DEVELOPMENT AND BUILDING
Date: May 16, 2002
Author/Local: T Phipps/6604
RTS No. 02695
CC File Nos. 5308/6007
Council: May 28, 2002
Vancouver City Council
Director of Current Planning in consultation with the General Manager of Engineering Services, Director of Legal Services, Director of Office of Cultural Affairs, General Manager of the Park Board, and Director of Housing Centre
Burrard Landing CD-1 Text Amendment - Vancouver Convention and Exhibition Centre (VCEC) - 100 Thurlow Street
THAT the Director of Current Planning be instructed to make application to:
· amend CD-1 By-law No. 7679 for Burrard Landing (100 Thurlow Street), to permit Convention and Exhibition Centre and provide floor area and height limits to accommodate this use generally as contained in Appendix A; and
· amend the Coal Harbour Official Development Plan By-Law No. 6754 generally as contained in Appendix B;
FURTHER THAT the application be referred to a Public Hearing and be approved subject to conditions contained in Appendix C, together with draft Vancouver Convention and Exhibition Centre Guidelines generally in accordance with Appendix E;
AND FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-laws for consideration at Public Hearing.
CITY MANAGER'S COMMENTS
The City Manager RECOMMENDS approval of the above.
Relevant Council Policies for this site include:
· Central Area Plan approved December 1991;
· Coal Harbour Policy Statement approved June 1990;
· Waterfront Pedestrian/Bicycle Pathway Widths Policy approved March 1997;
· Coal Harbour Official Development Plan (CH ODP) approved November1990; New Trade and Convention Facilities Review Program, Report on Stage One, approved April 1996; and
· Burrard Landing CD-1 (363) By-law No. 7679, Guidelines, Form of Development approved November 1996.
Recent Council discussion affecting the policy context includes:
On September 20, 2001 Council received for Information the report "Vancouver Convention and Exhibition Centre Expansion - Pre-rezoning Design Review" dated September 12, 2001. This report outlined outstanding issues to be resolved. Council also considered the report "Expanding the Vancouver Convention and Exhibition Centre -Financial Assessment of the October 2000 Business Plan" dated September 18, 2001 and resolved as follows:
"THAT Council support the general concept, subject to City of Vancouver approvals through rezoning and subsequent approval processes, of an expansion to and renovation of the existing Vancouver Convention and Exhibition Centre (VCEC), to the west of the existing facility as described in the October 2000 business plan authored by the Vancouver Convention Centre Expansion Task Force."
Additional resolutions pursuant to that report are contained in Appendix F.
PURPOSE AND SUMMARY
This report recommends that Council instruct the Director of Current Planning to make an application to amend the Coal Harbour Official Development Plan, By-law No. 6754 and the Burrard Landing CD-1 By-law No. 7679 (Ref. No. 363) to add the use Convention and
Exhibition Centre, and provide height and floor space limits to accommodate that use in the CD-1 By-law. The report reviews implications of making these amendments and recommends referral of the applications to Public Hearing, with appropriate conditions for approval.
Background: Conceptual planning analysis of program requirements for VCEC expansion on the Burrard Landing site were assessed in sufficient detail over the past year to "give staff reasonable confidence" that all conceptual planning issues were resolvable, as reported to Council September 20, 2001. Since that time, additional exploration has achieved further resolution of these issues. Therefore, given that Burrard Landing has long been regarded as one of the acceptable locations for VCEC expansion, the Director of Current Planning is initiating this rezoning to simplify and shorten the process necessary to achieve form of development approvals when funding has been secured and a design has been developed.
The Council report dated March 6, 2002 recommending that staff undertake a program to achieve this initiative, indicated that currently permitted uses and development potentials would be retained, while providing for the alternative of VCEC expansion.
Proposal: The proposed CD-1 and ODP text amendments would add a use term to permit a convention and exhibition centre under the Coal Harbour ODP and on the CD-1 zoned Burrard Landing site, within a newly defined Sub-Area 2 (see Map 2.). This Sub-Area would consist of portions of existing Sub-Areas 1, 2, 3 and 4 and would have boundaries accommodating consolidation of a site north of a westerly extension of Canada Place viaduct to meet the northerly extension of Thurlow Street. This boundary would also include the present parcel secured for the Arts Complex to permit the configuration of that parcel to be integrated, possibly in a renegotiated form, once a VCEC design is developed.
It is recommended that current floor area potentials be utilized to accommodate the Convention and Exhibition Centre use instead of hotel and office uses and that additional floor area be permitted only for an exhibition hall developed as part of a convention and exhibition centre and located to minimize visual impact.
Use: The Burrard Landing site northwest of Canada Place is considered an acceptable and desirable site for expansion of the convention and exhibition centre for numerous reasons. These include a less complicated project program, less disruption of access patterns to the existing centre, minimum operational disruption during construction, spectacular visual orientation, direct linkages to related amenities, reduced construction cost, good potential for integration with the city, retention of future options for port related uses to the east and a simplified ownership structure. Therefore there is a strong rationale to seek greater certainty that this location can continue to be considered for the proposed expansion.
The viability of developing the proposed scale of expansion on this site has also been substantially tested. Significant progress has been achieved in resolving conceptual planning issues through a joint City/proponent (BC Pavco) workshop process in 2001. As the September 20, 2001, Information Report, noted above, concludes: "staff have reasonable confidence that identified issues can be resolved with further work committed by the proponents".
Density: As noted in the Council report dated March 6, 2002 recommending this rezoning program, the current CD-1 By-law, in addition to a 10 000 m² Arts Complex, provides for a total commercial floor area of 65 523 m² (705,307 sq. ft.) (remaining after Sub-Area 1 development) in a mix of uses over several sites, totalling floor areas as follows:
37 000 m² ( 398,278 sq .ft.)
22 688 m² (244,220 sq. ft.)
retail, service commercial
5 835 m² (62,809 sq. ft.)
cultural/recreational (Arts Complex)
10 000 m² (107,643 sq. ft.)
The proposed rezoning would retain the above permitted floor areas, while additionally providing for all office and hotel space to be utilized instead for convention and exhibition centre development. If hotel and office potentials are pursued in the absence of a convention centre expansion, a new form of development based on the existing Burrard Landing guidelines with additional guideline provisions contained in Appendix E, would require a public process leading to Council approval. Existing ownership, floor space potential and other commitments to the Arts Complex would not be diminished as a result of the proposed rezoning.
The proposed VCEC expansion would entail a net floor area for facilities of approximately 39 000 m² (420,000 sq. ft.), plus ancillary functions, for a total floor area estimated to be 75 435 m² (812,000 sq. ft). Limited commercial uses were also contemplated. The above report estimated that an approximate 10% increase in density could be needed to accommodate the total estimated ancillary floor space, assuming additional below grade floor space exclusions would also be supported. A desire for additional animating commercial usewas expected to further increase floor area.
However, given the public purpose of VCEC expansion which is clearly contingent upon provision of exhibition facilities, an alternate, less complex approach is recommended to accommodate this floor area and is consistent with practices for developments elsewhere in the downtown. Rather than creating unusual exclusion provisions, it is recommended that an additional floor space of 23 225 m² (250,000 sq. ft.) for Exhibition Hall use be permitted, provided that this facility is located to minimize visual impact on massing above street level. This involves locating the space generally below the Canada Place viaduct and Plaza level, thus creating no direct increase in above grade massing above the Canada Place viaduct. This addition would be available only for VCEC expansion and would leave normal floor space calculation provisions in place to apply to non-VCEC scenarios. It also allows latitude for an approximate 3.5 % increase in floor area to be allocated to VCEC to allow for typical floor area measurement adjustments.
Also, floor space conversion of 2 665 m² (28,687 sq. ft.) from office to retail or service use is recommended, to allow for additional retail and service uses to assist in animating otherwise uninviting urban portions of public walkways along edges of the structure extending north from Burrard Street. These uses may well be necessary in achieving a safe and interesting "walkable city" environment as prescribed by the Central Area Plan for public pedestrian routes. To achieve complementary animation of the Arts Complex exterior a comparable conversion of 2 000 m² (21,500 sq. ft.) is proposed for the same uses. When combined, these amendments would provide for the following floor areas for the VCEC expansion alternative:
Convention and Exhibition Centre (VCEC)
78 222 m² (842,000 sq. ft.)
Retail & Service (VCEC Site)
8 500 m² (91,500 sq. ft.)
Retail and Service (Arts Complex related)
2 000 m² (21,500 sq. ft.)
Cultural/Recreational (Arts Complex)
10 000 m² (107,643 sq. ft.)
Form of Development: A project design is expected to emerge once a development partnership is formed and funding is secured. A proponent would engage City staff in discussion of Council approved conditions intended to give direction to the design from the outset. Recommended guidelines are based on extensive exploration and review of conceptual planning issues related to plaza elevation and views; adequacy of site area to achieve appropriate transition to waterfront pathways, pathway animation; parking, access and vehicle management and Arts Complex siting as summarized in the report considered by Council September 20, 2002. A Preliminary Development Application would be reviewed through a public process before being reported to the Development Permit Board and to Council for Form of Development approval.
Existing height limits will continue to apply to hotel and office towers with adjustment to a new street elevation but are not relevant for the much lower and broader form of a convention centre. Therefore, for convention and exhibition centre development, a maximum height of 29.5 m (97 ft.) measured from the 14 m (46 ft.) elevation of Canada Place viaduct is recommended. This would represent the equivalent of 8 - 9 commercial storeys, together with a decorative roof structure above the proposed grade of Canada Place viaduct.
A separate provision is recommended to ensure that any structures (other than architectural features) found desirable outboard of the waterfront walkway system, such as a seaplane terminal and restaurant, would not exceed an appropriate lesser limit of the 14 m (46 ft.) geodetic elevation level of Canada Place viaduct.
Planning staff conclude that this proposed rezoning would permit the City to take a proactive role, facilitating an incremental step forward and simplifying the next steps in achieving Convention and Exhibition Centre expansion, which Council has considered to be in the public interest. The use, density and height are supportable and desirable at Burrard Landing, provided other City objectives for this prominent and pivotal location on the waterfront are furthered by the design. To achieve this objective, design guidelines are recommended for Council approval which would give direction and clarity to the form of development approval phase. That phase will also entail a public process and Council approval of the form of development as required for CD-1 Districts.
- - - - -
DRAFT CD-1 BY-LAW AMENDMENT PROVISIONS
· Amend Section 3 to include the following definitions:
"Convention and Exhibition Centre" means a facility that services the convention, meeting, exhibition, and event markets, that provides assembly areas for those purposes, and that accommodates the exchange of information, the display of products or services, and, as a function of such displays, the sale or rental of products or services; and
"Exhibition Hall" means a facility that forms an integral part of the Convention and Exhibition Centre, that comprises exhibition space for the display of products or services, and that consists of a minimum of 23 225 m² (250,000 sq. ft.) with a minimum ceiling clearance of 8 m (26 ft.).
· Amend Section 4.1 to add as a use in sub-area 2 a Convention and Exhibition Centre, and amend the by-law as needed to permit the Arts Complex in sub-area 2 as well as in sub-area 3.
· Amend Section 5 and Diagram 1 to incorporate Sub-Areas Map 2 from this report.
· Amend Section 6 and Table 2 to permit an additional 23 225 m² (250,000 sq. ft.) Exhibition Hall, provided that the Director of Current Planning is satisfied that this facility is located to minimize the elevation of the uppermost structural element of the Exhibition Hall.
· Amend Section 6 and Table 2 to provide for conversion of a maximum of 54 997 m² (592,000 sq. ft.) of office and hotel use to Convention and Exhibition Centre, provided that non-ancillary office, or hotel use, not be permitted in conjunction with Convention and Exhibition Centre use.
· Amend Section 6 and Table 2 to provide for conversion of a maximum of 2 665 m² (28,687 sq. ft.) of office use to retail, or service use not including hotel, in conjunction with Convention and Exhibition Centre use.
· Amend Section 6 and Table 2 to provide for conversion of a maximum of 2 000 m² (21,528 sq. ft.) of office use to retail, or service use not including hotel, in conjunction with Cultural and Recreational uses together with Convention and Exhibition Centre use.
· Amend sections 3 and 7 and Table 3 to permit a maximum of 29.5 m (96.8 ft.) measured above the 14 m geodetic elevation of Canada Place viaduct for a Convention and Exhibition Centre including a decorative roof element (to be defined within this by-law).
· Amend Sections 3 and 7 and Table 3 to maintain the currently permitted height relative to geodetic 0 m level for hotel or office development in Sub-area 2 in relation to the 14 m (46 ft.) geodetic elevation of Canada Place viaduct proposed to accommodate a Convention and Exhibition Centre.
· Amend Section 3 and 7 and Table 3 to permit a maximum height corresponding to the 14 m (46 ft.) geodetic elevation of Canada Place viaduct for any structure north of a waterfront walkway containing a seaplane terminal and/or other commercial uses.
· Amend Section 8 to provide that Convention Centre uses shall comply with the requirements of the Parking By-law, except that the number, size, and location of parking, loading, bicycle, and passenger spaces shall be determined by the Director of Planning in consultation with the General Manager of Engineering Services. Note that the provisions of the By-law with respect to relaxation and exemption shall be available.
DRAFT COAL HARBOUR
OFFICIAL DEVELOPMENT PLAN AMENDMENTS
Note: all additions are in bold italics and italics and deletions are in (brackets and
strikeout). These are draft amendments which are subject to change and refinement by staff prior to the finalization of the agenda for the public hearing.
Section 1 Background
Convention and Exhibition Centre means a facility that serves the convention, meeting, exhibition and event markets, that provides assembley areas for those purposes, and that accommodates the exchange of information, the display of products or services, and, as a function of such displays, the sale or rental of products or services.
The major objective of this ODP is to encourage redevelopment from a sparsely populated commercial and industrial area into a high quality, mixed-use environment emphasizing residential use.
To ensure all-day activity and a lively, vibrant environment, residential, public-oriented commercial, convention and exhibition centre, and office commercial uses should be integrated into the waterfront activities and environment.
3.2.4. Retail/Service Uses
Retail uses shall be permitted to serve the needs of the projected population and provide specialized shopping opportunities associated with other public-oriented uses. These uses should link, reinforce, and extend, where appropriate, existing street-related retail patterns. Retail uses should be oriented to and located along the westerly marina waterfront area and the easterly mixed-use commercial development. Retail uses should not be of an amount or in locations which would unduly compete with or preclude the revitalization of retail areas established prior to November 6, 1990. In addition to retail and service, other uses, including residential entries, may be permitted at grade within retail/service areas provided that they rely on walk-in trade or direct pedestrian access in the conduct of their operation and provide visual interest to passersby. Retail uses along the water's edge of the westerly marina area should be marine-oriented.
To accomplish the above objectives, the maximum total amount of retail and service uses shall not exceed 16 178 square metres, but this area may be increased up to 20 843 square metres if a Convention and Exhibition Centre is developed at Burrard Landing, of which a maximum amount of 6 678 square metres of locally-oriented retail space shall be located in the westerly neighbourhood, west of Jervis Street. This local retail is required at grade and should be primarily oriented to Cardero Street and along the marina walkway to Jervis Street or located in a building containing units in live/work use.
Retail and service uses are required and may be permitted generally as illustrated on Figure 5 and shall be located primarily at grade.
3.2.9 Convention and Exhibition Centre
A Convention and Exhibition Centre shall be permitted in the commercial precinct between Burrard and Thurlow Streets. The full floor area of other uses permitted in the relevant sub-area of that precinct shall be reallocated to accommodate this use and related commercial uses, not including office or hotel. An additional maximum of 23 225 square metres of floor area may also be permitted to accommodate an Exhibition Hall as an integral part of a Convention and Exhibition Centre. The use shall be integrated to provide a transition between the urban environment of the adjacent downtown and the adjoining amenities of the waterfront, port and water uses, Harbour Green Park and the Arts Complex.
PROPOSED CONDITIONS OF APPROVAL
(a) 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 design response to Burrard Landing Convention and Exhibition Centre Development Guidelines approved by Council in respect to this CD-1 text amendment.
(b) That, prior to the enactment of the CD-1 By-law, the registered owner shall, at no cost to the City:
Make suitable arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for clarification of charges shown on title (a charge summary should be provided) and, if necessary, for the modification, release, extension, or replacement of such charges, on terms acceptable to the Director of Legal Services.
NO DEVELOPMENT COVENANT FOR THE VCEC EXPANSION SITE LOCATED IN SUB-AREA 2
Execute an agreement, on terms acceptable to the Director of Legal Services, that prohibits the development of the VCEC expansion site located in Sub-area 2 until such time as
(A) the owner has paid to the City the rezoning fees in accordance with the City's rezoning schedule related to the Vancouver Convention and Exhibition Centre CD-1 Rezoning;
(B) the form of development has been approved by the City of Vancouver;
(C) the owner has entered into an agreement or agreement(s), acceptable to the Director of Legal Services and the General Manager of Engineering Services that outlines, without limitation, the design, construction, demolition, ownership, maintenance, passage, and usage rights and responsibilities for the Canada Place viaduct and the 1000 block of Canada Place; and
(D) the owner has prepared a series of Transportation Studies, Parking Studies and Transportation Management Plans to the satisfaction of the General Manager of Engineering Services and made the appropriate arrangements for their implementation, including registration of any agreements as may be required, to the satisfaction of the Director of Legal Services and the General Manager of Engineering Services.
RIGHT OF WAY FOR PEDESTRIAN PASSAGE (BLANKET ACROSS THE VCEC EXPANSION SITE LOCATED IN SUB-AREA 2)
Execute an agreement, on terms acceptable to the Director of Legal Services, to secure a blanket right of way through the VCEC expansion site located in Sub-area 2 for the future Canada Place Sidewalk including the obligations for design, construction, support and maintenance, to the satisfaction of the General Manager of Engineering Services.
RIGHT OF WAY AND/OR STREET FOR SHORELINE WALKWAY
Execute an agreement, on terms acceptable to the Director of Legal Services, to secure, at the option of the General Manager of Engineering Services an establishment as street or a blanket right of way, or a mixture of established street and right of way through the VCEC expansion site located in Sub-area 2 for the future Shoreline Walkway including the obligations for design, construction, support and maintenance, to the satisfaction of the General Manager of Engineering Services.
RIGHT OF WAY FOR THURLOW WATERFRONT PLAZA (BLANKET ACROSS THE VCEC EXPANSION SITE LOCATED IN SUB-AREA 2)
Execute an agreement, on terms acceptable to the Director of Legal Services, to secure a blanket right of way through the VCEC expansion site located in Sub-area 2 for the future Thurlow Plaza including the obligations for design, construction, support and maintenance, to the satisfaction of the General Manager of Engineering Services.
RIGHT OF WAY AND/OR ESTABLISHED STREET FOR BURRARD STREET END
Execute an agreement, on terms acceptable to the Director of Legal Services, to secure, at the option of the General Manager of Engineering Services an establishment as street or a blanket right of way through the VCEC expansion site located in Sub-area 2 for the future Burrard Street End including the obligations for design, construction, support and maintenance, to the satisfaction of the General Manager of Engineering Services.
Where the Director of Legal Services deems appropriate, the preceding agreements are to be drawn, not only as personal covenants of the property owner, but also as Covenants pursuant to Section 219 of the Land Title Act.
Such agreements are to be registered in the appropriate Land Title Office, with priority over such other liens, charges and encumbrances effecting the subject site as is considered advisable by the Director of Legal Services; and otherwise, to the satisfaction of the Director of Legal Services, prior to enactment of the by-law; provided, however, the Director of Legal Services may, in her sole discretion and on terms she considers advisable, accept tendering of the preceding agreements for registration in the appropriate Land Title Office, to the satisfaction of the Director of Legal Services, prior to enactment of the by-law.
The preceding agreements shall provide security to the City including indemnities, warranties, equitable charges, letters of credit and withholding of permits, as deemed necessary by and in a form satisfactory to the Director of Legal Services.
The timing of all required payments shall be determined by the appropriate City official having responsibility for each particular agreement, who may consult other City officials and City Council.
Site, Surrounding Zoning and Development: This site is comprised of 6 parcels and portions of City Streets at Burrard Landing which are to be consolidated on the north side of a westerly extension of Canada Place viaduct. As noted in the program report dated March 6, 2002, a separate report from the General Manager of Engineering Services will deal with required site and street changes.
Public Input: A brief but comprehensive public process for the Vancouver Convention and Exhibition Centre provided 25 hours of public contact over four days during the first two weeks of April. Notification was thorough, as most local and regional newspapers were targeted during the week prior to the process. The Vancouver Sun, plus 6 local newspapers carried ads detailing the full public process during the last week of March.
The process was structured to ensure that as broad a cross section of the population as possible would be able to attend at least one of the meetings and have their comments heard. Venue, timing, and format of meetings were varied over the period to accommodate a variety of work schedules, interest groups, and transportation accessibility. The schedule was as follows:
April 2, 2002
Sinclair Centre Atrium
11:00 - 5:30
April 3, 2002
Vancouver Public Library
11:00 - 8:00
April 5, 2002
Coal Harbour Community Centre
2:30 - 8:30
April 10, 2002
SFU Harbour Centre
6:30 - 10:00
Open House and Public Meeting
During the above process, City staff took care to engage as many visitors as possible and to record any comments they felt pertinent to give to staff. No additional written or E-mail responses or queries about the process were received. Three phone calls requesting further information were received. From the contact during the public events, several key elements consistently arose both verbally and in the notes taken during discussion, as follows:
· continuation of the Coal Harbour landscape/hardscape public realm and pathway treatment is a priority ;
· the continuous multi-modal pedestrian public access on the waterfront around the proposed Convention Centre is essential;
· retention of the seaplane terminal on site should be ensured;
· good pedestrian linkages should be developed between the existing and proposed Convention Centres (weather protection should be provided);
· height should be restricted in order to ensure that view of and from Canada Place is retained; and
· the Arts Complex is strongly supported and would contribute to the success of the project.
Throughout the process, there was little or no objection to the proposed use and few objections to the choice of site. Concerns with respect to the site referred to the transition to Harbour Green Park and visual impact of the shape of the exhibition hall on the waterfront. Most comments were suggestive of elements seen as important to the integration and completion of a successful project.
Comments of the General Manager of Engineering Services: The General Manager of Engineering Services has no objection to the proposed rezoning, provided that the applicant complies with the conditions shown in Appendix C.
The land exchange, parcel reconfigurations and related arrangements outlined in the General Manager of Engineering Services' report dated May 1, 2002 scheduled to go before Council on May 28, 2002 must be finalised before enactment of this zoning. This series of exchanges and reconfigurations is required to create a City Street fronting the VCEC expansion site and will require a series of modifications to the existing agreements currently established between the City and Marathon.
The form of development for this site has not been finalised and has not been subject to a complete staff review; however, based on preliminary discussions there are a number of outstanding issues that have been identified as requiring resolution should a VCEC expansion proceed on this site. These issues are identified below.
1. The infrastructure required to service the VCEC expansion site has not yet been designed or constructed. These obligations are contained within the terms of the services agreement currently registered on the site. The servicing requirements for the VCEC expansion will be ensured during the review of the infrastructure design(s) submitted to the City Engineer under the obligations of the services agreement.
2. Conceptual designs have identified the possibility of locating the VCEC expansion parking under the Canada Place viaduct in an integral parkade/viaduct/convention centre structure. If an integral structure is the result,agreements will be required outlining construction, maintenance, reconstruction, and rights of way obligations for the viaduct.
3. A traffic management plan specifically suited to "convention centre" uses on this site has not been developed. Recommendations from previous studies and plans required of the past rezonings of the Coal Harbour lands have been implemented through obligations contained in the services agreement. Staff anticipate that prior to development approval for the site a detailed traffic management plan, with provisions for buses, will have to be carried out with agreements made for the implementation and construction of the required infrastructure. Future traffic management plans will also take into account the impact of the Arts Complex and Seaplane Terminal uses adjacent to the VCEC expansion site.
4. Parking and loading are two additional areas that will require detailed study once a convention centre proponent begins detailed design. Preliminary work has shown that there is a parking shortfall associated with "convention centre" uses on this site; however, without a detailed form of development and comprehensive parking study it is impossible to determine the exact parking and loading requirements. Future parking studies will also address the parking needs of the seaplane terminal and the Arts Complex noting that there are existing agreements in place.
5. The Design, location and routing of the Shoreline Walkway, the Thurlow Street End Plaza, and the Burrard Plaza has yet to be finalised. Work to date on these items has been presented on a conceptual level; however, the terms of the rights of way and maintenance obligations for these items will be finalised prior to reasoning enactment to facilitate the form of development approvals at such time as they are required.
The obligations identified in item 1 are contained in the terms of the services agreement registered on the VCEC expansion site. To ensure that items 3 and 4 are addressed prior to the development of the VCEC expansion a no development covenant will be placed on the VCEC expansion site. Item 5 will be dealt with through a series of blanket Rights of Way registered on the VCEC expansion site.
Park Board Comments
"The proposed rezoning will be reported to the Park Board on May 27, 2002. Any recommendations the Board may make on the rezoning will be communicated to Council in advance of Council's decision.
Park Board staff have participated in the planning process leading up to the proposed rezoning, and have identified issues of particular importance from a park and recreation perspective:
· Connecting the Seawall to downtown. Burrard Landing provides the heart of downtown with easy access to the waterfront, and serves as a gateway to the downtown from Stanley Park and the Seawall. Unfortunately, the concepts explored to date for a convention centre indicate street grade changes to Thurlow Street and Canada Place that challenge the ease of this connection. Pedestrians, cyclists and in-line skaters should be provided with a generous and beautiful pathway that gracefully negotiates the elevation difference between the Seawall and the foot of Burrard Street as entrance to the downtown street network.
The proposed CD-1 Guidelines ask for a Seawall continuation that in all aspects -width, function, design quality and finishes - is equal to the standards set by the Harbour Green Park section of the Seawall. Special emphasis needs to be placed on ramping up at a gradient not exceeding 5% so that the pathway remains accessible to all, and on not allowing switchbacks so that neither usability nor elegance and dignity of the pathway are compromised.
· Turning the Arts Centre around to face the park. The proposed lot re-configuration of the Arts Centre opens the door to a whole new relationship. Whereas the Arts Centre's previous interface with the park was a difficult combination of fly tower and park encroachments, the new lot configuration allows to re-shuffle major program elements such that inviting glazed lobby spaces face the park, and park encroachments become obsolete. Further emphasis should be placed on pulling the Arts Centre away from the foot of Thurlow Street so that a wide corridor opens onto Harbour Green Park, allowing for views along the waterfront, and accommodating generous pathways, steps, and ramps to connect the street with the park.
· Integrating the new public open spaces with park and Seawall. The Thurlow Waterfront Plaza will sit high above the water, but a sense of closeness to the water is important for the character of this open space. There should be multiple ways to get down to the Civic Plaza which will be at or near the level of the Seawall. There should be stairs that invite lingering, that double as spectator seating, that visually seem to eat away at and break up the solid mass of the convention facilities, and that are inviting not only to climb down, but also toclimb up."
Public Benefit: Council has previously supported the public purpose and benefit of Convention and Exhibition Centre expansion in the downtown and has supported this site as a desirable location for that use.
Urban Design Panel Comment: The Urban Design Panel did not review this proposal as there is no proposed form of development.
Environmental Implications: Proximity to the existing VCEC, as well as nearby access to transit, public amenities and commercial services, including hotels may reduce dependence on use of automobiles.
Office of Cultural Affairs Comments: The Director of Cultural Affairs comments are as follows:
At Council's direction in February 2001, staff have worked through the planning process leading up to the proposed rezoning to accommodate both the Arts Complex and Convention Centre programs on the combined Burrard Landing sites. While much progress has been made, no conclusion has been reached and no change to the Lot 24 Arts Complex site is contemplated within the proposed rezoning. Staff will report back to Council with any future land exchange or reconfiguration.
The primary of concern staff have identified through the planning processes to date are:
· that an adequate site is retained to accommodate the full Arts Complex in a functionally efficient and cost effective manner;
· that the necessary transition from the upper-level Thurlow Plaza and Thurlow Street end to Harbour green Park does not further constrain the volume and footprint of Art Complex program;
· that the proposed reorientation of the Arts Complex to site public areas facing the park is achievable within the Council approved view corridors; and
· that the Civic Plaza, the retains its function as both a gathering place and outdoor public performances venue.
Social Implications: In Stage One of the New Trade and Convention Facilities Review Program (1996) a number of conditions were approved by the City and the Province for the (future) developer of the facilities to address. A number of other conditions were also approved for the Provincial and City governments to pursue independent of the facilities development approval process. Two of those conditions related to establishing an ongoing program to identify and address potential low income housing impacts and pursuing a program for job creation and training. With respect to housing impacts, in the 1996 Stage One Review, the Burrard Landing site was identified as having the least potential impact ofthe three sites under consideration at the time. City staff will be updating earlier analyses to determine what, if any, low income housing impacts are anticipated from this development in the context of other pressures on low income housing and government programs.
City staff will resume discussions with Provincial staff to address these conditions as they relate to the Burrard Landing site and report back to Council at the Form of Development Stage when there is a specific proposal and proponent team in place.
Other than as noted above there are no major positive or negative social implications to this proposal. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.
Page 1 of 15
City of Vancouver Land Use and Development Policies and Guidelines
Community Services, 453 W. 12th Ave Vancouver, BC V5Y 1V4 _ 604.873.7344 fax 873.7060
VANCOUVER CONVENTION AND EXHIBITION CENTRE (VCEC) CD-1 GUIDELINES - 100 THURLOW STREET
Adopted by City Council (DATE)
(Note: Council has directed that these guidelines be used by applicants and staff for development applications at the following CD-1 zoned sites:
Address CD-1 No. By-law No.
100 Thurlow Street 363 7679
* The address of individual development applications and permits may differ.)
DRAFT: 2002 05 14
Page 2 of 15
1 Application and Intent 1
2 Organizing Principles 1
3 Overall Guidelines 2
3.1 Siting 2
3.2 Building Orientation 2
3.3 Views 2
3.4 Building Massing and Animation 4
3.5 Architectural Expression, Details, Colours and Materials 5
3.6 Public Open Space 6
3.7 Public Access 6
3.8 Public Realm Treatment 9
3.9 Arts Complex 10
3.10 Marine-oriented Uses 10
3.11 Parking and Loading 11
3.12 Safety and Security (CPTED) 11
Appendix A - Massing for Other Development Scenarios 13
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1 Application and Intent
These guidelines should be used in conjunction with the CD-1 By-law within the proposed Vancouver Convention and Exhibition Centre (VCEC) site (sub-area 2) in Burrard Landing to guide development of the area (see Figure 1). These guidelines are to be read with an acknowledgement that previous and ongoing discussions have occurred with respect to the proposed VCEC development on sub-area 2. Reference should also be made to the Burrard Landing (201 Burrard Street) CD-1 Guidelines amended and adopted by City Council in December 2001. As well as assisting the development permit applicant, the guidelines will be used by City staff in the evaluation of proposed convention centre, Arts Complex, and ancillary developments.
The guidelines will ensure that the design of individual developments on the proposed VCEC site is compatible with the overall urban design concept for the Burrard Landing precinct, adjacent established and future residential neighbourhoods and commercial districts.
The proposed VCEC site is bounded by the proposed Canada Place viaduct to the south, by the harbour headline to the north, by the Harbour Green Neighbourhood and Park to the west, and by Burrard Street to the east.
Figure 1. Burrard Landing Precinct showing VCEC site
2 Organizing Principles
The site is organized around extensions and completions of Burrard Street, the Canada Place viaduct, and Thurlow Street. This portion of Burrard Landing is also a focus for public cultural and recreational facilities in the downtown area, including a proposed Vancouver Convention and Exhibition Centre, a Civic Arts Complex, public plazas, and a major extension of the "Seaside Promenade" walkway/bikeway system to the foot of Burrard Street.
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Key organizing principles guiding the pattern of development include:
(a) Maintaining the sense of a diverse urban waterfront, with `working' marine uses and commercial at grade along the water's edge;
(b) Creating distinctive and lively public places linked along the water's edge by a pedestrian walkway/bikeway system;
(c) Building on the spectacular waterfront setting, by creating a unique `front door' gateway for the downtown to the south, a terminating focus for the Harbour Green neighbourhood and park to the west, a complementary development to the existing Canada Harbour Place to the east, and retaining those waterfront uses contributing to a special character;
(d) Lining streets and public pathways at key locations with active pedestrian-oriented uses which provide interest and security;
(e) Using the change in elevation from the downtown to the water's edge to create a sense of place and strong identity; and
(f) Ensuring that public access to the waterfront and full accessibility to the area is provided for all people, including the disabled.
3 Overall Guidelines
General siting considerations for buildings include the following:
(a) The Arts Complex should be sited to relate directly to Harbour Green Park, the Civic Plaza, the Thurlow Plaza and Thurlow Street;
(b) The waterfront walkway/bikeway system should form a continuous public route wrapping around the water side of the site and be lined with commercial or active components of the Arts Complex and proposed VCEC building; and
(c) Buildings should help define the open space system in their massing and orientation. Building siting should reinforce an integrated network of places and routes, including the waterfront walkway/bikeway linking the Harbour Green waterfront park, the Civic Plaza and the street system above.
3.2 Building Orientation
Street grids and patterns which should be considered include the Canada Place/Cordova Street alignment (e.g., the Shaw Tower and proposed 201 Burrard Street hotel), and the Thurlow/ Burrard Street alignment. In general:
(a) The southerly face of the convention/exhibition centre building in sub-area 2 should be generally oriented to the Canada Place viaduct alignment, and its westerly face should be generally oriented to the Thurlow Street alignment;
(b) The Arts Complex should respond to the Thurlow Plaza and adjacent shoreline configuration; and
(c) Lower building elements should be oriented to adjacent streets and the shoreline.
Figures 2 and 3 illustrate the principal public and private views across the site. Building siting should preserve the street-end view corridors identified in the ODP for Burrard and Thurlow Streets, noting the following:
(a) For views from important public places including Portal Park, these should be retained unless it can be shown that an equal to or better situation results from proposed building massing;
(Note: Encroachment of particular massing elements of the Arts Complex into the Thurlow Street-end view corridor has been approved by Council. Any revision to the Arts Complex site or massing to meet the VCEC program should not increase and preferably should diminish thisencroachment into the street-end view.)
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(b) Public view opportunities should be maximized from the Thurlow Plaza to the waterfront, harbour landmarks, Stanley Park, and the North Shore mountains; and
(Note: Any elements such as porte-cochere canopies should respect public views and be as transparent as possible.)
(c) Should a potential Arts Complex reconfiguration further to the north be approved by the City, opportunities should be considered to open up public views to the west from the Canada Place viaduct, taking advantage of the grade and visual transition to Harbour Green Park from the street.
Figure 2. Principal Street-end View Corridors
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Figure 3. Public Open Space, Landmark and Private Views
3.4 Building Massing and Animation
3.4.1 Perimeter Pathway - Convention Centre and Arts Complex
To avoid the potential detrimental impacts of large, bulky buildings with exclusively inward-oriented activities on the city's urban waterfront, the extent of pedestrian-oriented animation to the public pathway system interface around the perimeter of the building should be maximized, with primary emphasis on the following active uses:
(a) building program uses;
(b) marine-oriented uses and services;
(c) arts and cultural uses and services;
(d) retail, restaurant, or service uses; and
(e) specialty uses.
Where gaps between the above uses are unavoidable, as secondary treatment elements to provide pedestrian interest, consider the use of:
(a) display features of public interest;
(b) public art;
(c) architectural design features;
(d) landscaping; and
(e) distinctive signage and banners.
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For non-building program occupancies proposed along the northerly edge of the convention centre building adjacent to either lower or upper level pathways, minimum depths ranging between 6.0 m and 8.0 m should be provided to make these areas as flexible and commercially viable as possible, with the larger occupancies achieving at least the 8 m depth and located generally at the northeast and northwest corners of the building to assist in drawing pedestrians across the northerly frontage. (Note: Entry doors to active uses along the northerly frontage should be recessed into the building for safety where the bike path directly adjoins these areas.)
3.4.2 Thurlow and Civic Plazas
The westerly edge of the proposed convention centre building adjoining the Thurlow Plaza should be treated to ensure that a proposed main entry and lobby/registration functions are accessed from this side and contribute to animating the plaza. Additional access points may also be desirable.
Animating ancillary uses and commercial opportunities should be provided on both the VCEC and Arts Complex built edges of the plaza.
Active use(s) adjoining the Civic Plaza should be provided, to animate this important public open space and improve overlook and security.
3.4.3 Canada Place Frontage
The Canada Place viaduct frontage near Burrard Street should incorporate prominent active commercial uses at street level for pedestrian interest and animation. The remainder of this street frontage should consist of animating convention centre and commercial uses. Any parking entry proposed on this frontage should be carefully positioned and treated to minimize pedestrian disruption.
3.5 Architectural Expression, Details, Colours and Materials
3.5.1 Building Transparency
The public edges of the proposed VCEC and Arts Complex buildings should be treated to maximize the sense of transparency and to avoid a "black box" image on the waterfront and other edges. This should include:
(a) exposing the northwest corner of the VCEC building in a prominent glazed feature allowing views from the waterfront pathway system into portions of the interior of the building;
(b) extensive glazing along the principal public frontages of the convention centre building including the Thurlow Plaza, Canada Place viaduct, and extension of Burrard Street;
(c) extensive glazing along the Civic Plaza, Thurlow Plaza and Harbour Green park frontages of the Arts Complex noting that there will be upper elevations which must be non-transparent (i.e., fly tower); and
(d) visual links to internal building activities on other frontages wherever feasible.
3.5.2 Landmark Image
A visual image of landmark quality should be provided to the proposed buildings, as seen from Stanley Park, the northerly water approach, nearby public open spaces, and adjacent downtown buildings. This should:
(a) consider for the proposed convention centre building the use of distinctively shaped roofs and materials that have a nautical character, reflect the unique characteristics of the Coal Harbour waterfront, and are complementary to the nearby Canada Place "sails";
(b) consider for the Arts Complex building the use of forms and materials that will distinguish it from the adjacent convention centre and commercial towers to provide a distinctive but complementary image; and
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(c) consider the use of generally light colours to the exterior cladding materials and clear, transparent glazing systems for the building. (Note: Dark or reflective glazing will not be considered.)
3.5.3 East Edge Treatment (Lower Level)
The east edge space below the upper pathway level should be treated comprehensively to provide an attractive, high quality inboard building facade that incorporates animating features and reinforces the nautical character of the foot of Burrard.
3.5.4 Pedestrian Weather Protection
Pedestrian weather protection should be provided around all public edges of the proposed buildings, in the form of highly transparent glazed canopies located at an appropriate position on the building facade to maximize their effectiveness. (Note: Canopy height above the pedestrian level should generally occur at a minimum height of 2.75 m and not exceed approximately 4 m to provide effective protection.)
The provision of weather protection features should also be considered at public lookout points, at the entrance port-cocheres, rest areas in open spaces, and adjacent to retail/service uses animating the Thurlow Plaza and other public edges.
3.6 Public Open Space
3.6.1 Thurlow Waterfront Plaza
A major public open space is required to meet open space requirements under the Official Development Plan and should be provided from the foot of Thurlow Street opening up prominently to the waterfront in a configuration and design that best achieves a highly usable, animated, safe, comfortable, and flexible public gathering space. This should :
(a) have a strong sense of place and a "signature" quality that reflects Vancouver's unique Coal Harbour waterfront setting and character;
(b) provide an axial focal point at the foot of Thurlow Street adjacent to the waterfront that incorporates a nautical feature (e.g., "lighthouse" element or "beacon");
(c) provide a sense of arrival for pedestrians at the foot of Thurlow Street that signals a transition from the commercial downtown area to a major public place on the waterfront; and
(d) allow within an overall organizing framework, for the open space to function as both a large gathering space and also at the more intimate scale.
(Note: Usable areas of public open space to meet ODP requirements consistent with principles approved by the City will need to be confirmed at the detailed design stage.)
3.6.2 Civic Plaza
A major civic, public performance and gathering space is required and should be provided adjacent to the Arts Complex and the waterfront in a configuration and design that best achieves a highly usable, comfortable, and flexible performance venue. Public seating may be integrated into the envisioned adjacent "grand" stair connecting the Thurlow Plaza to the waterfront walkway.
3.7 Public Access
3.7.1 Waterfront Connection to Burrard Street
A primary public promenade that further extends Vancouver's world class waterfront walkway/bikeway system along the Coal Harbour waterfront is required. It should be provided adjacent to the water's edge, be suitable for pedestrians, cyclists, and in-line skaters, and connect from the 3.5 m level of the water's edge pathway at the northwesterly corner of the site (adjacent to Harbour Green Park) up to the foot of Burrard Street at the Canada Place viaduct elevation. This primary walkway/bikeway should be:
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(a) a separated, ramped system at least 12.0 m wide;
[Note: Additional width will be needed where access is required to adjoining active uses, with consideration given to cross traffic and the interface of active frontages with the pathway system-refer also to 3.4.1]
(b) a gradual transition (no switchbacks) with maximum grades of 5% and frequent level rest spaces at intervals depending on the grade; and
(c) consistent with the design, dimensions, functions and finishes of the "Seaside Promenade" in Harbour Green Park immediately to the west.
3.7.2 Water Level Connection to Waterfront Road
A secondary public pathway should be provided at the 3.5 m lower level suitable for pedestrians, cyclists and in-line skaters from the northwesterly part of the site (approximately the foot of Thurlow Street) at the water's edge to the foot of Burrard Street and the right-of-way known as Waterfront Road. This should be:
(a) a shared system at least 6.0 m wide; and
(Note: Additional width may be needed for exiting, access to adjoining uses, or emergency/service vehicle access requirements.)
(b) with at least 50% of its width open to the sky.
Consider opportunities for allowing natural light penetration to the lower level on the easterly side of the site.
Consideration should also be given to a floating dock system for pedestrian use along the eastern edge of the site that allows for a return loop from the easterly most extension of the lower pathway and which could accommodate temporary moorage of exhibit and/or charter vessels at the foot of Burrard Street.
3.7.3 Vertical (elevator) Connections (with provisions for disabled, cyclists)
A minimum of three (3) vertical access points for public use should be provided and maintained, to be located generally at the southeast, northeast, and northwest corners of the site with full access from adjacent public access routes and plazas. (Note: If substantial on-street parking is provided along the lower level road, an additional elevator connection at the southwest corner of the site may be required.) These connections should:
(a) be carefully integrated with other building activities;
(b) be easily identified through a high quality, directional signage program;
(c) be highly transparent and visible from adjacent public spaces for safety and identity; and
(d) have at least one elevator designed to accommodate cyclists.
(Note: Public vertical connections should not rely on Interior Arts Complex program areas.)
3.7.4 Waterfront Connections to the Thurlow Plaza
A gradual, convenient, and generous "grand steps" connection should be provided from the upper Thurlow Plaza to the lower walkway and Civic Plaza areas at the northwest part of the site. This should:
(a) allow for the "grand steps" to be used as an outdoor performance and seating area for events in the Civic Plaza; and
(b) incorporate a sequence of gracious terraces down to the water's edge.
(Note: Additional site area extending into the harbour at the northwest corner of the site may be needed to maintain acceptable gradients, depending upon the extent to which the proposed upper Thurlow Plaza elevation can be lowered, and to achieve the necessary stage/plaza dimension for public performances and events in the Civic Plaza.)
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Structural options should be fully demonstrated for lowering of the north half of the plaza structure to achieve a positive relationship between the Thurlow Plaza and the lower pathway level and Civic Plaza, and to improve water views, without compromising the Arts Complex building program, envelope and massing.
A secondary stair connection should be provided from the northeasterly side of the Thurlow Plaza that provides access to the lower level pathways and active and/or marine-related uses below.
3.7.5 Lower Level Access Road (Waterfront Road)
A suitably designed lower level access road is required and should be provided at the 3.5 m level, with consideration given to the following:
(a) number of and width of lanes (with acceptable provisions to accommodate cyclists), alignment, radii;
(b) urban design issues including appearance, lighting and security; and
(c) safety and adequacy of crossing locations for parking access.
(Note: The lower level road must also make provisions for pedestrians with a sidewalk of acceptable width on, as a minimum, one side of the road.)
3.7.6 East Edge Access - Upper Level
Highly animated, primary pedestrian access should be provided and an extension of Burrard Street with limited vehicular access should be considered along with active retail uses lining the eastern upper level building frontage out to the seaplane terminal facility at the northeasterly waterlot area. This should consist of:
(a) a generous sidewalk (at least 4 m in clear width) on the inboard side;
(b) if vehicular access is provided, a maximum of two (2) traffic lanes plus some curbside parking on the inboard side; and
(c) a primary "greenway" pathway at least 12.0 m wide on the outboard side (as in 3.7.1 above), including the extension of the separated bike/walkway network (with no compromise in width) to the Canada Place viaduct intersection. (Note: Consideration should also be given to expanding feature areas of the walkway to allow for harbour viewing and seating, and providing a gently curved alignment for the road and pathway system that reflects its waterfront location.)
3.7.7 East Edge Vehicular Access - Lower Level
A maximum two (2) lane access road should be provided at the lower 3.5 m level along the easterly edge of the site to service the proposed seaplane terminal facility and other marine-related uses located on the northerly side of the site. This road should be:
(a) located inboard of the public pathway;
(b) suitable for emergency vehicle ingress/egress;
(c) have a minimum 12 m centreline radius traffic circle treated in a pedestrian- friendly manner at its northerly end; and
(d) meet City emergency access and fire fighting requirements.
3.7.8 Thurlow Street Vehicular Access (Arts Complex and VCEC)
The provision of vehicular access on to a major public plaza area from the intersection of Canada Place viaduct and Thurlow Streets should be considered to provide front door drop-off for the Arts Complex and additional drop-off capabilities for the proposed VCEC building in the form of one (1) moving lane in each direction and additional drop-off provisions. This should:
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(a) be designed so as not to compromise the "signature" quality of the Thurlow Plaza and open space by minimizing the extent of the proposed vehicular cul-de-sac; and
(b) provide generous "green" pedestrian corridors on either side of the vehicular area, to continue the direct pedestrian route from the downtown, with trees and landscaping aligned with the Thurlow Street sidewalks.
(Note: An access ramp may be provided to below grade parking, if plaza treatment quality and pedestrian environment is maintained.)
3.7.9 Harbour Green Park Connection from the Canada Place Viaduct
A wide stair and ramped connection should be provided to Harbour Green Park from the intersection of Canada Place viaduct and Thurlow Street on the southerly side of the proposed reconfigured Arts Complex without compromising the Arts Complex building program, envelope and massing.
(Note: A new street grade of 14.5 m has been recently approved at the southeast corner of the Canada Place viaduct and Thurlow Street, adjacent to the 298 Thurlow Street development site.)
3.7.10 SkyTrain/SeaBus/ Local transit/ Potential Rapid Transit Connections
A future attractive, generous, and convenient public connection should be allowed for to the SkyTrain and SeaBus terminal (Waterfront Station), local transit routes and stops along Canada Place viaduct and a potential North-South Rapid Transit terminal via the existing trade and convention centre at the approximate 9 m floor level, through a connection located on the north side of the existing Canada Place viaduct east of Burrard Street.
3.7.11 Other Pedestrian Mid-level Linkages
Pedestrian mid-level (9 m level) crossings/linkages should be allowed for from the VCEC to the Arts Complex, and from the VCEC to the hotel proposed to the south (201 Burrard Street) and to parkades.
3.8 Public Realm Treatment
3.8.1 Foot of Burrard Street
A distinctive, high quality treatment to the foot of Burrard Street should be provided that reflects its importance as a premier "ceremonial street" in the city and an important public access route to the Coal Harbour waterfront. This should:
(a) include historical and/or nautical references in the design, and allow for the location of a significant public art feature visible down Burrard Street; and
(b) allow for the continuity of proposed public realm treatment with the existing Canada Place complex to the east and its future potential retrofit.
(Note: The design should assume a future widening to 12.0 m of the pathway on the north side of the Canada Place viaduct east of Burrard Street-to at least the west side of the existing Canada Place Convention Centre - consistent with standards adopted for Burrard Landing and a continuation of the "Seaside Promenade" to the east.)
3.8.2 Street Edge Treatment
Generous sidewalks with a high quality treatment consistent with the adjacent Burrard Landing public realm standards should be provided (noting additional width to be achieved via rights-of-way and building setbacks) to accommodate anticipated pedestrian volumes. (Note: Along the north side of the Canada Place viaduct this should include a minimum 6.0 m clear sidewalk width between street trees, street furniture obstructions, and building projections. A full array of street trees should be provided along both sides of this frontage of the street/viaduct.)
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On Canada Place between Burrard and Thurlow Streets, the number of curb cuts and vehicular crossings which will negatively impact the pedestrian movements should be minimized.
(Note: A maximum of two and preferably only one should be considered)
If a porte-cochere /drop-off is required, it should be limited to only the Thurlow / Canada Place viaduct intersection, with the pedestrian continuity maintained across this vehicular access.
Pedestrian crosswalks should be allowed for at the foot of Thurlow Street, the foot of Burrard Street, and mid-block, in coordination with the pedestrian link through the 201 Burrard development site.
3.8.3 Lower Level Road Treatment
The lower level access road should be designed for public use and not only as a loading and service area, with consideration given to the following:
- number and width of lanes (with acceptable provisions to accommodate cyclists);
- location of sidewalks and provisions to allow the safe passage of pedestrians;
- urban design issues including appearance, lighting, and security; and
- safety and adequacy of crossing locations for parking access.
3.9 Arts Complex
3.9.1 External Relationship
The Arts Complex building program should be organized to maximize functionality and opportunities to relate to adjacent outdoor uses in the Civic Plaza, Thurlow Plaza and Harbour Green Park.
3.9.2 Height and View Impact
The extent of any changes to the previously approved encroachments into the public view corridor that may be caused by the Arts Complex reconfiguration should be analysed with the objective of achieving an equal to or better situation regarding overall public views, including those from Portal Park and the Thurlow Street-end. (Note: The height of the proposed reconfigured Studio Theatre and Rehearsal Hall may extend above the plaza grade.)
3.9.3 Vehicular Access
Porte-cochere access to the theatre entrance should be allowed for from the proposed plaza cul-de-sac, with its location dependent upon the internal configurations.
The provision of an access ramp should also be considered to the proposed convention centre's underground parking from the plaza cul-de-sac.
Safe and pedestrian friendly sidewalks and bike lanes from the lower level road to the Arts Complex lower-level entrance should be allowed for, noting that the lower level road will be used both by trucks and by cyclists and pedestrians to access the Arts Complex stage door.
3.10 Marine-oriented Uses
3.10.1 Marine/Seaplane Terminal
A seaplane/marine terminal facility should be provided for, to be located on the waterlot adjacent to the northeasterly portion of the site. This should include:
(a) locating any floats or fixed structure over the water proposed on the easterly side of the waterlot so that a minimum 99.0 m setback is provided from the west side of the Canada Harbour Place apron to the east for cruiseship access at the foot of Burrard Street (see also Figure 19 in the Burrard Landing CD-1 Guidelines);
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(b) locating any office or other support facilities related to the seaplane operation or other marine uses at the lower 3.5 m level inboard along the waterfront pathway;
(c) together with full inboard animation being provided for the primary upper level pathway, consideration of the development of a two-storey floating or fixed terminal/restaurant structure over the water at the northeast corner of the site, provided this does not impact approved public views (Note: The massing of any such structure should be minimized and in any case should not exceed an elevation level of 14.0 m geodetic, to preserve public views from the foot of Burrard Street and from the waterfront pathway system.);
(d) consideration of incorporating limited charter boat moorage at the westerly side of the marine terminal, with public access provided for harbour tours; and
(e) except for the potential floating dock at the foot of Burrard Street as noted in section 3.7.2 above, allowing temporary moorage only adjacent to the Civic Plaza. (Note: It may be desirable to moor a stage barge adjacent to the Plaza for larger performance events.)
3.10.2 Pedestrian Ferry Service
The option for a small scale pedestrian ferry service dock should be allowed for on the northwesterly portion of the site, generally located adjacent to the Civic Plaza.
3.11 Parking and Loading
3.11.1 Access to the Arts Complex on-site (staff) parking should be provided from the convention centre parking levels and access ramps.
3.11.2 A parking access scheme should be developed which provides safe and efficient ingress and egress to parking areas, and ensures that the required number of parking stalls are made available for the VCEC expansion, the Arts Complex, and the Seaplane Terminal.
3.11.3 Parking areas located at the lower levels on the easterly side of the building should be attractively treated and screened with animating features to address the view from the lower level public pathway and nearby public areas including the existing Canada Place promenades.
3.11.4 Traffic management plans (for the VCEC expansion, the Arts Complex and the Seaplane Terminal) considering buses, trucks, taxis, and private vehicles should be developed which address the following:
- loading/queuing/storage should be located away from principal pedestrian circulation routes;
- all truck traffic and deliveries should take advantage of the existing truck routes;
- all manoeuvring and loading should take place on-site without the need to back up onto City Street;
- all bus activity (including hotel shuttles, convention tours, Arts Complex demands, and Seaplane Terminal demands) should be addressed in a Bus Management Plan with consideration given to the approved recommendations of the City's Bus Impact Task Force; and
- taxi pickup, drop off, and queuing, which should be located and managed in a way that minimizes congestion without detriment to the public realm.
3.12 Safety and Security (CPTED)
The principles of Crime Prevention Through Environmental Design (CPTED) should be followed for all aspects of design and planning having particular regard for:
- maximizing continuous active uses adjoining the perimeter pathways with minimal overhanging deck areas (weather protection should be provided by glazed canopies);
- maximizing the visible connection between the Waterfront Plaza and the streets (corner of Thurlow and Canada Place Way) through increased width between the buildings and low landscape features;
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- defining the program activities of the Waterfront Plaza and clarifying jurisdiction for maintenance;
- where skateboarding facilities are not programmed, the planters, handrails, steps and other landscape features should be treated to reduce opportunities for skateboarding;
- considering the design of all under-deck areas as important public and private spaces similar to above deck areas through definition and sense of ownership;
- allowing emergency vehicle access (police) to plaza and perimeter pathways areas; and
- ensuring furnishings and landscape features are resistant to vandalism while maintaining important design features.
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Appendix A - Massing for Other Development Scenarios
Should the current VCEC proposal for the site not proceed, and an alternate commercial development be proposed, its massing should address the following urban design concerns as reflected in the Burrard Landing CD-1 Guidelines:
(a) a transition in scale and height should be provided down to the water's edge that minimizes shadowing impacts on adjacent public open space/ waterfront pathways;
(b) City-approved public view corridors should be complied with and impacts minimized on other high priority private views designated in the guidelines, including those from the Marine Building and Guinness Tower;
(c) the major portion of the building massing should be located towards the easterly Burrard Street side of the site adjacent to Canada Place, generally within the envelope containing the remaining office tower 2C and the hotel tower proposed on the waterfront parcel;
(c) the major portion of the public open space should be located towards the westerly Thurlow Street side of the site adjacent to the proposed Arts Complex, Harbour Green Park, and the waterfront pathway;
(d) tower height should be limited on the southerly portion of the site adjacent to Canada Place to a maximum of 92.0 m. (Note: This may be increased to a maximum of 99.0 m subject to certain urban design criteria being met as allowed under Section 7.1 of the CD-1 zoning);
(e) should there be a second tower proposed for the site located further to the north towards the water's edge, its height should be limited to the current height maximum of 65.0 m for the proposed hotel shown in the guidelines on the waterfront parcel, and a terracing down in height should be provided towards the adjacent public pathway and water's edge; and
(f) the Arts Complex site (Lot 24) program and massing should be respected.
If the current VCEC proposal does not proceed on this site, any new development proposal for this site should ensure that views downward to the water from the Thurlow Street-end are maintained, with consideration given to the following:
- for the proposed public open space at the foot of Thurlow Street, this should be designed as a generous, gracious, terraced area gradually leading down to the waterfront pathway, with pedestrian views from the foot of Thurlow Street expanding down to the water's edge.
Additional Council resolutions pursuant to the report "Expanding the Vancouver Convention and Exhibition Centre - Financial Assessment of the October 2000 Business Plan" dated September 18, 2001.
B. (i) THAT Council direct staff to notify the federal and provincial governments and the Vancouver Convention Centre Expansion Task Force that the City is prepared to make a financial contribution to the proposed project in the form of an exemption from annual municipal property taxes to the convention centre portion of the complex; and
B. (ii) THAT Council direct staff to notify the federal and provincial governments and the Vancouver Convention Centre Expansion Task Force that the commercial portions of the property such as parking, retail and marina operations will not be exempted from annual municipal property taxes.
C. THAT Council direct staff to notify the federal and provincial governments and the Vancouver Convention Centre Expansion Task Force that the expanded convention centre will be subject to full development related costs, including Development Cost Levies, development and building permit fees and ongoing utility and licence fees that are associated with the project.
D. THAT Council instruct the City Manager to meet with staff from the federal and provincial governments and the Convention Centre Expansion Task Force to review the options for funding the expansion, including those outlined in this report, and to report back to Council on the impacts of these options on the project, on the City and on the marketing of tourism activity in the City.
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
100 Thurlow Street
Lots 23, 24, 25, 26 and 27, Plan LMP29892; Lot 3, Plan LMP51876; and portions of Closed Road, all of the Public Harbour of Burrard Inlet portions of Closed Road, all of the Public Harbour of Burrard Inlet.
Director of Current Planning, if so directed by Council.
Marathon Realty Ltd.
not yet determined
DEVELOPMENT PERMITTED UNDER EXISTING ZONING
Office, Retail, Service, Hotel, Cultural Recreational
Add Convention and Exhibition Centre
MAX. FLOOR SPACE
65 523 m²
Add 23,225 m² (250,000 sq. ft.) for Exhibition Hall and permit conversion of: i)54,997 m² (592,000 sq. ft.) from office and hotel to Convention and Exhibition Centre; ii) 2665 m² (28,687 sq. ft.) from office to retail or service uses, in conjunction with Convention and Exhibition Centre; and iii) 2000 m² (21,528 sq. ft.) from office to retail or servicing conjunction with Cultural and Recreational Uses (Arts Complex) if in conjunction with Convention and Exhibition Centre.
add 29.5 m (97ft.) Convention & Exhibition Centre height limit above 14 m (46 ft.) geodetic elevation, and a 14 m geodetic elevation height limit for outboard commercial structures.
MAX. NO. OF STOREYS
to be assessed prior to form of development approval.
FRONT YARD SETBACK
SIDE YARD SETBACK
REAR YARD SETBACK
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(c) 1998 City of Vancouver