POLICY REPORT
URBAN STRUCTURE
Date: April 30, 2002
Author/Local: P.Mondor/7727RTS No. 02645
CC File No. 5304
Council: May 14, 2002
TO:
Vancouver City Council
FROM:
Director of Current Planning, in consultation with the General Manager of Engineering Services and the Director of Real Estate Services
SUBJECT:
801 West Georgia Street (Hotel Georgia): Rezoning from DD to CD-1
RECOMMENDATION
A. THAT the application by Bing Thom Architects Inc., on behalf of Allied Holdings Inc., to rezone the site at 801 West Georgia Street (Lots F and G, Block 41, D.L. 541, Group 1, NWD Plan LMP 42609) from DD (Area A) to CD-1, to permit a 50-storey mixed-use (residential and hotel) tower, be referred to a Public Hearing, together with:
(i) revised plans received January 23, 2002,
(ii) draft CD-1 By-law provisions, generally as contained in Appendix A, and
(iii) the recommendation of the Director of Current Planning to approve the application, subject to conditions as presented in Appendix B;AND FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 By-law for consideration at the Public Hearing.
B. THAT the applicant be advised to make application to amend the Sign By-law, to establish regulations for this CD-1 in accordance with Schedule "B" (DD), including a provision that signage should not be located at a height exceeding 137 m (450 ft.), and that the application be referred to the same Public Hearing;
AND FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law for consideration at the Public Hearing.
C. THAT, subject to approval of the rezoning at a Public Hearing, the Director of Legal Services be authorized to enter into a registered modification of the Heritage Revitalization Agreement with the owner of the Hotel Georgia, to delete the heritage density bonus floor area because it will be included in the CD-1 By-law; and
D. THAT, subject to approval of the rezoning at a Public Hearing, the Noise Control By-law be amended to include this CD-1 in Schedule A;
AND FURTHER THAT the Director of Legal Services be instructed to bring forward the amendment to the Noise Control By-law at the time of enactment of the CD-1 By-law.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A, B, C and D.
COUNCIL POLICY
· Central Area Plan approved on December 3, 1991
· Central Business District Policies as amended to February 7, 1997
· DD ODP as amended to December, 2001, and Downtown (except Downtown South) Design Guidelines as amended to December 14, 1993
· Heritage Policies and Guidelines as amended to January 20, 1998
· Transfer of Density Policy and Procedures as amended to July 29, 1997
· View Protection Guidelines as amended to December 11, 1990
· General Policy for Higher Buildings approved on May 6, 1997PURPOSE AND SUMMARY
This report assesses an application to rezone this site from DD (Downtown District) to CD-1 (Comprehensive Development District) to allow dwelling use in a part of the downtown (Area A) where it is not permitted, a small increase in density, a small increase in maximum building height, and parking relaxations.
Proposed redevelopment would retain the existing Hotel Georgia, a designated heritage building, and demolish the adjacent parking structure to construct a 50-storey tower containing 21 floors of hotel use (including six levels of above-grade parking) and, above that, 29 floors of dwelling use. Redevelopment would utilize previously-approved heritage bonus density transferred from the Hotel Georgia, a new heritage density bonus which compensates for the cost of accelerated delivery of seismic upgrading work on the HotelGeorgia, and the purchase and transfer of additional heritage density from a donor site elsewhere on the downtown peninsula.
A building height of 141.7 m (465 ft.) is proposed, exceeding the maximum of 137 m (450 ft.), with a mechanical penthouse and decorative roof to 154.4 m (506.6 ft.), which is within the Cambie/12th view cone maximum height. On February 21, 2002, Council approved a recommendation from the Director of Current Planning to process the application in the normal manner rather than refer it to a Higher Building Advisory Panel.
Staff support the application and the Director of Current Planning recommends that it be referred to a Public Hearing and approved subject to conditions.
BACKGROUND
Site, Context, and Surrounding Zoning: The 2 787 m² (30,000 sq. ft.) site measures 76.2 m (250 ft.) along Howe Street and 36.6 m (120 ft.) along Georgia Street. The Hotel Georgia stands prominently at the northwest corner of Howe and Georgia Streets (Lot F). It is a 12-storey building with a full Georgia Street frontage of 36.6 m (120 ft.) and Howe Street frontage of 45.7 m (150 ft.). There is an ancillary 4-storey parking/retail structure on the north-east portion of the site (Lot G) with a frontage of 30.5 m (100 ft.) on Howe Street.
Figure 1. Site and Surrounding Zoning
Significant surrounding development includes the Hong Kong Shanghai Bank of B.C. Building (22 storeys) across the lane, the Metropolitan Hotel (17 storeys) immediately abutting to the north-east, the Four Seasons Hotel at Pacific Centre (32 storeys) across Howe Street, and the Art Gallery and Courthouse Square across Georgia Street to the south-west.Built in 1926-27, the Hotel Georgia is listed in the "B" evaluation category on the Vancouver Heritage Register. The hotel has continued to operate as a first-class hotel under a succession of owners. It is a very good example of the Georgian Revival architecture style, both on its interior and exterior. Together with the Hotel Vancouver and the former Court House, it contributes to an important grouping of heritage buildings that enclose the Court House Square on three of its sides.
The site is located in the heart of Area A in the DD in which the greatest densities (floor space ratio 9.0) and building height (137 m or 450 ft.) may be approved in the Downtown. Area A and Area B to the north-east also represent the Central Business District (CBD), a part of the Downtown in which dwelling use is not permitted.
Previous Approval: On December 1, 1997, the Development Permit Board (DPB) approved, subject to Council approving proposed bonus density, a Preliminary Development Application (DE402550), which proposed to preserve the Hotel Georgia and to demolish the parkade to accommodate a 486-room, 45-storey hotel tower. Below-grade parking, with extension under the lane, was proposed. The DPB granted preliminary approval (approval in principle) for the application, subject to a number of conditions. The conditions were never satisfied.
On April 8, 1998, City Council enacted By-law No. 7886 to authorize Council entering into a Heritage Revitalization Agreement (HRA) with the owner and By-law No. 7887 to designate the Hotel Georgia as heritage property. The HRA provided a heritage density bonus to preserve the exterior and some significant interiors of the building, and also to achieve a heritage-sensitive seismic upgrade which would be undertaken when the proposed abutting hotel tower was constructed. (See Additional Background in Appendix C.)
Proposal: Due to changing hotel market conditions and a changing hotel industry, the previous all-hotel proposal did not proceed and the existing Hotel Georgia therefore remains at risk of earthquake damage. The owner advises that hotel development is now regaining viability, but changes in the hotel industry strongly recommend an associated 2 322.5 m² (25,000 sq. ft.) conference room. Because this cannot be accommodated on the 1 115 m² (12,000 sq. ft.) site, only a smaller hotel addition is feasible; but this by itself would not provide the financial return needed to support the seismic upgrading. (Some expansion of the ballroom in the existing hotel is proposed if this rezoning application is approved, but would be pursued as an unrelated development permit application.)
To undertake a viable redevelopment, the owner proposes residential use in the upper part of the tower. This rezoning application proposes a 50-storey building and a change in land use in the upper 29 floors from hotel use to residential use. A 110-room hotel addition is now proposed rather than 486 rooms. There are 314 rooms in the existing hotel. (See development statistics in Appendix F.)
DISCUSSION
The main issues raised by this application:
· change of use
additional heritage benefit required
CBD office capacity
livability of residential use in CDB· density
small increase for above-grade parking
· form of development
proposed building height exceeding maximum of 137 m (450 ft.)
above-grade parking
vehicular access· parking
relaxations requested
parking below City lane (no longer part of the application)1. Change of Use: From Hotel to Dwelling Use
Dwelling Uses are not permitted in Areas A and B of the DD, also referred to as the Central Business District (CBD). Rezoning is required to substitute residential floor area for some of the commercial space which can be approved on the site.
In 1997, Council approved an amendment to the Central Area Plan whereby "throughout the CDB, residential zoning should only be considered when it is confirmed that the unused office inventory in the CBD is maintained for the projected 20 year office space demand," and also that "residential zoning should be considered where the rezoning also facilitates the retention of a heritage building ...".
This confirmed an earlier policy which Council established in 1993 that residential rezonings and "applications proposing increases in residential FSR may be occasionally considered, on a case-by-case basis, depending on the following factors:
· facilitating heritage or significant business support facilities;
·compatibility with surrounding land uses;
· impacts on nearby development now and in the future;
· residential livability; and
· proximity of other existing housing or residential amenities."While not specifically applicable, it is noteworthy and relevant that in 1996, Council approved that "new housing in or immediately adjacent Robson Street (Howe to Homer) should be designed to accommodate the impacts of licensed establishments."
1.1 Additional Heritage Commitment: The HRA approved in 1998 provided a heritage bonus of 16 192.5 m² (174,300 sq. ft.) for the retention, restoration, heritage-sensitive seismic upgrade and municipal heritage designation of the existing Hotel Georgia, including the exterior and some significant interiors (Main Lobby, Ballroom, Tudor Room and York Room). Because heritage retention has already been secured, an additional heritage benefit is required in the present application.
No time-line was identified in 1998 for completion of the seismic upgrade. It was simply understood that it would be undertaken when a new building was constructed next door. Given the current hotel market, it is likely that the parkade would remain for a number of years more and there would be no seismic upgrade of the existing hotel until redevelopment occurs. The building would thus remain at risk of earthquake damage.
Staff believe that completion of seismic upgrade, within a specified period of time in the immediate future, represents an additional heritage benefit which would meet the policy requirement for rezoning to residential use. We also believe that this accelerated delivery of heritage-sensitive seismic upgrading merits some additional heritage bonus density.
In a memo dated March 7, 2002, staff in Real Estate Services conclude that the estimated cost of advancing the seismic work on the existing hotel equates to a bonus density of approximately 1 672 m² (18,000 sq. ft.). (See comments in Appendix E) The Vancouver Heritage Commission unanimously supported the application on March 11, 2002. (See comments in Appendix D.)
1.2 Zoned Office Capacity in the CBD: A principal concern about rezoning for residential use in the CBD is that it diminishes the zoned office supply capacity. Such a concern does not arise here because office supply capacity in the CBD will not be affected (except of course for the development of hotel rather than office space, as can occur on other CBD sites). The commercial floor area on the site, including both the existing hotel and proposed new hotel addition and its retail and service uses, 26 531 m² (285,583 sq. ft.), would have a floor space ratio (FSR) of 11.1, exceeding the maximum FSR of 9.0 in this zoning district. For this reason, a consultant's office supply impact study to be submitted with a rezoning application, as called for in the Central Area Plan, was not requested.
Downtown business associations have either voiced no opposition to the application (Urban Development Institute, Downtown Vancouver Association, and the Vancouver Board of Trade) or expressed support for it (Building Owner's and Manager's Association).
1.3 Residential Livability: The livability of the proposed dwelling use is in some doubt due to the likelihood of noise complaints in this part of downtown because of entertainment uses and street and lane traffic, including numerous service vehicles and tour buses. Given that an air conditioning system is not yet proposed for the dwellings units in this building, acoustic requirements which are met only if windows are kept shut would not satisfactorily mitigate likely noise impacts.
Although concern is alleviated somewhat because habitable residential floors begin at the 26th storey, to ensure that noise impacts are mitigated staff recommend as a condition of design development, the provision of an air conditioning system for the dwelling units which gives their occupants a choice between opening windows and keeping them closed.
Another livability concern is raised by the proximity of the four lowest habitable residential floors to the adjacent Hong Kong Shanghai Bank of B.C. office building across the lane. Staff recommend that the privacy and view impacts of this proximity be addressed through an appropriate orientation and layout of the dwelling units on the lane side of the building to maximize privacy and views.
2. Density
The maximum floor area is proposed to be increased from 45 750 m² (492,465 sq. ft.) to 50 082 m² (539,093 sq. ft.), or 9.5 percent, to provide for above grade parking area of 6 202 m² (66,757 sq. ft.), which the applicant had initially thought was not counted in FSR calculations, as is the case with parking at or below grade. For FSR calculation purposes in the DD, only 70 percent of this area is counted, or 4 341 m² (46,730 sq. ft.). (See development statistics in Appendix F.)
The floor area of the proposed new tower would utilize the existing unused density on the site under existing DD zoning, plus the heritage bonus density which was approved by Council in an HRA in 1998. The additional density which is needed for above-grade parking would be obtained from: bonus of 1 672 m² (18,000 sq. ft.) for acceleration of seismic upgrade in the existing Hotel Georgia, and heritage bonus density of 2 669 m² (28,730 sq. ft.) purchased and transferred from a donor site elsewhere in the city.
The FSR for the site was increased from 9.0 to 16.41 by the heritage density bonus approved in 1998. Additional floor area for above-grade parking, obtained through additional heritage density, would increase the FSR to 18.0. The FSR of the new tower on its part of the site would be 23.8. Staff acknowledge this is extraordinary, but feel it is offset in part by thesignificant public open space south of Georgia Street in Courthouse Square and that the impacts of the proposed massing and height of the building are acceptable. The proposed high density is also not unique. There are other buildings in the CBD which, on their part of a larger site or development, have density near this magnitude.
3. Form of Development
3.1 Building Height: A maximum building height of 141.7 m (465 ft.) is proposed, and mechanical penthouse and decorative roof reaching a further 12.7 m (41.6 ft.) to 154.4 m (506.6 ft.). An "alternate scheme" was also submitted, for consideration only, which proposes to increase the decorative roof height by a further 5.5 m (18 ft.), to 158.5 m (520 ft.).
The site is within Area A of the DD in which maximum building height (measured to parapet rooftop of the uppermost habitable floor) is 137.2 m (450 ft.). The site is also identified in the General Policy for Higher Buildings as a probable site for a higher building significantly exceeding current height limits but respecting view cone height limits.
The proposed height is 4.6 m (15 ft.) above the maximum, however it is within the building mass which was supported in the previous proposal, and the 4.6 m increase is not deemed to be significant. On February 21, 2002, after the application was presented to the Planning and Environment Committee for information, Council approved a recommendation from the Director of Current Planning that the application be processed in the normal manner, and not through the Higher Building Advisory Panel process.
The site is within the 12th Avenue/Cambie Street view cone which has a height limit of 154.4 m (506.6 ft.) at this location. The proposed total building height would not encroach this limit. [Note: The maximum building height calculated for view protection includes all appurtenances such as mechanical/elevator penthouses, decorative roofs and aerials. Building height for zoning purposes is calculated only to the roof parapet of the uppermost occupied space.]
The proposed height does exceed the maximum height of the Queen Elizabeth Park view shed at this location, 110.9 m (331.1 ft.). In recent years, a number of buildings which would enhance the downtown profile have been permitted to exceed the Q.E. Park view shed. As on these previous occasions, and recalling that encroachment was approved in 1997, staff support encroachment of the Q. E. Park view shed because the proposed building mass and height will contribute positively to the downtown skyline.
The application was reviewed at Urban Design Panel on February 6, 2002 and received unanimous support (see Appendix D). Staff support the small increase in building heightproposed. The alternate scheme, which would encroach the 12th Avenue/Cambie Street view cone by 4.3 m (14 ft.), is not supported and not put forward for consideration.
3.2 Above-Grade Parking: Six levels of above-grade parking are proposed (for 153 hotel spaces) because it would be very difficult to provide all proposed parking spaces (341) on this small and difficult site except at great depth and with physical difficulty. (The below-grade parking is proposed to provide 188 residential spaces.)
Although permissible, above-grade parking is generally discouraged in the Downtown. The applicant recognized the design challenge which this raises and proposes a facade treatment that responds to the scale and rhythm of the adjacent Hotel Georgia, including the dimensions and position of its windows. The Urban Design Panel thought the negative aspects of above-grade parking were carefully handled and referred to the proposed facade treatment as a "very elegant solution."
Staff support the applicant's proposal, given there is an existing parkade on the site providing several levels of above-grade parking, and because the particular constraints of this site are such as to not constitute a precedent that would encourage above-grade parking elsewhere in the Downtown. Further design development at the development application stage is recommended to ensure a high-quality of urban design and architectural detailing which are sympathetic to the surrounding buildings and the pedestrian environment.
3.3 Ground Floor Uses and Development: The ground floor is proposed to include on-site bus and taxi parking, vehicular access to loading and parking (both above- and below-grade parking), and a small lobby providing separate elevator access to the new hotel and the dwelling units above it. One vehicle access from Howe Street is proposed, as exists at present, and one from the lane, forming a drive-through porte cochere.
With at least a third of the frontage taken up by vehicle access, the proposed arrangement would detract from the pedestrian realm at the street property line. However, staff have concluded that, on balance, the proposed porte cochere is the most reasonable means of handling vehicular requirements and accommodating all bus and taxi parking on site and not on City street or lane, as required by recent Parking By-law amendments. Staff sought to avoid any lane access whatsoever, due to the compromised nature of the lane on this block, but the negative impacts of two points of access on Howe Street were judged to be unacceptable. Further design development is recommended to ensure the best possible pedestrian-friendly environment in these difficult circumstances, including a very high quality treatment of all exposed surfaces in the porte cohere.
The design of the ground floor at the property line also raised a concern with the Urban Design Panel that it did not relate well to the tower above. Further design development istherefore recommended to achieve a more sympathetic relationship between the ground floor and the tower above and also the adjacent Hotel Georgia.
4. Parking
4.1 Parking Relaxations: The existing Hotel is served by 140 parking spaces in the adjoining parkade. The existing and new hotel combined would require 179 spaces. Relaxation to 153 spaces is requested, and relaxation in the ratio of small car spaces. This is a smaller relaxation than was approved in 1997 (from 411 spaces to 209). Very little relaxation is requested for residential parking spaces (188 proposed) as the owner wishes to provide all required residential parking for marketing reasons. Relaxation in the maximum ratio of small car spaces is requested, from 25 percent to about 45 percent, although wider spaces than normal are proposed.
Relaxation in parking numbers is generally supported by staff, however the increased ratio of small car spaces seem excessive, especially for the hotel parking. This matter will be subject to further review at the development application stage.
4.2 Sub-Lane Parking: The application, as received January 23, 2002, proposes six levels of underground parking. It was also proposed to extend these below the abutting lane in order to reduce the difficulties anticipated in the layout of parking spaces and manoeuvring aisles and ramps on this small site. Engineering staff do not support the application while it includes parking, required exiting and portions of loading facilities under the lane.
A similar proposal for below-lane parking was contained in the previous preliminary development application in 1997 and was recommended by staff to the DPB for approval, subject to submission of a separate application to Engineering Services for the use under the lane. It was also made clear to the applicant that approval of Council, the affected public utilities companies and the abutting owner across the lane, would be required and could not be guaranteed. The applicant never pursued the matter with Engineering Services.
Planning staff believe, on the basis of the previous DPB preliminary and conditional approval, that it would be reasonable to again consider the proposed lane encroachment. However, in a letter and plans dated April 18, 2002, the applicant has advised they will not be pursuing the proposed parking and ancillary facilities under the lane, but will pursue a seventh level of underground parking instead. The reason is that construction of the new building will require use of the lane as a staging area, but this would be compromised by lane excavation. As the project proceeds the applicant may consider an application to Engineering Services for the use under the lane, and if they do so it would be reported separately to City Council. However, such use is no longer planned and it is discussed here only because it is shown in plans submitted with the original application.
CONCLUSION
Planning staff support the application, as do Engineering Services staff now that the application does not propose any encroachment on public road right of way. The Director of Current Planning recommends that the application be referred to a Public Hearing and be approved, subject to the conditions presented in Appendix B.
- - - - -
APPENDIX A
801 West Georgia Street
DRAFT CD-1 BY-LAW PROVISIONSA CD-1 By-law will be prepared generally in accordance with the provisions listed below:
1. Uses
Add Dwelling Units to the list of Uses permitted in DD sub-area A, subject to a condition that dwelling uses may be approved if the floor space ratio for commercial uses on the site is equal or greater than 9.0.
2. Floor Area and Density
2.1 The total floor area for the uses will not exceed 47 413 m² (510,363 sq. ft.), as follows:
(i) 15 758 m² (169,625 sq. ft.) for the existing hotel and related commercial and ancillary uses on its part of the site (Lot F),
(ii) 31 655 m² (340,738 sq. ft.) for new mixed-use development on its part of the site (Lot G), except that the Development Permit Board may approve additional floor area not exceeding 2 669 m² (28,730 sq. ft.) in a development application subject to a condition of development approval that evidence be provided prior to issuance of the pursuant development permit, to the satisfaction of the Director of Legal Services, that the owner has purchased heritage bonus density from an eligible donor site, equal to the additional floor area, and
(iii) dwelling floor area will not exceed 15 758 m² (206,882 sq. ft.).
2.2 The inclusions and exclusions provided in Section 3, Sub-sections 5, 6 and 10 of the Downtown District Official Development Plan will apply. Sub-section 7 of Section 3, regarding FSR calculation for parking area above grade, will also apply.
3. Height
3.1 The maximum building height measured above the base surface and to the roof of the uppermost occupied floor, and excluding decorative roof, mechanical penthouse, and architectural appurtenances shall be 141.7 m (465 ft.).
3.2 Section 10.11 of the Zoning and Development By-law, Relaxation of Limitations on Building Height, will apply, except that the Director of Planning or Development Permit Board may relax the width and roof area provisions of Section 10.11.1 to accommodate the mechanical penthouse and decorative roof shown in the drawings approved as the form of development at Public Hearing.
4. Parking
Off-street parking, loading, bicycle and passenger spaces shall be provided, developed and maintained in accordance with the applicable provisions of the Parking By-law, except that:
(i) the provisions for relaxation and exemption provided by the Parking By-law are to be available;
(ii) one (1) Class B loading space shall be required for each 200 dwelling units and shall be applied using the following formula: less than 99 units - no requirement, 100 to 299 units - one (1) class B loading space minimum, and 300 units or more - a minimum of two (2) class B loading spaces;
(iii) a minimum of two (2) Class A and two (2) Class B loading spaces shall be required for the proposed commercial uses; and
(iv) a minimum overhead clearance of 3.8 m (12.5 ft.) shall be provided for all Class B loading spaces and the attendant manoeuvring and access aisles.
5. Acoustics
All development permit applications shall require evidence in the form of a report and recommendations prepared by a person trained in acoustics and current techniques of noise measurement, demonstrating that noise levels in bedrooms and hotel sleeping rooms shall not exceed 35 decibels, living, dining and recreation rooms 40 decibels, and kitchen, bathroom and hallways 45 decibels.
- - - - -
APPENDIX B
801 West Georgia Street
PROPOSED CONDITIONS OF APPROVALNOTE: These are draft conditions which are subject to change and refinement by staff prior to the finalization of the agenda for the public hearing.
(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by Bing Thom Architects Inc., and stamped "Received, City Planning Department, January 23, 2002", provided that the Director of Planning, or Development Permit Board, may allow minor alterations to the form of development when approving the detailed scheme of development as outlined in (b) below. (Note: Parking below lane is not part of the application.)
(b) THAT, prior to approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning, or Development Permit Board, who shall have particular regard to the following:
DESIGN DEVELOPMENT
(1) design development to the facade treatment of the six levels of above-grade parking to ensure a high-quality of urban design and architectural detailing which are sympathetic to the surrounding buildings and the pedestrian environment;
(2) design development to the ground floor to maximize pedestrian interest and activity, and to ensure the best possible pedestrian friendly environment in this difficult circumstance in which bus and taxi parking are accommodated and vehicular access provided to above- and below grade parking, development to include a very high quality treatment of all exposed surfaces in the porte cohere appropriate to its use and function;
(3) design development to the ground floor to achieve a better and more sympathetic relationship between this lobby floor and the tower above, and also the adjacent Hotel Georgia, including consideration of continuous weather protection for pedestrians, either by projecting canopies over the adjacent City sidewalks or by building overhangs, and to clarify the details of these amenity features; and
(4) design development to the massing and articulation of the tower, to refine and clarify the architectural treatments, and to maximize its sense of slimness particularly for the upper portion of the building;
ACOUSTICS
(5) provision of an air conditioning system in the dwelling units which enables occupants to maintain closed windows in a location subject to high noise levels;
CPTED
(6) design development to take into consideration the principles of CPTED (Crime Prevention Through Environmental Design) having particular regard for:
(i) reducing opportunities for theft in the underground and to improve visibility through full separation of commercial and residential users,
Note to Applicant: This can be achieved by providing complete separation of exits and lobbies for residential and hotel. Design in accordance with section 4.12 of the Parking By-Law.
(ii) reducing opportunities for mischief in exit alcoves and the open loading level, and
Note to Applicant: Secure the commercial/loading area during non-business hours with electronic communication for remote access. Exit doors may not swing over the lane, the exit area can be amalgamated with the driveway so that an alcove is not created.
(iii) reducing opportunities for graffiti on exposed surfaces in the lane through the use of high quality, graffiti resistant building materials;
LANDSCAPE
(7) provision of new street trees adjacent to the development site, the final species, quantity and spacing to the approval of Engineering Services - Streets Division and Park Board regarding tree species; and
ENGINEERING SERVICES
(8) arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for all existing and proposed encroachments.
(c) THAT, prior to enactment of the CD-1 By-law, the registered owner shall, at no cost to the City:
HERITAGE
(1) enter into a registered modification of the existing Hotel Georgia heritage revitalization agreement to the satisfaction of the Director of Legal Services, to delete the heritage bonus of 16 192 m² (174,300 sq. ft.) of floor area because it will be included in the CD-1 By-law;
(2) enter into a registered right of way and security agreement, to the satisfaction of the Director of Legal Services, in which the owner agrees:
(i) neither to occupy the new building nor to apply for occupancy permit until the existing Hotel Georgia building has been upgraded to meet the current Vancouver Building By-law seismic requirements at the time of the building permit application, and
(ii) if the Owner defaults in completing the heritage sensitive seismic upgrading of the existing Hotel Georgia building by the third anniversary of the enactment of the CD-1 By-law, the City may complete the upgrading, at the owner's expense.
ENGINEERING SERVICES
(3) clarify all charges registered in the Land Title Office against title to the lands and modification, extension or release of any charges deemed necessary by the Director of Legal Services. A charge summary, including copies of all charges, must be provided; and
(4) arrange to the satisfaction of the General Manager of Engineering Services for the undergrounding of all new services to the site, including a review of the impact on the adjacent neighbourhood of any additional cabling that may be necessary to facilitate the under grounding of services.
- - - - -
APPENDIX C
ADDITIONAL BACKGROUND INFORMATION
Excerpt from report dated March 26, 1998 for HRA which was to Public Hearing on April 18, 1998:
BACKGROUND: A Preliminary Development Application DE402550, received on July 3, 1997, proposes to preserve the Hotel Georgia. It also proposes to demolish the existing parking structure to accommodate a new hotel tower and hotel drop-off, loading and parking. This new structure would utilize both the unused density on site and the requested heritage bonus density.
On December 9, 1997, Council approved the building's eligibility for a heritage bonus. The bonus amount has been determined and the preliminary application was approved by the Development Permit Board on December 1, 1997, subject to conditions, including: Council approval of the designation, the HRA and the 5.81 FSR of density bonus.
PROPOSED REVITALIZATION PROGRAM: The density bonus requested in the application is in consideration for a comprehensive heritage revitalization program that encompasses rehabilitating both the exterior and interior of the building and seismic upgrading. Exterior work includes repairing, stabilizing and cleaning the brick facade; repairing and selective replacing of wood windows; and restoring the sidewalk canopy.
The scope of the proposed interior rehabilitation work spans from retaining and restoring existing original interior surfaces and features in the majority of the public rooms to removing later, inconsistent additions and recreating the spirit of lost original features based on archival plans and photos. The interior designations identified in the by-law and preservation work proposed exemplifies the property owner's commitment to a high standard of preservation and a good application of the Heritage Interiors Legislation.
Seismic and other code upgrading of the building to meet City requirements will improve life safety and will also help protect it from seismic forces. The proposed upgrading is a delicate balance between introducing structural shear walls and reducing disruption to original interior heritage features and spaces. However, some alterations will be required. Certain original decorative wall mouldings and cornices need to be methodically recorded, removed and reinstalled on top of new structural walls. Conversely, some shear walls will not be continued to the main and conference floors because their intrusion into the heritage space will be excessive.
HERITAGE DENSITY BONUS: The bonus of 5.81 FSR (16 192.5 m²/174,300 sq. ft.) is to compensate the owner for the cost of retaining, restoring, seismically upgrading and protecting the heritage building and its interiors (see FSR calculations, Appendix C). TheManager of Real Estate Services reviewed the applicant's financial analysis and concluded that the bonus amount is justified. The owner, Mr. Peter Eng of Reunion Properties Inc., has agreed that the heritage bonus requested is adequate compensation. He is prepared to enter into a Heritage Revitalization Agreement and to designate the building.
ZONING AND URBAN DESIGN: The heritage density bonus, if approved, will allow for the development of a new 45-storey hotel tower on the parkade site to the north of the Hotel Georgia. For the overall development, including 15% hotel bonus, the resultant density will be 16.41 FSR (see Appendix D). While the tower is positioned by the north property line and the Metropolitan Hotel, the slim floor plate is configured and generous setbacks are provided on Howe Street to minimize impact on private views and sunlight access to the neighbouring hotel units. Shadowing analysis shows that additional shadowing impact on public space and sidewalks from the proposed tower is minimal. The proposed tower does not encroach on any Council-approved view corridors. Planning staff feel the tall, slim tower proposed is appropriate for this site and best maintains the integrity of the Hotel Georgia as a significant heritage building at the city's centre, reinforcing the special character of the area.
HRA AND DESIGNATION: Designation and the requisite HRA would together achieve the following: secure protection of the building's exterior and interiors identified in the Draft Heritage By-law amendment, ensure continued maintenance and execution of certain rehabilitation and seismic upgrading work; establish a bonus density of 5.81 FSR for use on site; require reproduction of the street facades if the building is destroyed; permit annual public access one day per year for interpretative purposes; and permit the City to install a heritage plaque on the building.
VANCOUVER HERITAGE COMMISSION: At its meetings on October 14, and December 1, 1997, the Commission supported the proposed rehabilitation program and the requested bonus of 5.81 FSR. It also noted that the relative value of this heritage building has increased in the last ten years due to the loss of major heritage buildings in the immediate vicinity. It recommended a review of the building's classification on the Vancouver Heritage Register when the proposed restorations are complete. Staff will report back on this matter.
CONCLUSION: The Hotel Georgia is a significant heritage building in the city and its retention is critical. The proposed Heritage Revitalization Agreement and designation would enable the exterior and certain interior features and fixtures of the Hotel Georgia to be rehabilitated and afforded long term protection in exchange for heritage density bonus.
- - - - -
APPENDIX D
COMMENTS
FROM
THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANTPublic Input: A notification letter was mailed on January 28, 2002 to 149 surrounding property owners. Rezoning information signs were erected on the site on February 13, 2002.
A meeting was held with representatives of Downtown business groups on February 28, 2002. Concerns were expressed about the livability of residential use at this location, and strong encouragement that air conditioning be provided. No downtown business association (Urban Development Institute, Downtown Vancouver Association, and the Vancouver Board of Trade) has voiced opposition to the application. One letter has been received, from the Building Owners and Managers Association (BOMA), supporting the application but expressing concerns about continued property tax inequity for commercial properties and the need for new downtown residents to recognize and accept there will be noise from cabarets, clubs, garbage removal, construction and other noise generators, including late evening and night-time noise.
Telephone calls have been received from two adjacent property owners, and e-mail from another more distant property owner. They do not oppose the rezoning application.
General Manager of Engineering Services: In a memo dated March 21, 2002, the Deputy City Engineer advises:
"Engineering Services does not support this application while it includes a proposal to construct parking, required exiting and portions of the developments life safety needs on public road right of way.
Should City Council direct Engineering Services, an application to construct on public road right of way will be considered with the following issues to be addressed prior to By-law enactment:
· An application to construct on public road right of way must be submitted to the General Manager of Engineering Services.
· Arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for access to or relocation of any utilities affected by this proposal.
· Arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for provision of a "quit claim" from the adjacent properties.
· Arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for lot consolidation or appropriate agreements addressing all cross property line issues. ( roof top gardens, pedestrian and vehicular access and City servicing.)Should this rezoning application proceed with or without the proposed construction on the road right of way, then the following issues must also be addressed prior to By-law enactment:
· Clarification of charges is required. A charge summary should be provided.
· Under grounding of all new services to the site is required, including a review of the impact of any additional cabling that may be necessary to facilitate the under grounding of services to determine any impact on the adjacent neighbourhood.The following are to be provisions of the CD-1 By-law:
· Parking is to be provided in accordance with the Vancouver Parking By-law.
· The provisions for relaxation and exemption provided by the Vancouver Parking By-law are to be available.
· 1 class B loading space shall be required for each 200 dwelling units and shall be applied using the following formula: less than 99 units - no requirement, 100 to 299 units - 1 class B loading space minimum , and 300 units or more -a minimum of 2 class B loading spaces.
· Commercial loading shall be provided at a minimum of 2 class A and 2 class B loading spaces.
· A minimum overhead clearance of 3.8 m (12.5 ft.)shall be provided for all class B loading spaces and the attendant manoeuvring and access aisles."Real Estate Services Comments: In a memo dated March 07, 2002, Real Estate Services staff advised as follows:
"Bonus floor space could be granted if there is a hardship to the developer in delivering the heritage offering. The Heritage Revitalization Agreement (HRA) for this granted bonus floor space for the seismic upgrading of the Hotel, however, it was assumed that the development and, therefore, the upgrading would proceed in a timely fashion. As a number of years have passed since the HRA was granted and the heritage seismic work has not been fully completed, it is the City's position that this heritage asset is still at risk. With the requested rezoning by the developer, the City will ask for the seismic work to be completed within a fixed period, likely 2 years. While Real Estate staff do not project an additional hardship to the developer by completing the seismic work within a set period of time, there is a potential cost to the City in the risk associated with not having the work completed for say, 10years. Bearing in mind that it is considered prudent to fully protect this heritage asset against the event of an earthquake, it is considered prudent to take all necessary steps to advance the completion of the remaining seismic work to the hotel. The hypothetical cost to the City of advancing the funds for this work, over 10 years, equates to a bonus density of approximately 18,000 sq. ft."
Vancouver Heritage Commission: At its regular meeting of March 11, 2002, the Commission undertook a Conservation Review of this application. The minutes of this meeting read as follows:
"This is a rezoning application to develop a 50-storey hotel-residential tower to replace the parkade north of the existing Hotel Georgia. The applicants were seeking support for a rezoning application to allow residential use and above-grade parking for the proposed new tower in exchange for accelerated seismic upgrade of Hotel Georgia.
The proposed tower would be a sculpted form that emphasizes transparency and slenderness. The tower's facade below the cornice line of the Georgia Hotel would recall the scale and rhythm of the adjacent Georgia Hotel but would be set back to be distinct from it. The additional density required (from 16.4 to 18.0 FSR), in order to provide above-grade parking, would be obtained from the heritage bonus and from purchase from the density bank.
RESOLVED:
THAT the Vancouver Heritage Commission supports the rezoning of the site to allow residential use in exchange for securing early delivery of the seismic upgrading of the Hotel Georgia.
CARRIED UNANIMOUSLY
THAT the Vancouver Heritage Commission supports the proposed tower form, specifically the change of the tower height from 450 ft. to 465 ft.
CARRIED UNANIMOUSLY
THAT the Vancouver Heritage Commission requests that the applicants, at the development permit application, responds to the Commission's concerns regarding ground level relationship with the Hotel Georgia and human scale.
CARRIED UNANIMOUSLY"
Urban Design Panel Comments: On February 06, 2002, the Urban Design Panel gave unanimous support (7-0) for the proposed rezoning:
"Panel's Comments: The Panel unanimously supported this application and was quite excited about the tower in terms of its potential as a stunning piece of architecture in the downtown.
The height of the tower was not an issue for the Panel. The 15 ft. relaxation being sought was considered to be virtually irrelevant in terms of its impact on the 12th Avenue/Cambie Street view corridor. The Panel unanimously supported the height and considered it well earned by its elegant slimness, the attractiveness of the facade and modulation of the massing. The Panel thought greater emphasis should be given to the importance of the quality of the architecture as an exciting addition to the skyline than to a minor encroachment into the view corridor. Several Panel members also strongly supported the tower being even higher and were disappointed that the floor-to-ceiling height is being compromised in order to keep the overall height down, noting that a taller building would present and even more elegant profile, particularly at the top. The Panel had no concerns about the spire element, although one Panel member suggested there should be more than one, given the random nature of the building's termination.
The Panel commented that a re-examination of the City's assumptions about view corridors is long overdue. Reference was also made to the skyline study that was undertaken a few years ago which identified several downtown sites where it was considered the height could go to 600 - 700 ft.
The proposed use, density and heritage bonus were fully supported. The benefits of this project earn the relaxations required to put residential on the site. The residential use was thought to make perfect sense and it won't detract from the downtown commercial. Furthermore, adding residential use into the CBD, adding more life to the downtown, without compromising density, is an excellent precedent. One Panel member recommended having the tower built to hotel standard from the beginning in order to respond to a future change in market conditions.
The Panel strongly supported the parking under the lane. It is an innovative solution that should be used more often.
While acknowledging that this is at the rezoning stage and considerable design development is still to be done, the Panel had some concerns about the ground plane treatment which shows none of the promise of the tower. Something that supports the pedestrian realm a little more is needed. It was noted that hotel frontages add little to the street but there are ways to deal with this as the project moves forward. The Panel will therefore look for much greater development and attention to the ground plane at the next stage.
Most Panel members supported the proposed above ground parking and thought its negative aspects had been carefully handled. One Panel member had serious concerns, however, about the precedent that could be established for above grade parking in the downtown, notwithstanding the very elegant solution being proposed by this applicant.
While the Panel enthusiastically supported this proposal there were some reservations expressed about how well such a sophisticated approach could be attained. A lot of work remains to be done to ensure the facade works in terms of its animation while also addressing issues such as lighting and privacy, etc. However, several Panel members commented that such an innovative approach is exactly where architecture should be going in Vancouver. They said they were prepared to "take it on faith" that the building will achieve the promise of the drawings and looked forward to seeing it at the next stage of development. It was stressed that the results will be extremely dependent on the quality and finish of the metal and glass that will be applied to this building. Staff were also commended for trying to make it happen from a planning point of view.
Applicant's Response: Bing Thom, Architect, said it is a project they take very seriously because it is such an important site in the city. The Panel's comments will be very helpful when they go forward to Council because it gives them more ability to address the issue of height. Clearly, it will be expensive for the project to succeed and for the developer to achieve a great building. Unfortunately, while the negative attitudes towards height in the city may have changed, the regulations have not. Council must be convinced to simplify the process in order not to stymie innovative development in the city."
Applicant's Comment:
"The applicant supports this report to refer the proposed referral report to rezone the site at 801 West Georgia from DD to CD-1 to permit a mixed-use residential/commercial high rise tower development.
Given the significance of the architectural proposal and nature of the heritage asset at risk, this project offers an important opportunity for the City of Vancouver. While the Georgia Hotel is secured by an HRA, the timing of the required heritage upgrade to the structure is not defined, leaving the Georgia Hotel in a position of significant and real exposure to earthquake damage. This proposal seeks to accelerate this upgrade work, while at the same time provide the City of Vancouver with a significant, new architectural landmark to mark the Central Business District.
The tower design is inspired by the surrounding urban context and responds with a sculpted form that emphasizes transparency. The facade below the cornice lineof the Georgia Hotel responds to the nature of this mid-block site, with a facade treatment which recalls the scale and rhythm of the adjacent Georgia Hotel. The upper tower is modulated by a series of steps at the corners to emphasize the verticality of the structure and to create the illusion of disintegration as the building meets the sky. Transparency and layering of surfaces are constant themes throughout the design to emphasize the slenderness of the tower and its "crystalline" form.
The project design, massing and configuration have been presented to a number of CBD stakeholders as well as to the Heritage Commission and the Urban Design Panel, and has received resounding and enthusiastic support, particularly for its innovative design, slenderness and height as well as its ability to provide a mix of uses without compromising the FSR dedicated to commercial density in the DD zone. The nature of the project as a mid-block tower however, presents some challenges. As the project progresses we will continue to require the cooperative approach the project has received to date. We view the financial feasibility of the proposed new tower structure as an important consideration, while the legacy of the Georgia Hotel continues to remain at risk."
- - - - -
APPENDIX E
Link to Appendix E (6 pages of architectural drawings)
APPENDIX F
APPLICANT, PROPERTY AND DEVELOPMENT PROPOSAL INFORMATION
Applicant and Property Information
Street Address
801 West Georgia Street
Legal Description
Lots F & G, Block 41, D.L. 541, Group 1, NWD Plan LMP 42609 (PID: 012-834-998)
Applicant
Arno Matis, Bing Thom Architects Inc.
Property Owner
Allied Holdings Inc.
Site Area
Lot F (Existing Hotel) 1 672 m² (18,000 sq. ft.)
Lot G 1 115 m² (12,000 sq. ft.)
Total 2 787 m² (30,000 sq. ft.)Development Statistics
Development Permitted Under Existing Zoning and HRA
Proposed
DevelopmentRecommended
DevelopmentUses
Commercial (Office, Hotel, Retail and Service)
Dwelling
Commercialas proposed
Floor Space (Net)
Dwelling
Hotel
Existing
New
Parking
Sub-TotalTotal
15 758 m² (169,625 sq. ft.)
29 992 m² (322,840 sq. ft.)
n/a
45 750 m² (492,465 sq. ft.)
45 750 m² (492,465 sq. ft.)19 219 m² (206,882 sq. ft.)
15 758 m² (169,625 sq. ft.)
10 772 m² (115,958 sq. ft.)
4 332 m² ( 46,628 sq. ft.)
26 531 m² (285,583 sq. ft.)
50 082 m² (539,093 sq. ft.)as proposed
Floor Space Ratio
Dwelling
CommercialTotal
n/a
16.41
16.416.9
11.1
18.0as proposed
Maximum Height
Building
Decorative Roof137 m (450 ft.)
153 m (506.6 ft.)141.7 m (465 ft.)
154.4 m (506.6 ft.)as proposed
Parking Spaces
Dwelling
Hotel ExistingNew
Sub-Total
Total Spaces
Loading Spaces
Passenger Loading
Bicycle Spaces188
140
39179
367 spaces188 residential spaces (below grade)
114
39
153 hotel spaces (above grade)
341 parking spaces3 trucks
2 tour buses and 5-6 taxis
133 (A) and 6 (B) residential spaces
5 (A) and 6 (B) hotel spacesgenerally as per
Parking By-law, including relaxations, and exceptions listed in the draft CD-1
By-law provisions* * * * *
(c) 1998 City of Vancouver