Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Rezoning - 600 Granville Street & 602 Dunsmuir Street

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

· Central Area Plan approved 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; and
· View Protection Guidelines as amended to December 11, 1990.

PURPOSE AND SUMMARY

This report assesses an application to rezone two sites from DD Downtown District to CD-1 Comprehensive Development District to permit a transfer of density from one site (Site B) containing two heritage buildings, the St. Regis Hotel and Gotham Restaurant, to the other site (Site A) in order to develop four-levels of commercial use with a residential tower (approximately 490 dwelling units) in a part of the downtown where residential is not permitted. The development site would include retention and re-use of two additional heritage structures, the street facades of the B.C. Electric Showroom Building and of 648 Granville Street, and provide universal access to the Granville Street SkyTrain Station.

DISCUSSION

Background: On September 12, 2001, development application DE406058 was submitted on the 600 Granville Street site, to underdevelop the site with a four-storey retail and office development. The application included the retention of the heritage B.C. Electric Showroom Building but without providing an underground access to the Granville Street SkyTrain Station. The development application has been put on hold at the request of the applicant, pending the outcome of the subject rezoning application.

On January 8, 2002, staff received a rezoning inquiry from Macdonald Development Corporation proposing to introduce residential development on this site where residential use is not permitted, retain four heritage structures plus provide universal access to the Granville Street SkyTrain Station. On February 21, 2002, Council resolved:

On March 8, 2002, a rezoning application was submitted by Malcolm Elliot, Architectura,along with several development options. Staff and the applicant agreed upon cost recovery funding which was contributed by the applicant on March 18th. Selected form of development drawings were submitted on April 18th, and amendments to the drawings were submitted on May 16th.

Residential Use in the CBD: The principal reason this development proposal requires rezoning is to permit residential use that is not permitted in Areas A or B in the DD, also known as the core Central Business District (CBD). The site is in the southeasterly corner of Area A.

In 1997, Council approved amendments to the Central Area Plan to:

1. ensure that an inventory of office zoned land in the entire CBD is sufficient to meet an ongoing projected 20 year new office space demand (see Office Capacity Analysis);
2. ensure that residential rezonings are generally not considered in the core CBD;
3. consider residential rezonings in the CBD where rezoning also facilitates heritage retention; and
4. recognize that residential rezonings in the CBD should be for adult-oriented housing, and should be considered where the character of the precinct is conducive to residential liveability and the proposed housing is compatible with adjacent land uses (See Residential Liveability).

The Central Area Plan allows for consideration of this rezoning application because of the significant heritage retention initiatives proposed.

Critical in the assessment of a rezoning application for residential use in this area, based on heritage retention, is the opinion of the business community. The applicant submitted letters from four downtown business organizations, three downtown property owners and a major tenant of a neighbouring building, all in support of the rezoning proposal. Staff have received only two calls seeking clarification on the proposal.

Office Capacity Analysis: The applicant submitted a study by Colliers International, entitled "Office Capacity Analysis of Downtown Vancouver - as of December, 2001".

In reviewing this study, staff have concluded that there is sufficient office capacity to meet 20 years of office and hotel space demand, as called for by Council's 1997 policy on residential rezonings in the CBD.

Staff are concerned that, given existing permitted densities in the Central Business District, there may be challenges in meeting this policy test in the event of additional losses of office capacity to residential development. Staff will follow up on this from a policy perspectiveover the next year, in consultation with downtown business organizations.

Residential Use Next to the SkyTrain Station: Staff note that the Central Area Plan scaled back the geographical extent of the CBD with a view to creating a compact central core centred on transit and that new transit routes and stations have generally reinforced the defined CBD. It is expected that major office development will continue to focus near existing and proposed major public transit.

Staff believe it would be preferable that a large-scale office development (an employment generator) be located next to the Granville SkyTrain Station rather than the mixed use development with residential tower proposed with this rezoning application. However, given that the approveable, on-hold development application would contain no office tower and would allow the site to remain underdeveloped for many years relative to currently-permitted FSR, a residential tower with approximately 490 dwelling units next to the transit station is preferable to no tower at all. This, plus the fact that the on-hold application would provide no underground transit connection and would not include three additional heritage structures strengthens the argument in favour of the rezoning.

Residential Liveability: There is some concern about residential liveability in this part of the downtown which is not planned to meet residential needs, and which is generally noisier than some parts of the downtown where residential use is permitted. Concerns centre around late-night noise emanating from permitted cabarets and from late-night garbage collection and large truck deliveries. All of the downtown is in an "activity zone", as defined within the Noise Control By-law, which permits industrial-level noise and does not afford residents much relief in response to noise complaints.

An acoustic report by BKL Consultants was submitted by the applicant and reviewed by the Senior Environmental Health Officer who agrees with the consultant's recommendations for dealing with sound proofing by using a combination of operable thick double glazed windows and, should the windows need to be closed for sound control, the option of either pressurized corridors with ducts to permit air to enter the dwellings, or acoustically-lined inlet ducts with fans for each dwelling. These options will be sufficient to deal with worst-case scenarios of increased traffic and location of a new cabaret across Granville or Dunsmuir Streets. The final solution will be resolved at the development application stage.

Views to the southeast of the site will remain unobstructed in perpetuity because the rezoning will retain the current density and height of the two heritage buildings.

The proposal includes roof terraces for residents at the fourth and thirtieth floors, plus enclosed amenity space on the third, fourth, sixth and seventh floors.

It is recognized that living in the heart of the CBD is not everyone's choice, but will appeal to residents looking to be at the centre of the action without expecting the usual amenities of a residential neighbourhood. To ensure that the purchasers of dwelling units in the building are fully aware of the noise environment, staff recommend that the dwelling unit use provision in the CD-1 By-law contain a reference to the surrounding area being in an "activity zone" as defined in the Noise Control By-law.

Density and Form of Development (Note Plans: Appendix F): Averaged across the two sites included in the rezoning, the proposed density is 10.2 FSR including the new development and the protected heritage buildings. This is a little greater than the permitted density of 9.0 in Area A of the DD.

Essentially, the remaining density that could be built on the heritage donor site is to be transferred to the development site, along with an amount of heritage bonus density which accounts for the 1.2 FSR over what could otherwise be built across both sites.

Because a City lane separates the sites, it is preferable that each be considered separately in the CD-1 By-law. Site A, the development site, has a proposed density of 13.5 FSR, while Site B, the heritage donor site, will maintain a density of 3.3 FSR. The CD-1 By-law would also include additional floor area available only for transfer off either site (see Heritage Density).

The height of the proposed form of development is just below the 100 m (328 ft.) Granville Bridge to Mount Seymour View Cone, and is well under the otherwise permitted 137 m (450 ft.) in Area A of the DD.

There is limited precedent for mixed use residential developments with an FSR of almost 14, and the preparation of a form of development that provides for excellence in urban design while providing a reasonable living environment has proven to be challenging for the applicant. However, staff and the Urban Design Panel believe the proposal is more than satisfactory on both accounts, and expect the residential tower paired with the Canaccord Tower (former Stock Exchange Tower) across Granville Street will create a significant positive design feature along this portion of Granville Street. An expanded Urban Design Review prepared by Urban Design and Development Planning staff is outlined in Appendix E.

It should be noted that a detailed plan check has not been carried out because the drawings are not dimensioned. However, the applicant agrees to take full responsibility for the numbers and will adjust the drawings as needed at the development application stage.

Heritage Density: All of the unused density from Site B would be transferred to Site A, along with some heritage bonus density resulting from the costs of retention.

There is an additional amount of heritage density that would be identified in the CD-1 By-law that could be sold and transferred away from Sites A and B. The availability of this density, 1 495 m² (16,091 sq. ft.) is optional, and would depend on whether the owner of the St. Regis Hotel carries out Phase 2 of the heritage improvements - essentially to replace the existing windows with ones that are more in keeping with the original windows. A legal agreement registered against the title would control whether the floor area is available to the owner to transfer off site. If the work is never done, the density will remain in the CD-1 By-law but will not be available to transfer.

To complete the compensation package to the owner for the hardship of rehabilitating and conserving the four heritage buildings, staff are recommending that the HRA for 600 Granville Street vary the DCL By-law to provide $95,673 of relief through a rate reduction.

Underground Retail: The proposal includes one floor of underground retail through which a second access to the SkyTrain Station is available from Granville Street near the Bay. The Central Area Plan generally discourages underground retail except for small amounts to serve the employees of major office buildings. The exception to this policy is that underground links with limited retail should be permitted from rapid transit stations. This exception is intended to generally maintain the public streets as downtown's pedestrian routes, while providing added convenience for transit users and additional pedestrian capacity closest to stations where heavy pedestrian traffic is anticipated.

The underground floor of retail is therefore supported.

Exempt Area for Transit Access: The applicant has requested that the floor areas used for access to the Granville Street SkyTrain Station be exempt from floor area calculations. This includes 820 m² (8,829 sq. ft.) on the development site and 279 m² (3,000 sq. ft.) on the St. Regis Hotel site. The space provides circulation corridors, escalators, stairs and elevators from the doors on Dunsmuir Street down on several levels to the space below the City lane, under the St. Regis Hotel and then to the Station.

There is no standard floor space exclusion for transit access through private property in the DD District. However, given the public purpose of this floor space, staff support this as exempt space in the CD-1 By-law provided it is not required for normal exiting or other non transit-related purposes.

Legal Agreements to Ensure Construction of Transit Access: The heritage protection elements of this rezoning application provides public benefit to support a recommendation of approval, but the inclusion of the universal transit access is also an essential component of the proposal. It is important to have security that the developer will not choose to leave it out at the development permit stage. Currently, staff are reviewing the business arrangement between the developer and Translink, and will report at the public hearing on the type of agreement that is appropriate as a condition of rezoning enactment.

Loading and Lane Access: Discussions have been underway during the processing of the on-hold development application and the current rezoning application to resolve the access and loading issues with the Bay that has enjoyed free use of the lanes between Granville and Seymour Streets for some years. The applicant has worked with the Bay to propose options for redesigning the Bay's receiving facility, and the Bay has agreed that one of the options appears to be a workable solution for its shipping and receiving and garage compaction and retention. However, the Bay is still concerned about the lanes' ability to accommodate the traffic generated by the Bay, the existing hotel and restaurants and the proposed mixed-use development. The applicant's intention is to continue working with the Bay and to create a loading management plan and agreement to which all neighbours will become parties.

Engineering Services is recommending that, as a condition of the development permit, a loading management plan and four-party agreement (between the owners of 600 Granville, the St. Regis Hotel, the Gotham Restaurant and the Bay) addressing loading issues in the lane be required, or other arrangements to the satisfaction of the General Manager of Engineering Services.

CONCLUSION

Planning staff conclude that while residential development is discouraged in this part of the downtown in order to maintain the primacy of retail, office and entertainment uses, Council's Central Business District Policies do provide for consideration of residential rezoning "where the rezoning also facilitates the retention of a heritage building". This rezoning application facilitates retention of four heritage structures with an additional public benefit of providing underground universal access to SkyTrain. Furthermore, while this will be a noisier location than some parts of the downtown where residential is permitted, liveability issues have been adequately addressed. Furthermore, the design features of the development are commendable as noted by members of the Urban Design Panel.

The Director of Current Planning recommends that the application be referred to a public hearing and be approved, subject to conditions.

- - - - -

APPENDIX A

DRAFT CD-1 BY-LAW PROVISIONS

Map of Sub-Areas*

 

*Subject to the preparation of a CD-1 By-law with sub-areas, or two separate CD-1 By-laws as deemed necessary by the Director of Legal Services.

 

Sub-Area A (600 Granville Street)

Uses

First three storeys, plus below-grade concourse level:

Above the third storey:

Floor Area and Density Calculation

The total floor area for all permitted uses will not exceed 37 681.3 m² (405,611 sq. ft.)

The inclusions and exclusions provided in Section 3, subsections 5,6 and 10 of the DD District will apply, except that a maximum of 820.2 m² (8,829 sq. ft.) of floor area, including corridors, escalators, elevator shafts and stairwells used for access to the Granville Street SkyTrain Station, may be excluded from the calculation of floor area.

Height

The maximum building height, measured above base surface is 100.0 m (328 ft.).

Parking and Loading

Parking, commercial loading and bicycle parking are to be provided as per the Vancouver Parking By-law except that provisions for residential parking will be as follows:

For dwelling units less than or equal to 44 m² (474 sq. ft.) a minimum of 0.3 space per dwelling unit and a maximum of 0.5 space per dwelling unit; for units greater than 44 m² but not more than 70 m² (754 sq. ft.), the standards increase at a rate of 0.025 space per square meter above 44 m² (i.e., at one space per 40 m² [431 sq. ft]); and above 70 m², the standards increase at a rate of 0.008 space per square metre (i.e., at one space per 125 m² [1,346 sq. ft.]), except that in no case would more than 2.0 spaces per dwelling unit be required and more than 2.2 spaces per dwelling unit be permitted.

Residential loading is to be provided as follows:

· Less than 99 dwelling units, no requirement.

· 100-299 dwelling units, a minimum of 1 class B loading space is required.

· 300 or more dwelling units, a minimum of 2 class B loading spaces are required. When the requirement to provide 2 class B residential loading spaces is invoked it may be met by making 1 of the commercial loading bays available for residential loading uses, with access to the commercial space to be provided to the satisfaction of the General Manager of Engineering Services and the Director of Planning.

· Commercial loading is to be provided at a minimum of 2 class A and 2 class B loading spaces. All class B loading facilities are to provide a minimum 12'-6" unobstructed over head clearance for the loading bays and related maneuvering aisles.

The relaxation and exemption provisions of the Vancouver Parking By-law are to beavailable.

Acoustics

Evidence must be provided to the satisfaction of the Director of Planning, to demonstrate that noise levels in bedrooms will not exceed 35 decibels, living, dining and recreation rooms 40 decibels, and kitchen, bathroom and hallways 45 decibels.

Sub-Area B (602 Dunsmuir Street)

Uses

Uses generally permitted in Area A of the DD District.

Floor Area and Density Calculation

The total floor area will not exceed 6 088 m² (65,531 sq. ft.), as follows:

The inclusions and exclusions provided in Section 3, subsections 5,6 and 10 of the DD District will apply, except that a maximum of 279 m² (3,000 sq. ft.) of floor area, including corridors, escalators, elevator shafts and stairwells used for access to the Granville Street SkyTrain Station, may be excluded from the calculation of floor area.

Height

The maximum building height, measured above base surface is 23 m (75 ft.)

Parking

Parking and loading provisions are required to be maintained as existing as of the time of enactment of this by-law.

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL

Note: These are draft conditions which are subject to change and refinement prior to the finalization of the agenda for the public hearing.

(a) That for Site A, the proposed form of development be approved by Council in principle, generally as prepared by Malcolm Elliot, Architectura, and stamped "Received Planning Department", April 18, 2002 and May 16, 2002, provided that the Director of Planning or the Development Permit Board, as the case may be, may allow minor alterations to this form of development when approving the detailed scheme of development as outlined in (c) below.

(b) That for Site B, the proposed form of development be approved by Council in principle, being the plans of the St. Regis Hotel as prepared by W.A. Geppert and Associates, and stamped "Received Planning Department" April 26, 2002 and the plans of the Gotham Restaurant as prepared by Darrell J. Epp, Architect Ltd, and stamped "Received Planning Department" April 25, 2002, provided that the Director of Planning or the Development Permit Board, as the case may be, may allow minor alterations to this form of development when approving any future detailed scheme of development.

(c) That for Site A, 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 the Development Permit Board, as the case may be, who shall have particular regard to the following:

(d) That, prior to enactment of the CD-1 By-law, the registered owners of Sites A and B shall, at no cost to the City:

APPENDIX C

HERITAGE VALUE AND PROPOSED CONSERVATION WORK

The primary public benefit of the proposed rezoning to residential is the designation, rehabilitation and sensitive integration of the four heritage buildings on the site. These buildings together with the neighbouring "A" listed and designed Hudson's Bay Building, form a diverse and significant collection of heritage buildings and retain the block's connection to its development roots when it was part of the thriving commercial centre in the early 20th century. While the block comprises of an assortment of "A", "B" and "C" listed buildings, each having their individual heritage merit, the proposed preservation of the block as a relatively intact and preserved "ensemble" represents a significant heritage achievement.

BC Electric Showroom - Existing "B" listing: The B.C. Electric building was designed as a showcase for modern domestic electrical appliances as part of the company's effort to promote the use of hydroelectric power. It was completed in 1928 and designed by Hodgson and Simmons, McCarter and Nairne, prominent local architectural firms of the day.

Character Defining Elements: The building's Granville and Dunsmuir Street facades are among the city's most elegant and urbane. The principal element is a series of ornate two-storey cast bronze windows bracketed by decorative bronze balconies that project from the flanking second storey windows. Despite its Classical composition, the remaining ornamentation is restrained, allowing the focus of design to be on the windows. The other features are limited to consoles above the arched third floor windows, quoins, and shallow bas-relief panels below the cornice. The projection of the cornice itself is minimal, and the overall impression is one of lightness and simplicity. This is consistent with the modernizing trend of the late 1920's that is evident in contemporary structures such as the nearby Hotel Georgia. The traditional design of the building is juxtaposed against its original use at which time it heralded a new modern era of convenience and progress.

Proposed Conservation Work: The exterior of the BC Electric Showroom Building is to be restored to its original exterior appearance, allowing for some modifications for tenancies. The original bronze framed storefronts will be restored, with contemporary butt-glazed storefronts and storefront entries situated just behind the bronze framing. The new transit station portal will be framed in the bronze framing and the opening in the wall trimmed in granite and andesite to match existing exterior conditions. The upper cast iron windows frames will be prepared, painted and new tempered glass units installed in the centre lights. The side lights will be reconditioned and re-glazed. The building's masonry will be restored and seismically stabilized to the concrete back-up wall. New contemporary canopies in the character of the originals will be installed.

648 Granville Street (c1892) - Recommended "B" listing: The 3-storey, 25 foot frontagecommercial building was constructed in 1892 and is an excellent example of the Victorian Italianate Style. It is also the last remaining building on Granville Street from the early 1890s when commercial activity were expanding up Granville Street towards the south. For many years the building was occupied by upper-end retailers, encouraged by the proximity to the desirable Hotel Vancouver formerly located at Granville and Georgia Streets.

Character Defining Elements: This building demonstrates a style commonly adopted for small commercial buildings in the latter part of the 19th century in Canada. Its facade originally included a cast iron storefront dividing the main floor into four narrow openings. The ground floor was given emphasis with a lower cornice. The upper floors are defined by deep punched window openings between narrow brick piers. Brick and rock faced sandstone trim are used to create considerable depth and textural richness, primarily through corbelling to advancing planes. Rock faced sandstone masonry beltcourses, sills, arch spring points and headers, as well as brick corbelling lines set up horizontals bands that balance the strong window opening to create a balanced facade composition. This textural use of sandstone masonry trim elements borrows from the Richardsonian Romanesque, while the extensive brick corbelling probably has more to do with the vernacular use of brick masonry for commercial construction in the Pacific Northwest. The facade is capped with a strong projecting cornice of brick corbelling, moulded sheet metal, projecting and corbelled brick end brackets and a sheet metal capped parapet.

Proposed Conservation Work: The facade will be restored to its 1892 appearance and sensitively integrated into the overall development. The missing cast iron storefront will be replicated, along with the removed lower and upper sheet metal cornices. The foundation will be sectionally replaced and a new cast concrete sleeve wall installed behind the existing brick facade for seismic and lateral support. Missing sandstone veneer pier blocks will be replaced and deteriorated sandstone patched. The brick will be pinned to the sleeve wall and re-pointed. The wood windows will be rehabilitated.

St. Regis Hotel (602 Dunsmuir Street) - Recommended "C" listing: The St. Regis Hotel located at 602 Dunsmuir Street is a good example of the Edwardian Commercial Style. It was designed by noted early architect W.T. Whiteway in 1913 for businessman Leon Melekov and was ideally suited to its prominent downtown corner location.

Character Defining Elements: The bold use of reinforced concrete frame and the high ground floor height allowed for expansive storefront glazing on the beer parlour on the east side and the hotel lobby and barber shop on the north side. The building features a strong base, a central shaft and a strong classically-inspired cornice/parapet. Although built of reinforced concrete, the room configuration defines a fenestration pattern of simple punched window openings with double hung windows. This was in contrast to office buildings of that time that strove for maximum envelope glazing for access to light and air. It produces a strong hotel identity. The sheet metal cornice is a dominant element comprised of a moulded dentil course and large brackets supporting a projecting soffit and facia. It has retained itshotel use since its construction in 1913 and is a good example of the larger hotels that followed historical development of businesses along and adjacent to Granville Street.

Proposed Conservation Work: The St. Regis Hotel is to undergo a phased exterior restoration to its original 1913 appearance. The building's storefront and ground floor level was rehabilitated two years ago and now accommodates a number of tenancies with approximately 10 year leases. In order to accommodate these existing leases and derive a measure of benefits from the recent storefront improvements, the owners will have up to 10 years to restore the original 1913 wood frame storefront with glazed clear storey.

At the owners' choosing, they may also replace the existing aluminum window frames in the street facades with new wood windows matching period profiles and restore the brick surfaces, cornice and parapet above. If the owners' complete this work they will be entitled to transfer related compensating bonus density.

Gotham Restaurant (615 Seymour Street) - Recommended "C" listing: This one storey commercial building, constructed in 1933, is one of the few remaining art deco buildings in the city's commercial centre. The level of workmanship and detail is high, and the architect, Max Downing, was responsible for a number of smaller art deco buildings in British Columbia.

Character Defining Elements: The building's principal asset is the beautifully detailed cast concrete art deco ornamentation developed across the attic level of the storefront. They are presented in a stylized floral pattern. The projecting crenellated cornice piers along the parapet define cast stone panels and a strong insistent rhythm across the facade. A chevron band beneath the cornice runs the full length of the facade and works with the cornice to create a unified facade over two separate retail units.

Proposed Conservation Work: No conservation work is proposed for this art deco building. It was rehabilitated in 1996 to house the new Gotham Restaurant and remains in very good condition.

Economic Viability of Conservation: The owners have agreed that the proposed compensation package of:

APPENDIX D

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This rezoning application includes two sites:

Site A is 2 787 m² (30,000 sq. ft.), comprised of ten parcels fronting Granville Street at Dunsmuir Street, with a frontage of 76.2 m (250 ft.) and a depth of 36.6 m (120 ft.). The site is vacant and partially excavated except for the three-storey B.C. Electric Showroom Building at 600 Granville Street, built in 1928 and listed as a "B" building on the Vancouver Heritage Register, and the remaining three-storey facade of 648 Granville Street, built in 1892 but not on the Register.

Site B is 1 394 m² (15,000 sq. ft.), comprised of one parcel fronting Dunsmuir Street at Seymour Street, with a frontage of 36.6 m (120 ft.) and a depth of 38.1 m (125 ft.). The site is developed with the six-storey St. Regis Hotel at 602 Dunsmuir Street, built in 1913, and the one-storey Gotham Restaurant, built in 1933. Neither building is on the Register.

Lands to the northwest and southwest are within Area A of the Downtown District Official Development Plan (DD), where commercial uses are permitted to an FSR of 9.0 and a height of 137.2 m (450 ft.). Significant buildings include the Bay department store to the southwest, and Pacific Centre and the 25-storey Canaccord Tower (former Stock Exchange Tower) to the northwest. This part of Granville street is developed as a pedestrian and transit mall with wide sidewalks and planters.

Lands to the northeast are within Area B of the DD, where commercial uses are permitted to an FSR of 7.0 FSR and a height of 91.4 m (300 ft.). Facing Site A across Dunsmuir Street is a five-storey bank/office building. Facing Site B across Dunsmuir Street is the new eight-storey BCIT building with retail space at grade.

Lands to the southeast are within Area C of the DD, where commercial and residential uses are permitted to an FSR of 5.0 and a height of 91.4 m (300 ft.). Facing Site B across Seymour Street is an eight-storey retail and office development. Kiddy corner to Site B is the two-storey Railway Club building, with retail at grade, listed as a "C" building on the Vancouver Heritage Register.

Recent Site History: In the early 1980s, the two sites were acquired by Bramalea Development Corporation with the intention of redevelopment which did not materialize, and later sold to separate owners. Macdonald Development Corporation acquired Site B (the St. Regis site) in 1995, and Site A (the Granville site) in May, 2001. The owner demolished five dilapidated buildings fronting Granville Street while retaining the front facade of a sixth building plus the heritage "B" B.C. Electric Showroom Building. The owner also carried out renovations to the St. Regis Hotel and the Gotham Restaurant building. On September 12, 2001, Architectura submitted development application DE406058 to "underdevelop" theGranville site under the DD zoning with a 9 290 m² (100,000 sq. ft.) four-storey retail and office complex on Site A*. This application was processed then put "on hold" at the request of the applicant, pending the outcome of this rezoning application.

*Under current DD zoning Site A could accommodate 25 083 m² (270,000 sq. ft.) of retail/office development including an office tower or towers up to 137.2 m (450 ft.), further restricted by Council policy to 100m (328 ft.) within the Granville Bridge to Mount Seymour View Cone.

 

SkyTrain Access: When the Granville Street SkyTrain Station was being designed in 1984, it was assumed that when the Bramalea development went ahead, it would include a universal access ("handicapped access") to the station. The station has since lacked a universal access. During the development application process for Site A as noted above, Translink asked Macdonald Development Corporation to reconsider their plans to increase the scope of the proposed development to enable inclusion of much deeper underground parking (two levels was then proposed) thereby making it possible to create a desired connection to the station. Macdonald Development Corporation agreed, and entered into a public-private partnership with Translink "to provide the handicapped and enhanced access requirements to the Granville Station through a revised and expanded design".

Proposed Development: The proposal transfers all the unbuilt density from Site B to Site A, plus 6 145 m² (66,142 sq. ft.) heritage bonus density, for a commercial/residential development of 13.5 FSR. The development includes a high-rise residential tower. Site B would maintain a density of 3.3 FSR, reflecting the as-built density. Total density, taken across the two sites, would be 10.2 FSR. All floor area used for access to the Granville Street SkyTrain Station including corridors, escalators, elevators shafts and staircases would be exempt from FSR.

The development components on Site A, all subject to revisions at the development permit stage, are as follows:

Four-level commercial podium:

· lower concourse (below grade): retail + corridor, lower escalator, stairs and elevator to the SkyTrain Station;

· ground level: retail + corridor, upper escalator, stairs and elevator to the SkyTrain Station;

· 2nd floor: office; and

· 3rd floor: office/fitness centre + amenity space for residential above;

Four levels of dwelling units with lofts (approximately 50 dwelling units) + residential amenity space:

· 4th floor: lower levels of dwelling units + residential amenity space + roof terrace;

· 5th floor: loft levels of the 4th floor dwelling units;

· 6th floor: lower levels of dwelling units + residential amenity space; and

· 7th floor: loft levels of the 6th floor dwelling units + residential amenity space;

Thirty-three levels of dwelling units (approximately 440 dwelling units):

· 4th floor to 29th floor: approximately 16 dwelling units per floor;

· 30th floor: approximately 8 dwelling units + roof terrace;

· 31st floor: approximately 8 dwelling units;
· 32nd floor: lower levels of approximately 8 two-storey dwelling units; and
· 33rd floor: upper levels of the 32nd floor units;

Seven levels of underground parking (approximately 484 parking stalls):

· level 1: parking stalls + courier stalls + bicycle spaces + escalators, stairs and elevator to the SkyTrain Station;

· levels 2-5: parking stalls + escalators, stairs and elevator to the SkyTrain Station; and

· levels 6-7: parking stalls

Public Input: A notification letter was sent to nearby property owners on March 21, 2002 and rezoning information signs were posted on the site on April 4, 2002 . Two phone calls were received from citizens seeking information about the proposal. One letter was received from the Bay's General Manager of Real Estate Services concerned about the demand on the use of the shared lane by the proposed development. A recommended condition of rezoning is that the proposed changes to accommodate loading access to the Bay and to the proposed development site are acceptable to them (or other arrangements are made for access to the satisfaction of the General Manager of Engineering Services and the Director of Current Planning).

Business Community: The applicant submitted letters of support for the rezoning application from the Downtown Vancouver Association (DVA), the Downtown Vancouver Business Improvement Association (DVBIA), the Building Owners and Managers Association (BOMA), the Vancouver Board of Trade, three companies that own buildings in the immediate area and a major tenant of a neighbouring building. All support the proposed rezoning. Some positive elements covered in the letters include:

· support for the universal access to the Granville Street SkyTrain Station;
· support for inclusion of the heritage building at 600 Granville and the heritage storefront at 648 Granville;
· assertion that new residents will assist in the revitalization of Granville Street; and
· assertion that the development will enliven the retail presence at the street and within the complex.

Some cautionary comments include:

· not supportive of intrusion of residential uses into the CBD, but merits of the proposal outweigh downsides;

· support for market rental residential units*;

· the building should have a commercial facade with no open or enclosed balconies**; and

· there needs to be adequate control over the standards of maintenance and security of the SkyTrain access facility.

*Note: no requirement for rental is proposed or recommended, as the public benefit to the application is heritage retention. The developer has yet to decide between rental or strata units.

**Note: locations of open and enclosed balconies will be resolved at the development permit stage. Generally, balconies should be enclosed in the lower part of the development to increase liveability in a noisy environment. Variations may occur when considering the architectural design of the building.

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 conditions as shown in Appendix B.

Standards for multiple residential parking which represent emerging Downtown Core policy directions have been investigated for this application. The principle proposed is to limit the amount of parking permitted, where currently in this portion of the Downtown District that is not done, and set that limit at the observed average ownership for similar residential sites. Furthermore, there would be no inflation of the standard to allow for visitor parking, since in the Downtown Core there are ample opportunities to find public parking. The minimum standard, then, is proposed to be offset 0.2 space per dwelling unit below the maximum. It is estimated that the new standards proposed represent a 16% reduction in the minimum amount of parking otherwise calculated.

For very small-sized units (below 44 gross floor area), none of which are yet evident in the proposal, the standards proposed relate to information from the 600 Drake/1303 Seymour micro-suites project, with ownership averaging 0.4 vehicle per dwelling unit, straddling by 0.1 space per dwelling unit either side of this amount. Thus, the proposed maximum, at 0.5 space per dwelling unit, would equal the minimum currently in effect in Downtown South for small units."

Advisory Committee on Disability Issues Comments: The Committee fully supports the revised plans as submitted, including provision of a second fully integrated wheelchair access(off Granville, by the Bay) to the SkyTrain entrance.

Comments of the Fire Protection Engineer: "Vancouver Fire Department will provide a full review at the DE stage.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on May 1, 2002, and supported the proposed use, density and form of development and offered the following comments:

"Evaluation: Support (9-0)

Introduction: Jonathan Barrett, Development Planner, presented this rezoning application for a large site at Granville and Dunsmuir Streets. The site contains four heritage components including the Gotham Restaurant, the St. Regis Hotel, the BC Electric building and the building facade next to The Bay, all of which will be upgraded and maintained. The first four storeys are proposed for commercial use, as well as one level of commercial below grade which will link to the Granville Street SkyTrain station, a key public objective being the provision of handicap access to SkyTrain. 29 storeys of residential use is proposed above the commercial, including live/work on the first four floors. The rezoning application is principally to seek residential use which is not permitted in this part of the Downtown although may be considered where there is a heritage component.

· built form relationships, noting there is a very complex building form designed to respond to very specific context, notably The Bay, the Stock Exchange tower and the BC Electric Building;
· building character;
· residential livability, eg., the amenities, adequacy of the open space and whether it is sufficiently removed from the street activities, acoustic treatment of the lower component, security of access;
· SkyTrain access which is proposed from three points - the corner of Dunsmuir and the lane, through the heritage building beside The Bay, and through The Bay itself.

In general, the Panel was very complimentary about the proposal and looked forward to seeing it proceed."

Vancouver Heritage Commission: At its February 11, 2002 meeting it was resolved:

"THAT the Vancouver Heritage Commission recommends that the following sites be added to the Heritage Register:

At its April 29, 2002 meeting it was resolved:

Environmental Implications: Nearby access to transit and commercial services may reduce dependence on use of automobiles.

Social Implications: 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.

Comments of the Applicant: The applicant has been provided with a copy of this report and concurs with its contents and the staff recommendations.

APPENDIX E

URBAN DESIGN REVIEW

The challenge has been to come forward with a high density (13.5 FSR), mixed use (retail, office and residential) development that achieves a neighbourly relationship with surrounding development, provides a livable environment for the residents, and enhances the retail viability of Granville Mall. There are four interrelated aspects that need to be assessed: built form, building character, livability and SkyTrain access.

Built Form: There are two main components to the proposed built form. First, a three-storey built form that covers the site area. This responds to the scale of the heritage BC Electric Showroom Building and the heritage façade at 648 Granville. It also maintains the property line built form of Granville Street. Second, the 4-33-storey residential component that rises above the 4-storey base. This built form has been articulated to; locate a principal massing near to the corner of Granville and Dunsmuir Streets which appropriately emphases that important street corner yet is setback and floats over the BC Electric Showroom Building; locate a mid-rise built form over the base that responds to the scale of the Bay to the east.

The general built form has achieved a successful neighbourly fit and is compatible with the heritage buildings.

Building Character: The proposed building character needs to respond to three major influences. First, the strong heritage proportions, scale, modulation and character presented by the BC Electric building, the heritage façade at 648 Granville, the St. Regis Hotel, the Gotham Restaurant, and the Bay. Second, the retail and commercial character of Granville Street. Third, the large residential use should be recognizable as such to allow the variety of users in the neighbourhood to respond more appropriately to a use typically not found in this area of the downtown.

This has been successfully achieved by a complex building language that responds to the contextual influences. However, refinements of aspects of building character will occur at the development permit stage.

Livability: The proposal is located in the heart of the commercial downtown. There are four aspects to the proposal that recognize this atypical location for the residential uses proposed.

First, a sizable landscaped semi-private open space is provided on the roof at level four. Adjacent to this is an extensive amenity area on three levels for the residents. Second, dwelling units are planned so that they have good long and short views and are adequately separated from the adjacent buildings and commercial uses. The conclusion is that all dwelling units have acceptable separation and privacy and optimum livability. Third, there is a concern that the noise generated by traffic, and particularly late night pedestrians, onGranville Street will acoustically impact livability. The proposal includes enclosed balconies for the lower levels of residential which will address this impact. Fourth, security for residents entering and exiting the building is vital to the proposal. The main part of the design that addresses this concern is the grade level entrance lobby for the residents has through views from the street to the lane ensuring good visibility into the entrance and out. A possible full time residential concierge would also enhance security.

Overall the project constructs a livable environment for the residents although it is a tougher residential context than normal.

SkyTrain Connections: The proposal includes three pedestrian connections to SkyTrain: via the heritage facade at 648 Granville Street; via the ground floor level of the Bay (if agreed by the Bay); and from the corner of Dunsmuir and the lane. The first two connect to a retail lined concourse via escalators. All three include stair, escalator and elevator access which provides universal access for persons with disabilities and others who have difficulty with stairs or escalators.

Pedestrian access to the SkyTrain functions appropriately.

Conclusion: Staff consider the challenge of introducing a major residential use, in addition to the commercial uses, in this part of the downtown area has been met by the applicant. Also, the challenge of introducing a density of 13.5 FSR has generated a built form that is compatible with the on-site heritage resources and neighbouring buildings. Staff recommend approval in principle of the proposed form of development.

APPENDIX F

Appendix F is 10 pages of reduced drawings

APPENDIX G

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

600 Granville Street (Site A) and 602 Dunsmuir Street (Site B)

Legal Description

Site A: Lots 1 to 9 inclusive, Block 43, DL 541, Plan 210 and Lot 10 (Reference Plan
2608), Block 43, DL 541, Plan 5428; Site B: Parcel A, Block 43, DL 541, Plan LMP38754A

 

Applicant

Malcolm Elliot, Architectura

Architect

Malcolm Elliot, Architectura

Property Owner

Site A: Macdonald Dunsmuir Street Development Ltd.; Site B: St. Regis Investments Ltd.

Developer

Dunsmuir Street Development Limited Partnership

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

4 181 m² (45,000 sq. ft.)

5 m² (50 sq. ft.)

4176 m² (44,950 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

DD

CD-1

-

USES

DD Commercial

Site A: DD Commercial + Residential + transit access

Site B: DD Commercial + transit access

-

DWELLING UNITS

not permitted

Site A: permitted: no min. or max.
Site B: not permitted

-

MAX. FLOOR SPACE RATIO

9.0 FSR

Site A: 13.5 FSR, Site B: 3.3 FSR
Sites A & B averaged: 10.2 FSR

-

MAXIMUM HEIGHT

137.6 m (450 ft.)
View cone:100 m (328 ft.)

Site A: 100 m (328 ft.)
Site B: 23 m (75 ft.)

-

MAX. NO. OF STOREYS

N/A

Approximately 36

-

PARKING SPACES

per Parking By-law

Site A: per Parking By-law except residential parking to be by formula
Site B: as existing

-

FRONT YARD SETBACK

N/A

N/A

-

SIDE YARD SETBACK

N/A

N/A

-

REAR YARD SETBACK

N/A

N/A

-

* * * * *

ag020611.htm

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