 716 m² (40,000 sq. ft.) of proposed community service space and non-market housing would qualify. But the balance, including the YMCA's proposed 9 290 m² (100,000 sq. ft.) facility, would be subject to DCLs.

There is possibility of, and precedent for, DCL relief as an alternative to heritage bonus density. This is particularly relevant if there is possibility that the full amount of a heritage bonus density cannot be acceptably accommodated on the site. Staff do not think this is likely on either the YMCA or FBC sites. However, depending on the full range of FSR exclusions, amenity bonuses and related mechanisms which Council might be prepared to consider, staff present the following Council CONSIDERATION:

 

APPENDIX B

PRELIMINARY ASSESSMENT OF PROPOSED BUILDING HEIGHTS

In addition to increased FSR, the application also seeks increases in maximum building height. On the basis of preliminary urban design analysis and negotiations with the applicant staff believe the subject sites can accommodate some additional height although perhaps not to the extent initially requested.

Currently, the maximum heights permitted by the zoning range from 18.3 m (60 feet) for any building on the FBC site, and 91.44 m (300 feet) for any tower on the YMCA site. The proponents wish to increase the maximum height limits for these two buildings to 75.6 m (248 feet) and 114.3 m (375 feet) respectively.

Figure 3: Proposed Building Heights

 

YMCA (DD, Area B)

FCB (RM-5B)

Present Maximum

91.44 m (300 feet)

18.3 m (60 feet)

Discretionary or Conditional Maximum

137 m (450 feet) discretionary

58.0 m (190 feet) conditional

Proposed Maximum

114.3 m (375 feet)

75.6 m (248 feet)

Proposed Increase

23 m (75 feet) above 300 feet

57.3 m (188 feet) above 60 feet or
17.6 m (58 feet) above 190 feet

Regarding the proposed tower on the YMCA site, staff note that DD zoning seeks to ensure that new development is compatible with existing surrounding development. While the maximum height of buildings in area `G' is 91.44 m (300 feet), the Development Permit Board may, in its discretion, permit buildings which exceed the height limit, up to 137 m (450 feet) after taking particular account of the overshadowing, view obstruction and other environmental criteria set out in the applicable design guidelines.

It should be noted that the site is not in any of the Council-approved view cones on the downtown peninsula (see Map 4 of the DD ODP). On the other hand, the site is not in the area in which the General Policy for Higher Buildings allows consideration of building height above 137 m (450 feet) and, in any event, this would involve an array of obligations probably beyond the capacity of the YMCA site, given the considerations currently requested.

Staff therefore support consideration of additional height on the YMCA site, in line with the 114.3 m (375 feet) currently proposed and subject to complete impact assessment.

In the RM-5B District, the maximum height of a building shall not exceed 18.3 m (60 feet), but the Director of Planning or Development Permit Board may permit an increase in the maximum height to 58.0 m (190 feet) provided that the livability and environmental quality of the surrounding neighbourhood is not unduly harmed, and provided that it first considers all applicable policies and guidelines adopted by Council, the submission of any advisory group, property owner or tenant, and the effects on public and private views, sunshine, privacy and open spaces.

The building height proposed on the RM-5B portion of the site is 75.6 m (248 feet), which exceeds the maximum in this district. While the residential tower under construction across the street at 1038 Nelson Street has an approved height of 28 storeys, it is in a sub-area of the DD in which maximum building height is 91.44 m (300 feet). There is no basis for approving or supporting increased building height in the RM-5B District above the conditional maximum of 58 m (190 feet).

Staff recommend:

Rec. D

 

APPENDIX C

URBAN DESIGN PANEL WORKSHOP

Proceedings of July 11, 2001

Address:
Use:
Zoning:
Application Status:
Architect:
Owner:
Review:
Delegation:

Staff:

955-969 Burrard Street - WORKSHOP
Mixed
CD-1
Rezoning
Davidson Yuen Simpson
YMCA and First Baptist Church
First
Ron Yuen, Dane Jansen, George Rodger, James Cheng,
Robert Lemon
Phil Mondor, Jonathan Barrett

· Introduction: Phil Mondor, Rezoning Planner, introduced this preliminary rezoning application. It is a joint proposal by the YMCA and First Baptist Church to rezone their two properties to help fund new facilities and services for both organizations. Staff consider the proposed land use to be entirely appropriate. The increased density being sought, however, is very significant, effectively doubling the redevelopment potential of the site. As well, some significant increase in maximum permitted building heights is being proposed. Because of the ambitious density increase being requested the proposal will be presented to City Council with an Issues Report to seek Council's direction and advice. Existing policies will need to be considered as well as how well the site accommodates the density in terms of form of development, and how the proposal fits the neighbourhood context. Because the proposal is preliminary the plans are schematic and the various options explored by the applicant are included in the presentation material.

Members of the Panel, staff and the applicant team assembled around the model for further review of the proposal. Mr. Mondor briefly described the site zoning context and the development proposal for the site. Jonathan Barrett, Development Planner, reviewed the four options being considered. An informal general discussion and question period followed. In particular, the Panel was asked to consider the following issues:

- shadowing and view impact;
- vehicular and pedestrian movement systems;
- how the character fits in with the neighbourhood;
- whether any other options might be considered; and
- whether further material analysis is necessary.

· Panel's Comments: The Panel was generally supportive of the direction this project is going. Following are some of the points made:

Use:

- compelling uses that the Panel would want to see continue on these sites.

Density:

- it is a very aggressive proposal in terms of the amount of density being sought;
- the detail and resolution will determine whether this amount of density will work;
- comfortable with the density shown - it seems to fit okay;
- there is a lot of density but it seems to fit okay, however, the numbers are huge and cause some unease - how it is treated in terms of the built form in more detail will make it easier to evaluate;
- agree it is aggressive;
- there is a lot of building on the site which calls for articulation of building form and careful tower design. They deserve to be manipulated in a way that maintains view corridors and recognizes and allows for the proximity from one building to another; and
- this is super aggressive - doubling the density and doubling the height which is worrisome. It would take a lot of convincing, with many other options explored.

Options:

- there are probably a few other options that can be considered;
- comfortable with the applicant's preferred option;
- the options are a little bit "what if", with no substantiation in terms of justification of the density being presented - it needs to be proven out in a more detailed and rational argument;
- like the preferred option tower siting because there is an arc of towers forming around the two churches, set back enough that they create a backdrop to the churches;
- pleased with the townhouse approach which begins to recall the earlier row houses in the West End;
- prefer the options that push the towers away from the West End; more comfortable with having the density along the Burrard corridor;
- this is four separate projects, with the church site being a little more straightforward. A larger floorplate might be considered so that the building has some flexibility in terms of size and height;
- preferred option for the Y would be Option C with building fronting the street, and D for the church with the series of courtyards;
- in the lower realm, have a problem with massive 7-storey podium that stretches half way down the block; wonder why that couldn't have courtyards as well, with some carving out to develop more courtyard and a softer figure ground for the podium;
- the 7 storeys on Burrard - whatever is done there ought to be pulled back in some semi respectful way to the existing facade;
- the church site should be less aggressive in terms of massing, taking some of that density and putting it on the Y site; there should be much less height on the Nelson site, respecting the scale and character of the West End; and
- there are options with more height -- if this project proceeds would like to see an option that considers the bigger city form issues with some analysis from different view points in the city as to why you couldn't build a lot higher. Bring the building forward to strengthen this weak point of Burrard Street.

Lane and Open Space Treatment:

- like the idea of the lane being developed as a mews; the detailed treatment will be very important;
- the ministry building provides some transition of scale between the church and the tower mass behind it, but perhaps the townhouse vocabulary along the lane could be more continuous as opposed to the five or six storey mass of the ministry building that abuts the church at that point. Maybe the overall mass of that building could hold itself away from the church more;
- support the proposal for the lane (we have yet to see a good example of this concept in the city);
- there is no open space shown that really adds to the neighbourhood;
- the mews needs a lot of effort put into it in order for it both be the main vehicular entry/exit point as well as a pedestrian corridor. Perhaps some of the building podium elements could be reduced somewhat to create more cloistered and intimate open spaces around the base;
- the parking and vehicular circulation system needs to be given a lot of consideration;
- lanes have been neglected but can be a very positive attribute; and
- the townhouse base along the mews is a nice idea.

Heritage:

- would prefer a fresh start on the Y - it will be very problematic to make the facade work well;
- a good opportunity to save and revitalize two strong Vancouver institutions;
- not a favourite downtown landmark building but if it is going to be saved the problem is with the base of the existing building;
- struggle with the notion of saving the heritage facade of the Y and how you make it work, e.g., the present relationship between the Y and the church seems comfortablebut adding storeys to the Y could be problematic - perhaps the additional storeys could be stepped back;
- the Y tower should have its own identity and presence. The heritage facade stuck on a 7-storey building is going to be much more challenging from an architectural point of view. It will also be a challenge to achieve visibility; and
- setting back the Y tower from Burrard is appropriate because it holds back from the Y's heritage facade.

 

APPENDIX D

COMMENT FROM ENGINEERING SERVICES

Engineering Services staff have reviewed this preliminary proposal and provide the following comments to assist in the preparation of a more detailed rezoning application for the site. Should this rezoning proceed Engineering Services would be seeking the following improvements and clarifications:

- Consolidation of the lots for each site.

- Clarification of the charges on title for each site and provision of a charge summary. This should be submitted with any future rezoning application for these sites.

- Clarification of the "lane mews" concept is needed to determine what if any impacts it may have on the existing laneway. (If improvements or encroachments are intended then it is suggested a separate application to the General Manager of Engineering Services be submitted to finalize what may be acceptable.)

- A preliminary review of sanitary sewer servicing indicates potential upgrading of the adjacent sewer main with a preliminary cost estimate of $200,000.

- Impacts on the existing storm sewers cannot be determined at this time, additional detail is needed, but the likelihood of upgrading should be noted.

- Water servicing requirements for fire protection cannot be determined until the proposal is solidified and fire flow demands can be determined. Upgrading is possible based on the scenarios shown in the application.

- Undergounding of any new services from the closest existing suitable service point and a review of the impacts of any BC Hydro service upgrading on the neighbourhood will be necessary.

Preliminary parking comments are as follows:

- The general parking provisions of the Vancouver Parking By-Law are to be available and residential parking is to be as per West End standard of a minimum of 1/80 m² of GFA, but no more than 2.2 spaces per dwelling unit and a maximum 10% greater than the minimum.

- Church sanctuary parking is to be provided at a rate of 1 space per 5 seats and a maximum of 10% greater than the minimum, other church related uses are to provide parking per Area III of D.D. for minimum and maximum parking provisions.

- YMCA parking to be determined by the Director of Planning in consultation with the General Manager of Engineering Services.
- Residential loading to provide 1 class B space for each 200 dwelling units, with the requirement rounded to the nearest whole number.

 

APPENDIX E

DRAFT SPACE BUDGET FOR PROPOSED NEW DOWNTOWN YMCA APPENDIX E

Functional Area

Some Space Breakdowns

G.S.F.

Civic Purposes

A.

Public & Entrance
Support Spaces for the facility

Main Lobby Meeting Area
Food Services
Spectator Area
Entrance & Control Desk
Shipping Receiving Shops, etc.

6,000

Program and Operational support for all services delivered from this Facility

B.

Metro Administration Space

Metro Office & Conference Area

5,000

YMCA Staff and Board Executive Offices - Staff and Volunteer Training Centre

C.

Child Care Centre
Child Minding Space

Babysitting Room
Licensed Child Care Area

6,000

Licensed Child Care for Downtown Residents and Workers and Child minding for adults using the services of the building

D.

International College

Classrooms & Learning Spaces & Labs

5,000

International Programs and Exchanges and English as a Second Language Services

E.

Public & Social Meeting Space

Meeting Rooms, Multi-Purpose Room & Classrooms

6,000

Adult Education - Leadership Development Programs, Community Meeting Spaces

F.

Youth Employment Centre

Classrooms, Offices, Labs

3,000

Employment Training - Entrepreneur Training - Community Computer Labs

G.

Community Health Fitness & Recreation

Gymnasium, Track & Conditioning Room, Courts & Multi-purpose Health Studios

20,000

Health Programs, Recreational Sports, Leadership Training and Skills Development Membership and Participation options, Volunteer Fitness Leader Training

H.

Aquatics Space

Pools & Deck Areas
25 Metre Pool & Teaching Pool

8,000

Learn to Swim - Healthy Exercises - Recreation - Family Swim Programs - Training for Swim Instructors

I.

Change Rooms

Men's & Women's Lockers
Youth Lockers
Membership Plus Lockers
Special Lockers

12,000

To Support the Human Service and Membership programs in the facility.

J.

Residence

200 Rooms & Special Rooms

29,000

Short and longer term - Affordable Residence space for students, elderly persons, tourists and those who need Emergency Shelter

TOTAL PROGRAMME

TOTAL

100,000

  

* Final space programme may change to reflect schematic design process and final design development.

NOTE: Parking for 100 vehicles also required.

 

APPENDIX F

DRAFT SPACE BUDGET FOR PROPOSED FBC COMMUNITY MINISTRY BUILDING

Functional Area

Sq. Ft.

Civic Purposes

A.

Multi-Purpose Hall/Gym

300 seat room with platform, washrooms, showers/change rooms

3,800

Inter-agency meetings, music/drama programs, games, banquets & receptions

B.

Coffee House/Light Meal Facility

Restaurant, commercial grade kitchen which would also serve Multi-Purpose Hall, washrooms

2,000

Replaces/augments programs currently in Hobbit House which provides church subsidized meals Fri-Sat-Sun, ESL classes, English conversation in a café setting, Workaholics Anonymous, Paper Cup (a Sat. night meal, music, conversation program for 30-50 street youth under age 24)

C.

Seniors Lounge/Reading Room

Lounge space for 50 seniors; adjacent to coffee house; handicapped accessible

1,500

Expand existing programs for seniors to provide support, information, and social activities

D.

Counselling Centre

Larger room, therapy rooms,
reception area

1,500

Replaces church subsidized Vancouver Christian Counselling Centre which serves 400-500 people per month (75% non-church people)

E.

Foundation Office

Large office, meeting room

600

First Baptist Foundation has funded programs for Lord Roberts Elementary School, Coast Foundation, etc.

F.

Community Office/
Education Centre

Office space, 6 classrooms, mini kitchen, reception area washrooms

5,300

Office for community minister in charge of coffee house-restaurant & Shelter* program. The Shelter provides a Tuesday night dinner for 100 homeless or Single Room Occupancy hotel residents, overnight shelter & breakfast for 10-15 and ongoing support; Office for International Student/ ESL program co-ordinator; classrooms, seminar rooms; refugee reception and sponsor interview area

G.

Youth Centre

Meeting spaces, games room mini kitchen, washrooms

3,000

Replaces facility used for church youth activities - programs open to all teens and early twenties; Paper Cup coffee house program planning

H.

Audio Visual Room

Soundproof seating for 75, facility to edit videos, etc.

1,500

For concerts, recitals, presentations; music rehearsal space

I.

Utilities and common areas

  

800

  

TOTAL PROGRAMME TOTAL

20,000

  

* Shelter program and Internationals will continue to use 1,100 sq. ft. gym and kitchen facilities in existing church building

APPENDIX G

SITE COMPOSITION, OWNERSHIP, AND DEVELOPMENT POTENTIAL

Address

Legal

Owner

Site Area
(sq. ft.)

Existing
Development

Existing
Zoning

Max.
FSR

Development
Potential (1)

Net Potential

Requested
Potential

955 Burrard

Lots C and 4 E½ & W½, BLK 7, DL 185, PLN 92

YMCA

34,608

YMCA
50,000 sq. ft.

DD

6

207,648

207,648

400,000

969 Burrard

Lots 17 & 18, BLK 7, DL 185, PLN 92

FBC

17,292

Church
40,752 sq. ft.

DD

6

103,752

63,000 (est.)

261,000

(incl. 40,752 for existing church)

---

Lot 16 E½, 17 & 18, BLK 7, DL 185, PLN 92

FBC

4,323

Church

RM-5B

2.75

11,888

95,104

---

Lot 16 W½, BLK 7, DL 185, PLN 2

FBC

4,323

vacant

RM-5B

2.75

11,888

1017 Nelson

Lot 15 E½, BLK 7, DL 185, PLN 2

YMCA

4,323

vacant

RM-5B

2.75

11,888

1019 Nelson

Lot 15 W½, BLK 7, DL 185, PLN 2

YMCA

4,323

vacant

RM-5B

2.75

11,888

1021 Nelson

Lot 14 E 30ft, BLK 7, DL 185, PLN 2

FBC

3,930

MCD
?? sq. ft.

RM-5B

2.75

10,808

1025 Nelson

Lot 14 ex E 30ft, BLK 7, DL 185, PLN 2

FBC

4,716

MCD
?? sq. ft.

RM-5B

2.75

12,969

1045 Nelson

Lot 13, BLK 7, DL 185, PLN 2

FBC

8,646

apt. building
24,000 sq. ft.

RM-5B

2.75

23,777

Total

86,484

114,752 sq. ft.

    

406,504

365,752

661,000

(1) Development Potential in the DD is subject to discretion. The ODP provides that a "maximum permitted density (floor space ratio) shall in no case exceed the amount shown for each of the density areas within the district as illustrated on Map 1". For the area denoted by the letter `G' in which the site is located, the ODP provides that "the total density for all permitted uses shall be floor space ratio 6.00, except that office uses shall not exceed floor space ratio of 5.00".
In the RM-5B District, the regulations provide that "the floor space ratio shall not exceed 1.00 except that the Director of Planning or the Development Permit Board, as the case may be, may permit an increase in the floor space ratio to any figure up to and including 2.75." The regulations also provide that "the floor space ratio for sites 20.2 m or less in width does not exceed: (i) 2.0 on corner sites with a minimum site area of 800 m²; and (ii) 1.5 on all other sites" Although there are several such small lots on the FBC site, they would be consolidated to form a much larger site which does meet the minimum width and site area requirements.

pe011108.htm

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