Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Standing Committee on City Services and Budgets

FROM:

Director of Current Planning, in consultation with the Directors of Social Planning, Cultural Affairs and the Carnegie Centre

SUBJECT:

Pantages Theatre (144 East Hastings) - Heritage Revitalization Agreement and City Financial Support

 

RECOMMENDATION

A. THAT Council endorse in principle the use of a Heritage Revitalization Agreement to assist in the rehabilitation of the "B" listed former Pantages Theatre at 144 East Hastings Street, with the following terms:

B. THAT Council approve a capital grant of up to $43,300, to the Pantages Preservation Society to assist with immediate conservation, security and cleaning of the Pantages Theatre; funding to be provided from the Downtown Eastside Revitalization capital funds approved in the 2000-2002 Capital Plan;

C. THAT Council authorize staff to enter into a Good Neighbour and Community Use Agreement with the Pantages Preservation Society, satisfactory to the Directors of Legal Services, Chief Constable and General Manager ofCommunity Services to include hours of operation, community employment opportunities and targets, community access to the facility at nominal rates, the number of pre-paid hours of use for Carnegie Community Centre, and conditions for the release of the grant identified in "B";

CONSIDERATION

D. THAT Council direct staff to report back on additional collaborations between the Pantages Preservation Society and the Carnegie Community Centre to ensure ongoing community programming.

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

The Transfer of Density Policy permits the transfer of density from heritage donor sites to receiver sites. The Policy also states that "preference will be given to proposals which use heritage buildings for cultural, social, recreational and educational uses, especially when that use is historically associated with the building." Through the Vancouver Agreement and other actions, Council has sought opportunities to improve the social, economic and health conditions in the Downtown Eastside.

Approval of grants require eight affirmative votes.

PURPOSE

This report recommends approval in principle of a Heritage Revitalization Agreement (HRA) for the former Pantages Theatre. It is proposed to secure the rehabilitation and protection of the exterior and much of the interior, and provide a density bonus of approximately 2 620 m2 (28,200 sq. ft.), provided that it is transferred off-site. If Council approves this recommendation, staff will prepare an HRA and a draft designation by-law for Council consideration at a Public Hearing. This report also discusses the opportunities the theatre presents for revitalization of the area and for neighbourhood building as it could be used for entertainment and activities which engage the entire community. This report recommends that the City agree to assist financially with short term repair and improvement costs.

BACKGROUND

Heritage Value: The Pantages Theatre was built in 1908 as part of the Pantages chain of 72 vaudeville theatres. All of Pantages' earlier theatres have been demolished, making this the oldest surviving one in North America. The theatre has operated under many names - most recently as the Sung Sing Theatre and, before that, as City Nights. Appendix A is a site map. Over the years, the interior has remained remarkably intact, despite the change from live performances to screening movies. Appendix B contains contemporary photos of the exterior and the interior (showing original proscenium arch, and boxes, all with elaborate plaster decoration). The exterior has been altered, especially at the ground level and the original cornice has been removed. The theatre also has heritage value for its supporting role among the many fine turn-of-the-century buildings that line this part of Hastings Street.

Proposed Renewal of the Theatre: The Theatre was purchased in 1999 by the Pantages Preservation Society, a registered non-profit Society. The Society has stated its intent to use the theatre for "festival-style movie presentations, comedy/vaudeville and dramatic performances, special event café-style jazz performances and general admission live music ensembles." The Society has also expressed an interest in making the theatre available to educational institutions and local community groups. There would be approximately 650 seats in the renewed theatre.

Revitalization of the Downtown Eastside and Complementary Role with Carnegie Community Centre: The theatre was once part of a glittering, lively entertainment area, however, it has been vacant since 1994. This report recommends that through the preparation of a Good Neighbour and Community Use Agreement, staff explore ways in which the re-opening of the theatre can benefit the local community, through the employment of local residents, the provision of affordable entertainment and making the building available to local groups. There is an opportunity to have the Pantages used, in part, as a complement to the nearby Carnegie Community Centre, especially as part of its arts-focussed 100th anniversary celebration. To help achieve the Vancouver Agreement's community building objectives, Carnegie would create an advisory group, composed of residents, community and arts organizations, and business people from the immediate area who are interested or involved in the arts, to guide the Centre's use of the Pantages.

DISCUSSION

Rehabilitation Work: The Heritage Commission has given support in principle for this project and will review the specifics of the conservation work when a DevelopmentApplication is made. The Society's stated intent is to restore the exterior at the ground level, to provide a new box office and restore the upper cornice. Inside, the original plaster work on the proscenium arch, boxes and balcony fronts will be repaired and repainted in original colours. Paint will be removed from the canvas murals on the walls in the balcony.

Timing of Project: It is appropriate for the City to support the density bonus at this time as there would be significant heritage benefits for the theatre, as well as benefits for DTES revitalization and community building (e.g. employment of local residents and affordable entertainment). The density bonus is well within amounts previously approved by City Council for other heritage projects, and will not have a significant impact on the density bank. The results of a consultant study on the density bank are expected shortly. The City has already approved a number of projects where the Central Area has been established as the receiver site(s) for heritage bonus density generated in another zoning district (e.g. 211 Columbia, 55 Water, 345 Water, 3838 Cypress).

Heritage Revitalization Agreement: The HRA would secure the rehabilitation and continued maintenance of the exterior of the building as well as certain interior features; limit the on-site density to "as built"; and establish a heritage density bonus of approximately 2 620 m2 (28,200 sq. ft.) for transfer to a site(s) within the Central Area. The estimated bonus amount has been determined on the basis of a marginal cost premium for upgrading the heritage building and specified interior components. This approach has previously been applied in Gastown and Real Estate Services advises that given the current market situation in the Downtown Eastside, this approach is applicable in this instance.

Financial Assistance to the Theatre Owners: The Pantages Preservation Society will rely on fund raising for much of the conservation work. If Council approves the bonus density request, it will take 2 -3 years before sufficient funds can be raised. As the building has been vacant for many years and has suffered from a leak in the roof and a lack of heating, there is a need for immediate attention before further damage occurs. As part of the neighbourhood rebuilding efforts supported by the City, it is in the long term interest to ensure that the theatre is conserved. It is recommended that the Council approve $43,300 from the Downtown Eastside Revitalization capital funds so that the theatre is secured from any further deterioration, appropriate security is installed, and a general exterior clean-up of the building is undertaken. A break down of costs is provided in Appendix C. Of the $2.5 million of funds approved in the 2000-2002 Capital Plan, $478,000 is currently unallocated.

Comments from Social Planning, Cultural Affairs, Central Area Planning and Police: In light of the applicant's proposed activities, the limited stage area, seating capacity, staff anticipate that the theatre will primarily be used to screen movies and for amplified music events. While staff have not reviewed the applicant's business plan in detail, we understand from the applicant that they propose to offer "movies and brews" on week nights and live bands on weekends. Given the City's policies on liquor licensing in the area, the applicant will need to consider alternate operational models which do not rely on revenues from liquor sales. Given this revenue constraint and the limited theatre producing/presenting experience of the owners, Cultural Affairs staff have concerns about the facility's operational viability. Staff recommend that the owner take advantage of the time needed to rehabilitate the theatre to seek partners or operating relationships with experienced live theatre venue operators.

Staff also note that while reuse of this theatre can help bring revitalization to the street, it may also bring conflict, certainly in the short term. The theatre is located close to the Health Contact Centre, at the heart of the illegal drug trade. Under current conditions, it would be inappropriate to operate a theatre which would attract several hundred patrons to this location as it would create significant policing issues. There are also several hundred housing units on this block and care must be taken to limit late night noise.

When conditions on the street are more stable, the Society may be able to operate the theatre and mitigate and minimize possible conflicts by working with the community. Staff propose to use a Good Neighbour and Community Agreement to guide employment targets, hours of operation, as well as a reasonable number of times per month which the facility is made available without cost to the community.

Comments from the Heritage Commission: At its meeting on March 12, 2001, the Commission resolved to recommend that the Pantages Theatre be eligible for a heritage density bonus and that the transfer of density policy be varied to permit a transfer to the Central Area and that the magnitude of the bonus be dependent on the appropriateness of the conservation approach. While commending the positive re-use of the building, the Commission asked for a more rigorous conservation approach with demonstrates an understanding of conservation principles.

Comments from the Pantages Preservation Society: The Society has indicated that it supports the Recommendations and Consideration Items in this report. In addition, it has submitted the following: "The Pantages Preservation Society will be very pleased to have the support of the City of Vancouver for the Heritage Restoration of the 1907 Pantages Theatre. This Historic Vaudeville Playhouse will once again attract thousandsof arts patrons from around the world to Vancouver's Hastings Street. Through the written support of the City of Vancouver, the Pantages Society will be able to raise the remaining funds necessary for the complete Heritage restoration of the theatre's façade, exterior ticket booth, interior proscenium arch, jewel boxes, orchestra pit, wall murals and the maple wood stage floor. The project plan will also include a complete redesign of the theatre's lobby, second floor washroom area, under stage dressing rooms and the fly tower.
Upon completion, the Restored Pantages Theatre will bring an estimated 30-40 new jobs to the neighborhood as well as aid in the City's ultimate goal for a rejuvenation of this once renowned area of western Canada. The Pantages Theatre will host events attracting more than 150,000 people annually to the Downtown Eastside, with direct spin-off expenditures of over $2.5 million dollars. This increased activity will result in the patronage of local restaurants, shops and other ancillary activities. The Pantages Theatre will be a pivotal project in the restoration of the Downtown Eastside, as a grand project of this nature will only help to encourage further Heritage restoration projects.
Entertainment and cultural venues are important components of healthy communities. The arts provide communities with the richness and texture that all great cultures share, and live performances and feature films are the most emotionally charged of all the art forms. Furthermore, the creativity of those who provide live entertainment in Vancouver should not be restricted because existing stages are too small or the number of live venues too few. Nor should patrons of the arts settle for anything less than a healthier selection of entertainment variety."

CONCLUSION

The Pantages is the oldest existing vaudeville theatre in Canada and can be an important heritage and cultural asset in the Vancouver Agreement's efforts to revitalize the Downtown Eastside. It is proposed that the City support a heritage density bonus for the building and provide short term capital assistance to help secure the building while further fundraising is undertaken and the conservation is being done. The long term protection of the exterior and certain interior features would be achieved with a municipal designation.

There are concerns about the current street situation and potential conflicts with users of the Pantages. However, in the interests of taking the initiative and being positive about the future of this building, Hastings Street and the DTES, staff would work towards addressing these concerns through a Good Neighbour / Community Use Agreement thatwould set terms for the release of the funds and maximize the potential viability and public benefits of this theatre.

* * * * *

cs020207.htm

Map Showing Location of Pantages Theatre

Photos of Pantages Theatre - Exterior and Interior

PANTAGES RESTORATION PROJECT
INFORMATION PROVIDED BY THE PANTAGES PRESERVATION SOCIETY

Monthly / Maintenance Actual Costs

Costs Incurred:

Salaries and Wages (Fixed Costs)
Project Management - Pantages Preservation Society $18,500.00
Architect $16,409.24
Development & Construction - NISA $10,000.00
Design Consultants - Structure Design $ 5,000.00
Total Salaries and Wages: $49,909.24

Service, Fees (Fix Costs)
Security: Gates, Rear Doors, Roof Access, Front Glass $12,800.00
Theatre Roof $12,000.00
City Permits/Inspections $ 1,000.00
Dehumidification Process $ 7,500.00
Exterior Facade Clean $ 5,000.00
Heating/Plumbing $ 5,000.00
Total Service, Fees: $43,300.00

Administration Costs (Monthly)

Theatre Mortgage** $ 3,600.00

Telephone - Telus (Alarm Monitor) $ 28.00
City of Vancouver - Properties (Encroachment) $ 9.58
Alarm/Security - IBS $ 80.25
Utilities - Hydro $ 415.53
Metered Water - City of Vancouver $ 24.75
Total Other (Administration) Costs $ 4,158.11

Total Fixed Costs: $93,209.24
Total Monthly Costs (Inclusive to 11/01/03): $91,478.42

Total Project Costs: $184,687.66

** Mortgage costs can be reduced upon refinancing.

 

cs020207.htm

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