Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Vancouver City Council

FROM:

Director of Current Planning, in consultation with the General Manager of Engineering Services and the Director of the Housing Centre

SUBJECT:

Comprehensive Development (CD) Rezoning and False Creek North Official Development Plan Amendments: 651 Expo Boulevard and 690-696 Beatty Street

RECOMMENDATION

A. THAT the application by Pacific Place Developments Corp. to rezone the sites at 651 Expo Boulevard (portion of Lot 156, except portions in Plans 21735, LMP12037, LMP12038 and LMP13010, False Creek, Plan 21458) and 690 Beatty Street (Lot 7, Plan 4656, Block 49, D.L. 541) from BCPED to CD, be referred to a Public Hearing together with:

E. THAT, subject to approval of the rezoning at a Public Hearing, the Noise Control By-law be amended to include this CD District in Schedule A;

GENERAL MANAGER'S COMMENTS

The General Manager RECOMMENDS approval of A to F.

COUNCIL POLICY

Relevant City Policies, Plans and Guidelines include:

· False Creek North Policy Statement, approved in August 1988
· False Creek North Official Development Plan, adopted April 10, 1990 and last amended July, 2001
· Central Area Plan, approved in December, 1991
· North East False Creek Urban Design Plan, approved in July, 2001
· City of Vancouver Transportation Plan, approved in May, 1997
· View Protection Guidelines, amended up to December 11, 1990
· Public Art Program, approved in October 1990
· Childcare Operating Strategy, approved in February 1993
· Revised 20% Social Housing Policy, approved in April 1993.

PURPOSE AND SUMMARY

This reports assesses an application by Pacific Place Developments Corp. to rezone from BCPED to Comprehensive Development (CD) District its sites at 651 Expo Boulevard and 690 Beatty Street, and a companion application requesting related amendments to the False Creek North Official Development Plan. (Note: The sites are designated as Area 7B in the Plan.) The application proposes the following development:

· four market residential towers containing 900 dwellings (including 30-40 townhouse dwellings),

· a site at the corner of Georgia and Beatty Streets for the future development of a 20-storey tower, with 7-storey base, for 216 non-market housing units,

· a 13 619 m² (146,600 sq. ft.) Costco Wholesale store (warehouse club) at the Expo Boulevard grade.

In addition, both City staff and the applicant desire that the City-owned Lot D at the corner of Beatty Street and Georgia Viaduct (696 Beatty Street) be incorporated within Area 7B and become part of the non-market housing site. The Manager of Real Estate Services will report separately to City Council regarding the sale of Lot D to Pacific Place Developments Corp.

Staff assessment supports the applications. The Director of Current Planning recommends that they be referred to Public Hearing and approved subject to conditions. He also recommends that he make application to rezone the City-owned site at 696 Beatty Street from BCPED to CD and make application to amend the False Creek North Official Development Plan to include the site within Area 7B and a residential floor area of 16 747 m² within the Plan's provisions, and that these applications be referred to the same Public Hearing and approved.

BACKGROUND

Site and Surrounding Context: The site, which is designated as Area 7B in the False Creek North (FCN) Official Development Plan (ODP), is located at the eastern edge of the Downtown at the foot of the escarpment to the False Creek lowlands. Generally bounded by Beatty Street, the Georgia and Dunsmuir Viaducts, and Expo Boulevard, the site is 23 810.3 m² (256,300 sq. ft.) or 2.38 ha (5.9 acres) in size. It has been used for many years for surface parking (580 spaces, including approximately 30 spaces for the Beatty Street Drill Hall).

Figure 1. Site and Surrounding Zoning


Surrounding the site are the City-owned Block 48 (previously referred to as "Larwill Park") across Beatty Street, the Stadium Skytrain Station across the Dunsmuir Viaduct with the Keefer Steps and International Village beyond that, GM Place arena across from Expo Boulevard, BC Place stadium across the Georgia Viaduct, and Central Heat at the south corner of Georgia and Beatty Streets.

The area between the viaducts also contains the Beatty Street Drill Hall (BC Regiment) at 620 Beatty Street (corner of Beatty and Dunsmuir Streets) and the City-owned Lot D at 696 Beatty Street (corner of Beatty and Georgia Streets). The Drill Hall, occupied since 1896 by the BC Regiment, is a municipally-designated heritage building (Evaluation Group `A').

Lot D was part of the right-of-way for the original Georgia Viaduct's western approach (completed in 1915). Overlooking the escarpment, it was developed in 1970 as a plaza to commemorate the original viaduct structure. Some of the materials from the original viaduct were saved and reused, including concrete railings surmounted by lamps on concrete posts. The lot contains the last 30 m (100 ft.) of the decommissioned CPR Dunsmuir tunnel and its portal (both owned by Pacific Place Developments Corp.).

Existing Zoning: The site is zoned BCPED, which permits a wide range of land uses, including residential and commercial, but it has no maximum floor space ratio (FSR) governing its development. The FCN ODP provides an overall guide to the pattern of land uses and development, setting out maximum floors areas and numbers of dwelling units which are to be more specifically delineated within zoning by-laws for each sub-area.

· The ODP allocates a total floor area of 111 729 m² (1,202,681 sq. ft.) to Area 7B, including commercial (primarily office) potential of 87 670 m² (943,681 sq. ft.) and residential potential of 24 061 m² (259,000 sq. ft.).

· The ODP has a requirement and specific configuration for an elevated pedestrian pathway from Stadium Skytrain Station through Area 7B to BC Place in Area 10.

In addition, there are two agreements between the City and property owner which are relevant in this proposed rezoning:

· The owner has an obligation to provide a site in Area 7B for 100 non-market housing units (50 family and 50 non-family), transferred in 2001 from Site 5GH in Area 5A.

· Under the provisions of the Stadium Parking Agreement between the City and the owner, the owner has an obligation to build 100 public use parking spaces and to pay for 150 payment-in-lieu spaces.

In July 2001, City Council approved the North East False Creek (NEFC) Urban Design Plan to refine the urban development pattern for the northeast sector of FCN (area north and east of Nelson Street) to reflect changed conditions since the ODP was approved more than a decade ago. The plan seeks to improve the public realm and built form guidelines, adjust land use and density, and better integrate the area into the Downtown.

The NEFC Plan envisioned the Cambie Bridgehead area as a mixed-use commercial-residential precinct extending the Yaletown character, rather than a predominantly residential precinct. It proposed that this be achieved through the exchange of existing residential potential in Areas 5A and 5B with commercial potential in Area 7B, and the creation of new potential of 49 330 m² (531,000 sq. ft.) in Area 10 (BC Place). To implement the Plan, Council referred several ODP amendments to Public Hearing, including the designation of Area 7B as a mixed residential-commercial area. The Public Hearing was subsequently put on hold at the request of BC Pavilion Corp. (Pavco), one of four property owners who participated in the preparation of the NEFC Plan.

PROPOSED REZONING

The rezoning application was initially submitted on November 21, 2001, was considered in an Urban Design Panel workshop on December 21, 2001, and was featured in an Open House at the Vancouver Public Library on February 9, 2002. On March 26, 2002, City Council approved the recommendations of a staff report seeking advice on several policy issues raised by the application. (See resolutions listed in Appendix D. Report dated March 5, 2002 is on file in City Clerk's Office.) The revised application was submitted on April 23,2002.

ODP Amendment: The proposed rezoning would shift the land use emphasis in Area 7B from predominantly commercial to primarily residential. Commercial potential of 13 619 m² (146,600 sq. ft.) would be retained for a wholesale/retail (warehouse club) use. Total floor area in Area 7B would be reduced by13.3 percent, to 96 950 m² (1,043,600 sq. ft.), as shown in Table 1. This would reduce the gross density from FSR 4.7 to 4.1.

Table 1. Area 7B Development Potential (sq. ft.)

 

Existing

Proposed Change

Proposed

Residential Use

259,000 sq. ft.

+ 565,377 sq. ft.

897,000 sq. ft.

Lot D

  

+ 72,623 sq. ft.

Commercial Uses

943,681 (78.5 %)

- 797,081 sq. ft.

146,600 (14 %)

Total

1,202,681 sq. ft.

- 159,081 sq. ft.

1,043,600 sq. ft.

A density exchange with Areas 6A and 6C is proposed for achieving the proposed new land use mix in Area 7B:

· potential for commercial floor area of 74 049 m² (797,100 sq. ft.) in Area 7B would be transferred to Area 6C (east of Plaza of Nations and at the foot of Abbott Street), and
· potential for residential floor area of 66 899 m² (720,010 sq. ft.) in Area 6C would be transferred as follows: 52 524 m² (565,377 sq. ft.) to Area 7B and 14 365 m² (154,633 sq. ft.) to Area 6A (between Cambie Bridge and Plaza of Nations).

The residential potential of the City-owned Lot D, recommended by staff to be 6 747 m² (72,623 sq. ft.), would be incorporated within Area 7B. (See discussion on page 10.)

An obligation to provide a site in Area 6C for 131 non-market dwellings would also be transferred, most of it to Area 7B, and consolidated with an existing obligation to provide a site for non-market housing in Area 7B.

(See table on page 2 in Appendix D, showing ODP provisions for Areas 6A, 6C and 7B.)

CD Rezoning: The proposed rezoning from BCPED to CD would permit the following development on this large site:

· market residential development: four towers containing 900 dwellings, including 30-40 townhouse dwellings, with access/egress on Beatty Street and the Georgia and Dunsmuir Viaducts. The towers would range from 27 to 30 storeys. Maximum tower height would be 91 m (298 ft.);

· non-market housing: a site at the corner of Georgia and Beatty Streets is proposed for the future development of a 20-storey tower, with 7-storey base, to provide 216 non-market housing units (111 family and 105 non-family);

· commercial development: a 13 619 m² (146,600 sq. ft.) Costco Wholesale store at the Expo Boulevard grade, about 14 percent of total floor area proposed on the site; and

· parking: two levels of Costco parking below the store (702 spaces) with 24 spaces proposed below the Dunsmuir Viaduct, and two levels of residential parking (approximately 816 spaces) above the store, providing a total of 1,542 spaces.

(See list of application submission materials in Appendix H and statistics of proposed development in Appendix I.)

DISCUSSION

The following discussion first addresses the policy implications raised by the proposed rezoning, and then reviews the proposed residential and commercial development on the site.

POLICY IMPLICATIONS

Several policy questions are raised by the applications: change in land use, density, density transfers, incorporating City-owned Lot D within Area 7B, and consolidation of non-market housing obligations.

1. Change in Land Use and Development Potential

The proposed change in land use of Area 7B from mixed-use (predominantly office) to mixed-use (predominantly residential) is supported by staff, and public input.

1.1 Residential Precinct: The proposed change in land use to primarily residential has been discussed for more than two years and was endorsed in principle in the North East False Creek Urban Design Plan approved by City Council in July, 2001.

The site being next to a Skytrain Station and also within walking distance of the CBD, a question was raised as to why it should not be developed as a mixed-use, predominantly office precinct, as intended in the FCN ODP. It would also be consistent with the Central Area Plan amendments and amendments to DD zoning in 1996 which consolidated the CBD and, by allowing choice of use in Triangle West, shifted the CBD to the east, with Beatty Street as its eastern boundary. Being immediately next to one of the four Skytrain Stations serving the CBD, the site thus appears to be an ideal location for office development.

However, rezoning to residential use meets the test of Council's residential rezoning policy for the Downtown whereby there should be sufficient zoned capacity for office development until 2021. Office and hotel capacity in the downtown was recently estimated to be51.8 million sq. ft.. The office and hotel supply at the end of 2001 was estimated at 33 million sq. ft. (22.8 and 10.2 million sq. ft. respectively). Office and hotel demand is projected to increase to 41.2 million sq. ft. by 2021, an increase of 8.2 million sq. ft. or 25 percent since 2001 (5.6 and 2.6 million sq. ft. respectively). The unused office and hotel capacity which will remain in 2021 is thus estimated at 10.6 million sq. ft., or 20 percent. Although not all of this capacity will actually be available, because not all sites will be developable, staff nevertheless conclude that there is sufficient zoned capacity for new office and hotel space.

1.2 Wholesale Use (Warehouse Club): The Costco Wholesale store is proposed to occupy the lower level of the site fronting onto Expo Boulevard. This is a suitable land use and development for an awkward and difficult part of the site, and the location will considerably reduce the visual impact of a large-scale facility. The location also avoids the use of a large industrial site which "large-format" or "big box" retailers would typically seek.

Most Costco customers would be businesses (supplies) and small retailers (goods for resale). The store is not expected to compete directly with established retail stores and wholesalers in the city. The proposed location is anticipated to have some benefits in terms of goods movement. A net trip reduction among existing Costco customers who now travel to Costco outlets on Grandview Highway and in Richmond is expected. In turn this would have environmental benefits. The store will not increase commuter traffic, and will not add to peak period traffic problems. (See Additional Discussion in Appendix E.)

During assessment of the application, consultation was undertaken by the applicant (with City staff in attendance) with the Chinatown Revitalization Committee, Chinatown Merchants Association, the Board of Trade, and other stakeholder groups. Widely-advertised Open Houses were held in February and May. In all these proceedings, the majority of participants supported the proposed Costco store. (See page 1 of Appendix G.)

2. Reduced Density

The density of floor area on the site anticipated by the FCN ODP is FSR 4.69 (gross), or 6.0 (net) after dedication to the City of site area below the viaducts. The reduction in floor area proposed in the revised application results in an FSR of 4.07 and 5.22 respectively (3.83 and 4.83 respectively, when Lot D is included). Staff support the proposed density.

The FSR of the proposed residential development at the viaduct level is 4.15. This reflects the density that is likely for blocks in Downtown South. Although the permitted density in Downtown South is 5.0, it is rarely achieved because it is difficult to assemble entire blocks. (Smaller sites in Downtown South are limited to an FSR of 3.0.)

The reduced residential floor area, and dwelling unit count, proposed in the revised application will lower the population density and increase the amount of open space per resident, which reflects that found in Downtown South and will improve residential livability on this difficult site.

The FSR for the proposed Costco store is 0.73. Somewhat lower than is typical for light industrial wholesale/warehouse development, it is a much higher density, and a better utilization of land, than is typical for "large-format" or "big-box" retail in suburban locations.

3. Density Transfers

To achieve the proposed change in land use in Area 7B, a FCN ODP amendment would exchange commercial development potential on Area 7B for residential potential on Area 6C. The remaining residential potential on Area 6C would be transferred to Area 6A.

As with previous exchanges of density among the False Creek North sub-areas, staff support the proposed density transfer. It maintains the overall mix of land uses in FCN, and options are maintained for relocating this potential at a future date, including the Cambie Bridgehead precinct (Area 5) which the NEFC Urban Design Plan proposes should become a choice of use area with a greater amount of commercial floor area, and perhaps residential, than is now possible. It will be up to future rezoning applicants to prove that the land uses and density are appropriate on these alternative sites and what allocation of dwelling units is appropriate.

4. City-Owned Site (Lot D):

City staff and the applicant desire that the City-owned Lot D at the corner of Beatty Street and Georgia Viaduct (696 Beatty Street) be incorporated within Area 7B and redeveloped with it. Unless this is done, the site would have limited value. Lot D is proposed to form part of a non-market housing site on a part of Area 7B which it is most feasible to remain undeveloped, awaiting senior government funding, while the rest of the development proceeds. The quality of urban design might also be improved if this site, at a prominent street corner of Area 7B, is redeveloped rather than retained as a commemorative plaza which will no longer have any views and panoramic vista to the east.

The irregularly-shaped, 1 530 m² (16,468 sq. ft.) site is zoned BCPED, and is not within the FCN ODP boundary and not part of Area 7B. BCPED zoning, which permits a range of land uses including residential and commercial, does not have provision for maximum FSR or floor area. Staff recommend an FSR 4.41 for Lot D, based on the established practice of closed streets or rights-of-way taking on the zoning of surrounding properties. This results in a development potential of 6 747 m² (72,623 sq. ft.). In the context of rezoning, it is further proposed that this development potential be for residential use.

It is not proposed that this residential potential which would be added to the FCN ODP be converted into a specific number of dwelling units at this time (including market and non-market, and family and non-family). This would maintain the choice of slightly increasing the average dwelling size for the units still to be developed in FCN or, at some point, converting residential floor area to units and at that time addressing the amenity and servicing requirements for additional dwellings. A context for this will occur in 2003 when staff will report to Council on revisiting the unit mix in FCN, now that a proven mix of units has been demonstrated in developments to date in False Creek North.

To incorporate Lot D within Area 7B, it will be necessary for the Director of Current Planning to make applications to rezone Lot D from BCPED to CD and to amend the FCN ODP to include Lot D and its residential potential within Area 7B, and for these applications to be referred to the same Public Hearing. The sale of Lot D to Pacific Place Developments Corp. will be reported separately to City Council by the Manager of Real Estate Services.

5. Non-Market Housing

The applicant proposes to consolidate on Area 7B the existing obligation to provide a site for 100 non-market housing units (50 family and 50 non-family) transferred in 2001 from Site 5GH (in Area 5A) and the obligation in Area 6C for 131 units (76 family and 55 non-family), except for 15 family units which would be transferred to the non-market housing site identified for Area 6A.

The applicant proposes that Lot D and part of Lot 7 provide a site for the future development of a 20-storey tower, with 7-storey base, to provide 216 non-market housing units (111 family in the base and 105 non-family in the high-rise). Staff support the proposed unit count and mix, but recommend that flexibility be retained to alter the mix when senior government funding becomes available to proceed with this development. Any non-market units from Area 6C not actually developed in Area 7B would be consolidated with the Area 6A non-market housing site.

Given the present uncertainty in senior government funding on which the City's non-market housing policy relies, how the non-market housing in Area 7B can best be realized will be part of a comprehensive review of the undeveloped non-market sites in Concord Pacific Place to be undertaken at a later date.

PROPOSED DEVELOPMENT

1. Residential Precinct

The challenge is to develop a high density residential development that achieves a neighbourly relationship with surrounding development and provides a livable environment for the residents. Five primary urban design aspects have been assessed: city structure and form, residential livability, built form, pedestrian movement, and vehicular movement. Staff support all of these, subject to design development conditions (Appendix B).

1.1 City Structure and Form: The overall intent of the urban design is to integrate the proposal with the City structure and form. The proposed rezoning would achieve this by:

· moderating the large site size with an internal street, parallel to Beatty Street, that reflects the pattern of the existing City road structure,
· orienting the towers and lower built form to existing surrounding development patterns and streets, and
· providing public pedestrian and vehicular access systems around and through the site.

The application was supported by the Urban Design Panel (6-3). (See Panel comments in Appendix G, page 9).

1.2 Residential Livability: A good quality of livability has been a major objective for this proposal. The proposed rezoning would achieve this by:

· developing the periphery of the site with built form that provides an acoustic noise barrier to the internal semi-private open spaces,
· providing significant areas of semi-public and private open space for each major residential component,
· locating primary residential entrances on the internal street system,
· developing a strong residential presence and character on both the major and minor streets, and
· providing an amenity facility for the market residential and community room(s) for the non-market housing.

The site has very close proximity to public transit, and good linkages to the downtown core. It is adjacent to International Village, a mixed-use residential-commercial area which will ultimately contain a community school and day care. It is also near to and has good pedestrian access to Andy Livingstone Park. Staff believe that a high quality of development and residential livability can be achieved, similar to other developments in the Central Areawhich are located near major arterials (CityGate, Portico, Bayshore, West Georgia, and South East Granville Slopes).

1.3 Non-Market Residential: The terraced component on the north side of the non-market tower is a concern in terms of construction costs. Staff recommend a 6- or 7-storey slab whose roof can then be used to provide some of the required open space.

Two proposed vehicular access points to below-grade parking, from Beatty Street and from the internal street, impact the ground plane of the proposed non-market housing to the point where semi-private open space is probably insufficient to provide play areas for family non-market housing. Staff recommend that parking access be limited to Beatty Street.

1. 4 Pedestrian Movement: The site is located at the centre of several pedestrian movement lines. These include connections between the Skytrain Station, GM Place and BC Place and also between International Village, Downtown and False Creek. The proposed land use change in Area 7B raises questions about the best alignment and form for a pedestrian route through Area 7B required by the FCN ODP between the Stadium Skytrain Station and BC Place. Staff also believe that pedestrian movement should be facilitated between the upper Beatty Street or Viaduct level and the lower Expo and Pacific Boulevards level, and that a number and variety of pedestrian opportunities be provided throughout the site.

Several pedestrian connections would be facilitated by the proposal: (See diagram of pedestrian movement system on page 1 of Appendix F.)

· new wide sidewalks eastward along the north side of Georgia and the south side of Dunsmuir leading up to GM Place,
· a well-treed new internal street parallel to Beatty Street, with sidewalks,
· pedestrian crossings at the signalized intersections with the new internal street,
· an elevator and stair that connect Dunsmuir Street with Expo Boulevard, and
· a wide, tree-lined sidewalk and gathering place along Expo Boulevard in front of the proposed Costco store.

However, the requirement for a connection at the viaduct level through the site to BC Place is not adequately addressed. Pedestrian access between BC Place and the Stadium Skytrain Station is presently limited to a mid-block passage on the 700-block Beatty Street (leased by Pavco from Central Heat). The new internal street could provide some relief for stadium-related pedestrian congestion on the 600-block Beatty Street, but only if this pedestrian link is extended to the BC Place concourse on the south side of the Georgia Viaduct, as specified in the ODP.

The NEFC Urban Design Plan proposes a barrier-free pedestrian connection on the south side of the Georgia Viaduct from Beatty Street down to the BC Place concourse and then down again to Pacific Boulevard. This will require the co-operation of Pavco and Central Heat over whose lands this pedestrian connection would be located. Their co-operation, and financial contribution, was anticipated in the context of rezoning applications on their lands.

Staff believe that the ODP requirement could be met through a significant start on the pedestrian connection from Beatty Street to Pacific Boulevard by the applicant providing these three elements as a condition of rezoning approval:

· a pedestrian crossing of the Georgia Viaduct, at the intersection with the new street through the site,
· a widening of the sidewalk on the south side of the Georgia Viaduct from Beatty Street to this intersection, in a surplus traffic lane, and
· stairs from the Georgia Viaduct to the BC Place concourse, a 2.4-4.9 m (8-16 foot) transition, over City right-of-way.

The applicant sees this pedestrian infrastructure as ultimately benefiting BC Place and reducing Pavco's future costs, and suggests that these off-site improvements might be paid by Stadium Parking Agreement payment-in-lieu funds (deposited in the City's GreenLinks Fund). Staff believe that the ODP is quite clear about placing an obligation on the applicant for all streets, walkways, and bicycle routes in FCN, including the walkway between the Skytrain Station and BC Place which is identified in Figure 9b of the ODP. Therefore, staff recommend that the applicant provide stairs connecting the Georgia Viaduct to the BC Place concourse as a condition of rezoning. These stairs would be replaced, or upgraded at a later date to provide barrier-free access and related improvements.

1.5 Traffic and Parking: Vehicular access to the residential precinct is provided from Georgia and Dunsmuir Streets. Access to podium parking and two levels of parking immediately below grade is provided from the internal street. (See diagram of circulation system on page 3 of Appendix F.)

With the significant residential component, traffic generation will be lower overall than if the site remained wholly commercial. The Cambie/Georgia intersection is expected to benefit from converting Beatty Street to two-way operation, as traffic would have more routes for dispersing. However, site traffic will be manageable, and impacts moderate, whether or not Beatty and Cambie Streets are converted to two-way operation, as is proposed in the Downtown Transportation Plan.

Through a significant reduction in the amount of residential floor area proposed in the revised application, and by increasing the proportion of smaller suites, the recommended Downtown South parking requirement would be met (700 spaces for 900 market units).

About 116 spaces are proposed for the non-market housing development. Staff are prepared to consider a lower parking ratio in this location adjacent to a rapid transit station, such that the 216 non-market dwellings only require 108 parking spaces per the Parking By-law standard (which stipulates 1 space for every 2 units, whether family or non-family).

2. "Costco Wholesale" Store

The challenge is to develop a "large-scale" or "big box" wholesale/retail building for Costco Wholesale that achieves a neighbourly relationship with surrounding development, with acceptable transportation impacts. There are five aspects that need to be assessed: City structure and form, built form, pedestrian access, vehicular traffic and parking. Staff support all of these, subject to design development conditions (Appendix B).

2.1 City Structure and Form: The overall intent of the urban design is to integrate the proposal with the City structure and form. The proposed rezoning would achieve this by:

· submerging the "big box" Costco store below viaduct level to considerably reduce the visual impact of a large-scale facility;
· developing the front of the store along Expo Boulevard in a way which provides pedestrian activity and visual interest; and
· utilizing the proximity of Skytrain access to encourage employee and customer use of transit.

2.2 Character of Expo Boulevard frontage: A significant objective has been to ensure the Costco store generates a positive experience on what at present is a dull service route. This would be achieved by:

· locating the store at Expo Boulevard grade with its principal entrance on the Expo Boulevard frontage and check-out counters near the front of the store;
· constructing a highly glazed facade and pedestrian weather protection at the front of the store; and
· emphasizing the Costco pedestrian entrance with an entry plaza which includes the stairs and elevator to the viaduct level.

2.3 Pedestrian Movement: Located at the edge of Downtown and within walking distance of most FCN neighbourhoods, International Village, Gastown and Chinatown, several means of pedestrian access to the Costco store are proposed: (See diagram of pedestrian movement system on page 2 of Appendix F.)

· access to Skytrain will be available at the Expo Boulevard level;
· access from/to the Beatty Street and viaduct level, including the residential development above, will be provided by stairs and an elevator at the east corner of the site, next to the store's principal entrance; and
· access to the FCN neighbourhoods south and west of BC Place, International Village, Gastown and Chinatown will be provided by the sidewalks along Expo Boulevard.

It is also recommended that pilot projects be undertaken for the provision of shopping carts, wagons and other pedestrian-serving conveniences, and for the operation of delivery services.

2.4 Vehicular Traffic: Located on a major arterial street and at the edge of Downtown, traffic to and from the store is expected to have limited impact on surrounding streets and lanes. (See diagram of circulation system on page 4 of Appendix F.)

· one access point to below grade Costco parking is proposed on Beatty Street - it is anticipated it will accommodate about a third of the vehicular traffic to the store;
· two access points are proposed on Expo Boulevard (right in / right out), below the viaducts; and
· a pick up / drop off area is to be considered near the principal pedestrian entrance and entry plaza.

Expo Boulevard has ample capacity, but increased delays at Abbott and Expo could be relieved with a realigned Griffiths Way. Special events at BC Place and GM Place are not cause for particular concern, since the heaviest flows relate to the post-event period, typically occurring after Costco would be closed. There will be inconvenience, however, for residents who get caught up in event-related traffic.

2.5 Parking: The application proposes 726 spaces for the Costco store, 702 to be provided below grade and 24 in area below the Dunsmuir Viaduct to be dedicated to the City and then leased for this purpose. Although this number of spaces is less than the 900 spaces Costco typically provides for its warehouses of this size in suburban locations, it is higher than what would normally be approved for a retail or grocery store of this size in the Downtown District. The following factors support the proposed relaxation:

· wholesale purchases are typically large and necessitate a vehicle for transportation;
· wholesale store visits are up to twice as long as at a grocery store, leading to reduced turnover in parking spaces;
· Costco will not operate during the weekday morning peak hour and during the evening, a high proportion of trips will be "pass-by" trips.

Staff agree with these points, but because the store would be a Downtown-serving operation it must encourage pedestrian traffic and strive to further reduce the number of vehicle trips. Therefore, the provision of 726 spaces is supported, but subject to the following requirements:

· preparation of a transportation demand management plan, including the development of a carpool plan/transit policy for employees,
· a pilot project to assist Costco members who choose to walk to the store, including provision of shopping carts, wagons and other pedestrian-serving conveniences, and
· a pilot project for the operation of delivery services.

The store may also spread its demand for parking by extending opening hours beyond the customary 8:00 p.m. closing, and by providing an on-site pick-up facility.

2.6 Stadium Parking Agreement: The applicant has requested that the requirement for 100 Stadium built stalls be transferred to another FCN site. The reason is that there will be a high parking demand from Costco customers during the weekday daytime hours that Stadium parking is to be available and the advertising of Stadium spaces would create a shortfall in the parking required for Costco customers. Staff support this request if the obligation for 50 pay-in-lieu stalls is transferred from another Concord site, increasing the total number of pay-in-lieu stalls required on Area 7B to 200 (although the Stadium Parking Agreement currently requires 100 built stalls and 150 pay-in-lieu stalls for this site, there is flexibility to alter the total number of stalls on each site by 20 percent). Costco would also have to agree to ensure that its 726 spaces are available only on a short-term (hourly) basis and are not subject to any long term leases.

2.7 Signs: The applicant has recently requested that the Sign By-law provisions for the site allow for a Costco sign at the Beatty Street vehicular entrance and a third-party electronic sign on the elevator/stair structure at the north-east corner of the site and visible to Dunsmuir Viaduct traffic. Staff have not yet seen the details of this proposal and recommend that Schedule B of the Sign By-law (for commercial and industrial areas, and the DD) apply. If this does not accommodate the applicant's request, a further Sign By-law amendment can be requested prior to or at development application stage.

Historic Features

The "historic" features on the City-owned Lot D, including railings and lamps from the original Georgia Viaduct's western approach, the escarpment, and the Dunsmuir rail tunnel portal (owned by Pacific Place Developments Corp.), cannot feasibly be preserved or re-integrated in new development, except possibly the sculpture which is at the corner of Georgia and Beatty Streets. It is recommended the applicant be encouraged to acknowledgethese features through design development of public open space, and also the Costco Wholesale store facade and pedestrian walkway above it at the south corner of the site (Georgia Viaduct and Expo Boulevard), which could replicate or reference the railings, lamps, portal and escarpment and relocate the sculpture.

Beatty Street Drill Hall Parking

Lacking any alternative arrangements, the Drill Hall's parking needs (25-30 spaces) which would be displaced by the proposed development of Area 7B will be addressed by the City leasing to the Drill Hall parking spaces below the Dunsmuir Viaduct on area which is to be dedicated to the City as a condition of rezoning approval. However, since this would conflict with the proposed use of below-viaduct area by Costco for vehicular access and parking, staff are considering an alternative arrangement proposed by the applicant to sell to the City 20 parking spaces in below-grade parking near the Drill Hall, spaces which the City could then lease to the Drill Hall. In either event, staff will work with the Drill Hall representatives on achieving direct access from their replacement parking into the Drill Hall.

Staff note that a concern has been expressed about the Drill Hall's longstanding on-street parking allocation for military use (12-14 spaces on Beatty Street). The conversion of Beatty Street to two-way operation is proposed in the Downtown Transportation Plan, but this is not expected to affect the military parking zones, except possibly for the loss of one space near the intersection with Dunsmuir Street. However, these spaces would be subject to review by Engineering Services, as with all on-street curb zones. Staff will also seek the relocation to another street or site the transit layover spaces on Beatty Street for buses originating in North and West Vancouver.

PUBLIC INPUT

There has been a process of public involvement, during the preparation of the NEFC Urban Design Plan and since the submission of the initial rezoning application. This has included meetings with Gastown, Chinatown and Downtown East Side community groups, the Board of Trade, and adjacent major landowners.

Open houses were held on Saturday, February 9th and Saturday, May 4th at the Vancouver Public Library. Property owners within three blocks of the site were notified by mail of these events and advertisements were placed in downtown community and business newspapers. Public input has been generally supportive of the proposed uses and development, including the Costco store. (See Public Involvement on pages 1-3 of Appendix G.)

APPLICANT COMMENTS

The applicant comments that most issues identified in the Issues Report approved by Council on March 26 have been resolved. (See detailed comments on pages 10 and 11 of Appendix G.) Two issues remain: pedestrian link to BC Place concourse and Drill Hall parking.

CONCLUSION

The Director of Current Planning recommends that the applications be referred to Public Hearing and approved subject to conditions. The Director of Current Planning also recommends that he make application to rezone the City-owned site at 696 Beatty Street from BCPED to CD-1 and make application to amend the False Creek North Official Development Plan to include it within Sub-Area 7B of False Creek North, and that these applications be referred to the same Public Hearing and also approved.

- - - - -

APPENDIX A

DRAFT CD BY-LAW PROVISIONS
651 Expo Boulevard and 690 Beatty Street

Note: A CD By-law will be prepared generally in accordance with the provisions listed below:

1. Definitions

Words in this By-law shall have the meaning assigned to them in the Zoning and Development By-law, except as provided below.

Core-need Household means a household which would have to spend more than 30 percent of its annual gross income on shelter (including utilities) in order to live in an average market rental unit which is adequate and suitable for its basic needs.

Live/work use means the combined use of premises for a residential unit and general office use in conjunction with one another, provided that any development permit for such premises must be based on such combined uses.

2. Uses and Conditions of Use

2.1 The only uses permitted within the outlined areas, subject to such conditions as Council may by resolution prescribe, and the only uses for which development permits will be issued are

(h) Interim Uses not listed above and Accessory Uses customarily ancillary thereto, provided that:

(i) Interim Parking Use subject to conditions to ensure these spaces are maintained as public, short-term parking, as determined by the Director of Planning in consultation with the City Engineer, and development permits in connection with such interim parking use are limited in time to periods not exceeding three years.

2.2 Regarding Section 2.1(a), private, semi-private and public outdoor spaces shall be clearly separated and distinguished from each other.

2.3 In every building intended to contain core-need households, a community room shall be provided.

2.4 Despite Section 2.1(b), a residential unit shall not be combined, in the same live/work premises, with

3. Floor Area and Density

3.1 The total floor area for uses listed in Table 1 shall not exceed the totals set opposite such uses.

Table 1

Use

Maximum Floor Area

Residential
Commercial/Industrial
Total

83 331 m² (897,000 sq. ft.)
13 619 m² (146,600 sq. ft.)
96 950 m² (1,043,600 sq.ft.)

3.2 The following shall be included in the computation of floor area:

(a) all floors having a minimum ceiling height of 1.2 m, both above and below ground level, to be measured to the extreme outer limits of the building.

3.3 The following shall be excluded in the computation of floor area:

(a) open residential balconies or sundecks and any other appurtenances which, in the opinion of the Director of Planning, are similar to the foregoing, provided that the total area of all exclusions does not exceed eight percent of the residential floor area being provided;
(b) patios and roof gardens, provided that the Director of Planning first approves the design of sunroofs and walls;
(c) the portion of a floor used for heating and mechanical equipment or other uses similar to the foregoing;
(d) the portion of a floor used for off-street parking and loading,
(e) undeveloped floor area located above the highest storey or half-storey with a ceiling height of less than 1.2 m and to which there is no permanent means of access other than a hatch;
(g) residential storage space provided that where such space is located at or above the base surface, the maximum exclusion shall be 3.7 m² per dwelling unit;
(h) amenity areas accessory to residential use, provided that the total area excluded does not exceed 1 858 m² (20,000 sq. ft.); and
(i) where exterior walls greater than 152 mm in thickness have been recommended by a Building Envelope Professional as defined in the Building By-law, the area of the walls exceeding 152 mm, but to a maximum exclusion of 152 mm thickness, except that this clause shall not apply to walls in existence prior to March 14, 2000.

3.4 The following may be excluded in the computation of floor area:

(a) enclosed residential balconies, provided that the Director of Planning first considers all applicable policies and guidelines adopted by Council and approves the design of any balcony enclosure subject to the following:

(b) windows recessed into the building face to a maximum depth of 160 mm, except that the Director of Planning may allow a greater depth in cases where it improves building character.

3.5 The floor area regulations of Section 3.1 are subject to the following:

(a) retail and service uses can be located only on that portion of the Expo Boulevard level within 10.7 m of the front property line; and
(b) the minimum size of a combined residential and general office premises (live/work) shall be no less than 47 m². The minimum size of the residential component of such live/work premises, shall be not less than the current City standard set out from time to time in Section 10.21.2 of By-law No. 3575 and the minimum size for the general office component of such live/work premises shall be 9.3 m².

4. Height

4.1 The maximum building height measured above the base surface, but excluding the mechanical penthouse and roof, shall be 91 m, subject to applicable policies and guidelines.
[Note: View Protection Guidelines apply. The maximum building height calculated for view protection includes all appurtenances such as mechanical penthouses, decorative roofs and aerials.]

4.2 For purposes of height calculation, Base Surface shall be calculated from the building grades on the viaduct level roads.

5. Parking, Loading and Bicycle Parking

Off-street parking, loading and bicycle parking shall be provided, developed and maintained in accordance with the applicable provisions of the Parking By-law, including those for relaxation and exemptions, except as follows:

(a) Dwelling Uses, not including units designated for core-need subsidized seniors housing or non-market housing, shall provide:

(b) Retail Uses shall provide a minimum of 1 space for each 100 m² of gross floor area, subject to a maximum number of spaces 10 percent greater than the minimum calculated using this clause;

6. Acoustics

All development permit applications shall require evidence in the form of a report and recommendations prepared by a person trained in acoustics and current techniques of noise measurement, demonstrating that noise levels in bedrooms shall not exceed 35 decibels, living, dining and recreation rooms 40 decibels, and kitchen, bathroom and hallways 45 decibels.

- - - - -

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL
651 Expo Boulevard and 690 Beatty Street

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

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by James K. M. Cheng Architects Inc., and stamped "Received, City Planning Department, April 23, 2002", provided that the Director of Planning, or Development Permit Board, may allow alterations to the form of development when approving the detailed scheme of development as outlined in (b) below.

(b) THAT, prior to final approval by Council of the form of development, the applicant shall obtain approval of a development application by the Development Permit Board who shall have particular regard to the following:

12) preparation of a comprehensive landscape plan, including consideration of the following:

AGREEMENTS

(c) THAT, prior to enactment of the CD-1 By-law and False Creek North Official Development Plan amending by-law, at no cost to the City, the registered owner shall make arrangements for the following:

Or

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.

The facilities to be provided including the Services, and site remediation, may, in the discretion of the General Manager of Engineering Services and Director of Legal Services, be constructed in phases, in accordance with phasing plans satisfactory to the aforesaid officials, and the respective Agreements will provide for security and occupancy restrictions appropriate to such phasing.

The preceding 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.

- - - - -

APPENDIX C

DRAFT AMENDMENTS
FALSE CREEK NORTH OFFICIAL DEVELOPMENT PLAN
(Adopted by By-law No. 6650, April 10, 1990)

Note: An amending By-law will be prepared generally in accordance with the revised provisions listed below, which are subject to change and refinement by staff prior to posting for the public hearing.

3.2 Land Use

3.2.2 Office

These sites are located at the Cambie bridgehead and between the two viaducts. In addition, small-scale offices may be permitted in mixed-use and retail/service areas. Offices within the Cambie bridgehead area are to be low-rise to mid-rise and low-density.
...

156 785 square metres of office and street- or pedestrian-oriented retail and service uses may be permitted, generally distributed as shown on Figure 5.

3.2.5 Wholesale [This new section would be inserted as 3.2.5 and the sections which follow renumbered accordingly.]

Wholesaling (warehouse club or wholesale club) may be permitted, but limited to the area between the Georgia and Dunsmuir Viaducts (Area 7B), at Expo Boulevard grade, and not exceeding 13 619 square metres. To assist warehouse or wholesale club members who choose to walk to the premises, the operator will consider provision of shopping carts, wagons and/or other pedestrian-serving conveniences and operation of a delivery service.

Section 5 Sub-areas

5.8 Area 6(c)

This residential commercial area is located on the western edge of a major waterfront park and extends between the viaducts east of Abbott Street. Retail use is to be extended along the west side of Abbott Street to the waterfront. Abbott Street is to be extended for a short distance along the water to Carrall Street. A marina will beconsidered in the small bay with respect to the policy of encouraging non-power craft at the east end of False Creek. Berths will be located to provide a water view down Abbott Street. The land between the viaducts is to be developed with residential amenities and parking as determined at the sub-area zoning stage.

5.10 Area 7(b)

This predominantly office primarily residential mixed-use area is the eastern terminus to the downtown office area, being defined by the viaducts and linked to the ALRT station. The grade of the downtown is to be extended between the viaducts. Development of this site should respond to the ultimate uses on adjacent sites, in particular sub-areas 7(a) (GM Place) and 8 (International Village). Residential use will be mid- to high-rise mixed-use development. Any policies or principles of development adopted by Council should shape its design. Detailed traffic analysis will be required at the sub-area zoning phase.

The following figures will be amended:

Figure 1 O.D.P. Boundary -- to incorporate Lot D

Figure 3 Land Use -- to change hatching

Figure 4 Residential Units - to amend Area 7B, 6C and 6A

Figure 5 Office Development - to amend Area 7B and 6C

Figure 9B Movement (Pedestrian Walkway Network) - n/c?

Figure 12A Illustrative Plan

Figure 12B Non-Market Housing Sites

Figure 12C Maximum Tower Heights (no. of storeys) - change from "24" to "30"

- - - - -

APPENDIX D

ADDITIONAL BACKGROUND INFORMATION

On March 26, 2002, City Council approved:

A. THAT Council is prepared to consider the applications by Pacific Place Developments Corp. to amend the False Creek North Official Development Plan and to rezone Area 7B from BCPED to CD-1, such rezoning:

B. THAT Council favours the incorporation of the City-owned Lot D at 696 Beatty Street as part of Area 7B, to be sold to Pacific Place Holdings Ltd., with disposition of the lot to be addressed in a report back from the General Manager of Engineering Services, in consultation with the Director of Real Estate Services;

C. THAT Council is prepared to consider the consolidation on Area 7B of a non-market housing obligation previously transferred from Site 5GH in Area 5A (100 units) and another obligation proposed to be transferred from Area 6C (131 units);

D. THAT Council is prepared to consider the relaxation of parking requirements, but within existing policies and relevant precedents and experience;

E. THAT Council favours the relocation of Stadium Parking Agreement spaces from other sub-areas to Area 7B;

F. THAT Council is prepared to consider an alternative means of providing a direct pedestrian link between Stadium Skytrain Station and BC Place and favours a barrier-free, pedestrian link between Beatty Street or Viaduct level and the lower Expo or Pacific Boulevard level;

G. THAT Council favours that the parking needs of the Drill Hall at 620 Beatty Street be addressed through voluntary collaboration and business arrangement between Pacific Place Developments Corp., the BC Regiment and the City, with staff to provide assistance as may be helpful; and

H. THAT Council encourages Pacific Place Developments Corp. to undertake voluntary reintegration or commemoration of resources on the site of historic interest, but that this is not seen as a requirement of rezoning the site.

FALSE CREEK NORTH OFFICIAL DEVELOPMENT PLAN:
Existing and Proposed Residential and Office Potential

Area

  

Office
Floor
Area
(Sq. Ft.)

Residential

Floor Area
(Sq. Ft.)

Total
Units

Non-Market

Market

Sub-total

Non-family

Family

Sub-total

Non-family

Family

0.25

existing

0

666,631

511

86

38

48

425

309

116

proposed

0

(+154,633)

821,264

(+ 15) 526

(+ 15) 101

38

(+ 15)

63

425

309

116

6C

existing

0

720,010

691

131

55

76

560

410

150

proposed

(+797,081)

797,081

(-720,010)
0

(-691)
0

(-131)
0

(- 55)
0

(-76)
0

(-560)
0

(-410)
0

(-150)
0

7B

existing

943,681

259,000

261

100

50

50

161

134

27

proposed

(-797,081) 146,600

(+565,377)

(+ 72,623)

897,000

(+676)

(+179)

1,116

(+116)

216

(+55)

105

(+61)

111

(+560)

(+179)

900

(+410)

(+176)

720

(+150)

(+ 3)

180

Sub-Total

existing

943,681

1,645,641

1,463

317

143

174

1,146

853

293

proposed

943,681

(+ 72,623)

1,718,264

(+179)

1,642

317

143

174

(+179)

1,325

?

?

Balance

existing

763,667

8,095,391

7,734

            

proposed

  

8,095,391

7,555

            

Total

existing

1,707,348

9,741,032

9,197

            

proposed

  

(+72,623)

9,813,655

9,197

            

APPENDIX E

ADDITIONAL DISCUSSION

Costco Wholesale Store

The proposed Costco Wholesale store would be the seventh in the Lower Mainland. The six other locations are Grandview Highway, North Richmond (Bridgeport Road), East Burnaby (Brighton Avenue), Port Coquitlam (Lougheed Highway), Surrey (King George Highway) and Abbotsford (Sumas Way).

A Costco store combines wholesale and retail sales to businesses and personal consumers. Sales to businesses include supplies and goods for resale. In a typical outlet, 60 percent of the customers are Wholesale/ Business Card members, and 40 percent are Gold Card members (government employees, utility and institutional employees, associations and professionals). About 55 percent of sales are to businesses and 45 percent for household and personal consumption. Typical shopping trips to Costco are up to twice as long as supermarket visits, much less frequent, and bigger purchases.

A Costco store offers a very limited selection of goods and generally in large quantities. Only 4,000 units are stocked compared to 80-100,000 at Canadian Tire or Walmart, 30-50,000 units in 60-90,000 sq. ft. supermarkets, and 20-30,000 units in 20-30,000 sq. ft. stores. About 42 percent is food and convenience-type merchandise and 58 percent department store-type merchandise. Because of limited depth and breath of merchandise, Costco stores do not serve the same market as, or replace shopping trips to, supermarkets, shopping centres, and smaller specialty shops. They are a complementary part of the overall retail and wholesale delivery system.

The proposed Costco Wholesale store in Area 7B requires a very small market share to achieve its projected total annual sales of $100 million. The primary trade area of the proposed store includes the Downtown peninsula and extends east to Commercial Drive and south to 41st Avenue. The peninsula, west to Burrard Street has 1,327 retail stores with a total of 3.7 million sq. ft. (4 department stores have a total of 980,000 sq. ft.). The secondary trade area extends to the City boundaries and includes the North Shore.

The primary trade area has an estimated 306,700 residents in 2002 with a total retail demand of $3 billion in 2002. The projected total annual Costco retail sales of $45 million is 0.8 percent of this. There are 12,000 businesses within two kilometres of the site, as compared to 2,100 at the Richmond outlet and 500 surrounding the Grandview Highway outlet. The Vancouver wholesale market has a total demand of about $10 billion. Costco would require only 0.6 percent to satisfy its sales requirements.

Given the type and mix of goods sold, the Costco store is not expected to compete in any significant way with retailers in Downtown, Chinatown, Gastown, South Downtown, and Yaletown. It is also not expected to compete with other wholesalers in the city. Most competitors are said to be located in Richmond, Surrey, Coquitlam, Port Coquitlam, Delta and Langley. The example is given of a major wholesaler of similar merchandise, HY Louie, which has recently moved to Lake City in Burnaby.

The Downtown Transportation Plan priorities (pedestrians, bicycling, transit, goods movement and then private automobiles) raise questions about the transportation impacts of the proposed Costco store. Large-format retailers (such as Office Depot, Staples, Toys `R' Us, Home Depot, and Petcetera) typically locate on large sites along major arterials in peripheral locations. In Vancouver this includes the Broadway Corridor, Grandview Highway and Marine Drive. By contrast, the proposed Costco location on Expo Boulevard is at the edge of Downtown, convenient to market, and not on industrial land. This has potential benefits in terms of goods movement in the city.

Costco presently has 50,000 cardholders in the primary and secondary trade areas combined. Regional travel reduction benefits are expected as customers close to the new location will no longer need to drive to the Richmond or Grandview Highway stores. When the total travel distance generated by these two stores was compared with the case of a third store near Downtown, the results indicate that total distance travelled by existing Costco members could be reduced by up to 42 percent. This net trip reduction translates to a potential saving of between 550,000 and 1,060,000 litres of fuel per year, and emissions reduced between 15,000 and 29,000 kilograms per year. These are significant environmental benefits.

Costco will not increase commuter traffic flows. The warehouse store will not operate during the weekday morning peak hour and so will not add to morning peak period traffic problems. The peak of member trips occurs in mid-morning/early afternoon. During the afternoon peak hour, activity is generally 70 to 85 percent of weekday peak time, with a high proportion being pass-by trips.

A social impact statement prepared by Costco identifies potential benefits for neighbourhood residents and the broader community:
· employment opportunity (200-300 new jobs) for residents, including part-time employment and "living wage" rather than minimum wage,
· contributions to local food bank(s), United Way, BC Children's Hospital, and
· adopt-a-school "Back Pack" program.

- - - - -

APPENDIX F

Four diagrams here:

1 Pedestrian Movement - Upper Level

2 Pedestrian Movement - Lower Level

3 Vehicular Movement - Upper Level

4 Vehicular Movement - Lower Level

APPENDIX G

COMMENTS FROM
THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANT

PUBLIC INVOLVEMENT

Notification: Two information signs were installed on the site and 541 notification letters were mailed in early December, 2001.

Public Meetings: Several meetings have been held between the applicant, city staff and the following groups:

· adjacent major landowners, including owners of BC Place Stadium, GM Place, Central Heat, and International Village (December 3, 2001),
· Gastown/Chinatown Downtown East Side Community Groups (December 4, 2001),
· Chinatown Revitalization Group Meeting ( December 10, 2001),
· Board of Trade (January 17, 2002), and
· Chinatown Merchants Association (February 4, 2002).

At the meeting with adjacent property owners, some concerns were expressed about parking and traffic, especially truck drop off that might be generated from the Costco wholesale store at Expo Boulevard. The stakeholders were keen to see the results of the applicant's parking and traffic impacts study.

At the Gastown/Chinatown Downtown Eastside community group meeting, questions revolved around potential employment opportunities at Costco for lower-income people in the Downtown Eastside and retail impacts to Chinatown businesses. The Chinatown Revitalization committee also posed questions about retail impacts on adjacent business areas and are interested in seeing the results of the retail impact study. Some members of the Chinatown Merchants Association expressed concern about the Costco proposal, while others anticipated spill-over benefits from larger numbers of people coming to the general vicinity. Many were keen to see an improved pedestrian environment and wayfinding to Chinatown.

The Board of Trade raised concerns that the downtown's commercial land supply be safeguarded. While they do not oppose the mixed use development proposal for Area 7B, they support maintaining overall ratios between residential and commercial densities in False Creek North.

Public Open House: Open houses were held on Saturday, February 9th and Saturday, May 4th, 11 a.m. to 5 p.m., at the Vancouver Public Library. Property owners within threeblocks of the site were notified by mail of these event and advertisements placed in downtown community and business newspapers.

On February 9th, more than 300 people walked through the display area, and 60 completed a comment sheet (44 percent live within 5 blocks of the site, and 42 percent in the Central Area). 88 percent of those who commented supported the proposed change of use, 82 percent supported the proposed Costco store, and 75 percent support the proposed form of development. On May 4th, about 100 people walked through the display area, and 25 completed a comment sheet (33 percent live within 5 blocks of the site, and 34 percent in the Central Area). 80 percent of those who commented supported the change of use from commercial to residential, 80 percent supported the proposed Costco store, and 84 percent support the proposed high-rise form of development with low-rise buildings at the street edges.

Things which people liked about the proposal:

· "Most all of it"
· Mixed use, combination of residential and commercial
· good development of a rather neglected and ugly site, eyesore, close to Downtown.
· connecting Downtown and Concord developments to International Village, Gastown, Chinatown, and even CityGate
· adds to the city's density Downtown
· Costco store
· "Nothing! Why can't you see a tiny space in the City unoccupied?"

Things which people did not like about the proposal:

· "Not at the moment." "Can't think of any off hand." "No." (3)
· building far too tall
· towers are too low and squat - should be taller and thinner (3 respondents)
· not enough public green space
· access from Costco to lane behind 500-block Beatty Street (2 respondents)
· Costco will contribute to increased traffic, Downtown congestion, more car pollution
· vehicular circulation is awkward
· development doesn't respond to the existing Drill Hall
· the basic concepts for the site are supported, but design needs to be rethought

Suggestions and other comments included:

· More bicycle and walk paths, more green/growing incorporated into building structure
· More vibrant and colorful entrance
· will increase pedestrian traffic on Keefer Steps -- City should take over their maintenance
· since non-market housing will probably not be funded, should redesign this part of the site, providing two levels and incorporating the Dunsmuir Tunnel portal
· provide glass elevator
· provide a community centre for Area 7B and Keefer Place
· "offer constructive and useful programs for our inner city youth"

General Manager of Engineering Services: In a memo dated May 19, 2002, the Deputy City Engineer advises:

"Land Survey Branch

Water Design Branch

General Comments: Before finalizing plans and starting construction, please refer to the City of Vancouver pamphlets, "Building Trades, City Water Information" and "Cross Connection Control Standards", available from the Waterworks Design Branch, 4th Floor, City Hall at a cost of $5.00 each.

Plan review by City's Permits and Licenses Department does not cover Engineering Department requirements for obtaining water service. These requirements involve both on-street and on-site (plumbing) requirements to comply with the Waterworks By-law. See above noted pamphlets. A full set of plans complete with application for plan review must be submitted to the Water Design Office for review prior to obtaining a building permit.

Comments on the adequacy of the water system: Water mains are available along Beatty Street and Expo Boulevard to provide water service to this development; however, it is possible that watermain up-grades will be required to handle the additional density proposed by the rezoning. The applicant is required to provide fire flow demands for the entire development so that Water Design can check the demand on the present water system prior to providing final comments on this proposal.

There will be a requirement to provide on-site fire hydrants to meet the Bylaw requirement of a maximum 45 metres from a fire hydrant to a Fire Department connection.

The Sewers Design Branch has concerns about the capacity of the existing sanitary and storm sewers servicing the site. The applicant is required to have their engineering consultant work with the Sewers Design Branch to identify how best to service the site and determine if any system upgrades are required.

Utilities Management Branch

The site appears to have the ability to be serviced by Hydro and Tel, but applicant will need to provide written confirmation from these utilities. BC Gas is available off Beatty Street, but service availability to this site is not known.

Any proposed changes to the underground/overhead utility network to accommodate service to this site must be reviewed by Utilities Management.

Streets Design Branch

The minimum parking requirement for residential use has been agreed upon at the same rate as that in affect for the downtown south. With the applicants reduction in residential floor area proposed on this site the required parking should be attainable.

The standard recommended for non-market housing is:

Engineering Services will accept 726 spaces for the 146,000 sq. ft. Costco wholesale store, if the applicant agrees to the following terms and conditions, designed to increase and enhance pedestrian traffic, and reduce vehicular traffic to the store:

Costco has also requested that the requirement for 100 Stadium built stalls be transferred to another site, as their surveys show that there will be a high parking demand from their customers during the weekday daytime hours that Stadium parking is to be available, creating a shortfall in the parking required for Costco customers. We are willing to consider transferring the obligation for the 100 Stadium built stalls to another site, if the obligation for 100 pay-in-lieu stalls from another Concord site is transferred to site 7B."

Conditions of rezoning approval recommended by Engineering Services have been included in Appendix B.

Urban Design Panel: On May 1, 2002, the Panel supported the proposed land uses, density, and form of development in this rezoning application (6-3):

"Panel's Comments: The Panel strongly supported this application. There were, however, major concerns about the built form, and the Panel's support was on the assumption that the issues will be addressed at the next stage of development.

The Panel agreed that this is a very difficult site and commended the applicant for what has been achieved in its organization given the severe restrictions.

The Panel strongly supported the proposed use and density.

The Panel generally found the placement of the towers and their more slender forms to be an improvement over the previous submission. Some Panel members felt there was a mid-rise component that is missing from the scheme and suggested this site would be a good location for diverting from the typical tower and townhouses solution. Another suggestion was to consider greater variation in the tower heights.

Costco/Expo Boulevard Interface/Escarpment/Vertical Connection: Most Panel members supported the proposed treatment of the Costco store and thought the public space in front of it will be a very useful amenity. It was considered to be a good response to the scale of Expo Boulevard, and the concept of a "designer" Costco was supported for this location.

The Panel liked the vertical connection and stressed that the more movement that can be brought to this edge the better. It was also stressed that pedestrian circulation on the upper level above the Costco will be very important, so it should be very obvious and not obscured in any way. A recommendation was made to enhance the stair, possibly adding a glass elevator, to strengthen the vertical connection and make it more inviting.

Several Panel members commented on the escarpment and how it has been treated in this proposal. It was stressed that it needs to have a positive element and not just provide screening for parking. The green edge spilling down creates the suggestion of a new escarpment and this could be built upon in terms of landscape to create a stronger gesture to what was there before. There were some questions about the trees on the terraces, which create the rather artificial appearance of "trees in the air". One Panel member, who did not support the Costco in this location, stressed that its success will depend on how well pedestrians are brought down to grade. Downtown Seattle was cited as a good example of how it can be done successfully.

Townhouses: Serious concerns were expressed about the townhouses on Georgia and Dunsmuir Streets. There needs to be something much more substantial on these streets, perhaps interspersed with some of the amenity uses. Several Panel members suggested switching the location of the townhouses and the amenities. While there are townhouses at the other end of Georgia Street, near Stanley Park, they are set well back, with access off Alberni. Townhouses would be out of character at this end of Georgia which has a muchmore commercial feel. One Panel member questioned whether some small sports-related retail would work in this location. Litter and noise generated by sports fans might also be an issues for townhouses in these locations.

The New Street: The new street which extends between the two viaducts and the introduction of the cul de sac was an area of serious concern for the Panel. While it is a public street that invites people into it, it is a dead-end. A positive aspect of the previous submission was that it was clearly a public space and there was a way through and out of it. As well, given the heavy pedestrian traffic that will occur on this street, it would have been preferable for it to have a townhouse frontage. As proposed, there are many gaps and openings on the street and no real sense of frontage. There was also a concern expressed that this street might end up being used as a turnaround to avoid the proposed new traffic lights. In general it was thought the new street should be grander and more dramatic.

Non Market Housing: The density and form of the non market housing component was considered appropriate. While it was noted to have been stepped back in deference to the Armoury, it was also noted that the open space beside it will rarely receive any sunlight. The suggestion was to investigate if there is some way of massing this corner to achieve more light in the public space. Another recommendation was that there be some architectural relationship to the Armoury in the expression of the non-market tower. Given the gateway nature of the site, the applicant was urged to ensure that this component is treated better than typical non market buildings otherwise it could contribute to a very weak exit for the city.

Landscape: A suggestion was made to put some texture onto Georgia and Dunsmuir Streets to help tame the traffic. A concern was expressed that input from a landscape architect is not evident, noting it would have benefited the scheme, even at this early stage of development.

Circulation: General concerns were expressed about the complexity of the internal circulation on the site. As well, a comment was that the connection to International Village is unclear and should be strengthened in the next stage of development.

Applicant's Response: Mr. Cheng explained that the townhouses are not traditional townhouse units but live/work or choice of use is under discussion. Bill Steinberg noted an extensive traffic study was undertaken which indicates the traffic is in transition, especially the stadium traffic. As the vacant lands around the stadiums get developed the traffic for events will decrease because there will be less parking available in the long term. Mr. Steinberg stressed this is a very difficult site with a number of other proposals having been considered previously. This is a unique mixed used development and Costco are to be commended for diverting completely from their typical suburban model for this site.

Mr. Cheng urged the Panel to remember that this is the first phase of a transformation of a large section of the city. As well, to keep in mind the long term vision of the Northeast False Creek Plan and the work that is being done to link the south side of this part of False Creek and CityGate. The aspiration for this area is that it will eventually become a viable residential community that will help revive Chinatown, Gastown and International Village. This site, together with Area 6C, is the beginning to try to knit together communities that are separated currently by the stadiums, noting that BC Place may not exist in five to ten years time."

APPLICANT'S COMMENTS

"On March 26, 2002 City Council approved the Issues Report on the 7B rezoning application. Since then Concord Pacific and Costco Wholesale have been working closely with City staff to address the issues identified in the report. The 7B site poses a number of very unique challenges and opportunities and we are pleased to note that most of the issues in the report have now been resolved.

There are still a few issues that we have not yet been able to resolve as noted below.

· Pedestrian Connection - Georgia Street to Area 10 BC Place Stadium

A proposed requirement of this rezoning is construction of a pedestrian link from the west side of Georgia Street to the Sub-Area 10 BC Place Stadium. We believe that this is not in keeping with the principles set out in the FCN ODP whereby the required City infrastructure is paid for by the relevant landowner. The proposed link is definitely an improvement located with-in Sub-Area 10 of the FCN ODP and therefore should be a responsibility of the landowner of Sub-Area 10. We suggest that an alternative way of obtaining this infrastructure prior to any new development on Sub-Area 10 would be through the GreenLinks funding.

· Drill Hall Parking

Concord Pacific is very supportive of the heritage Beatty Street Drill Hall and the important role of the BC Regiment. To date we have not been able to work out a long-term solution for the provision of parking required by the Drill Hall. We are continuing to work with City staff and the Drill Hall to try and reach an agreement that is both fair and equitable to all parties involved.

With this rezoning application Concord Pacific is proposing a very unique mixed-use development that, if approved, will become a vibrant, pedestrian friendly residential neighbourhood on top of a Costco Wholesale outlet, which will serve primarily local businesses and residents. The project will provide a key linkage between the downtown andthe False Creek waterfront, as well as Yaletown and the Chinatown area. It will also help to stimulate the development initiated in International Village, and the revival of Chinatown."

- - - - -

APPENDIX H

10 pages of reduced drawings

APPENDIX I

Additional Material Submitted with the Rezoning Application:

Retail Market Study: Downtown Vancouver, Hudema Consulting Group Limited, January 2002. (76 pages)

Wholesale Market Study: Downtown Vancouver, Hudema Consulting Group Limited, April 2002. (10 pages)

Costco Wholesale Canada: Social Impact Statement, Costco Wholesale, April 15, 2002.

Transportation Impact Study: Proposed Area 7B Development, T.J. Ward Consulting Group Inc., December 16, 1999. (39 pages)

Transportation Issues (addendum to Transportation Impact Study), T.J. Ward Consulting Group Inc., April 23, 2002. (4 pages)

Parking Demand for Downtown Vancouver Costco, T.J. Ward Consulting Group Inc., April 23, 2002. (15 pages)

Parking Requirements for Area 7B Costco, T.J. Ward Consulting Group Inc., April 23, 2002. (20 pages)

Pedestrian Circulation in the Vicinity of Area 7B Development, T.J. Ward Consulting Group Inc., January 21, 2002. (28 pages)

Pedestrian Movement Study for Area 7B, T.J. Ward Consulting Group Inc., April 22, 2002. (10 pages)

APPENDIX J

APPLICANT, PROPERTY AND
DEVELOPMENT PROPOSAL INFORMATION

Applicant and Property Information

Street Address

651 Expo Boulevard and 690 Beatty Street

Legal Description

Portion of Lot 156, except portions in Plans 21735, LMP12037, LMP12038 and LMP13010, False Creek, Plan 21458 [Proposed Lot 289]; and
Lot 7, Plan 4656, Block 49, D.L. 541

Site Area

23 810 m² (256,305 sq. ft.) estimated (prior to dedication)
18 555 m² (199,735 sq. ft.) estimated (after dedication)

Property Owner

Pacific Place Developments Corp. (Applicant)

Architect

James KM Cheng Architects Inc.

Development Statistics

 

Current O.D.P. Provisions

Proposed Development

Recommended

Land Use

commercial and residential

residential and commercial

as proposed

Floor Area
Residential
Commercial
Total

24 061 m² (259,000 sq. ft.)
87 668 m² (943,681 sq. ft.)
111 729 m² (1,202,681sq.ft.)

83 331 m² (897,000 sq. ft.)
13 619 m² (146,600 sq. ft.)
96 950 m² (1,043,600sq.ft.)

as proposed

Density

4.69 (gross) 6.02 (net)

4.07 (gross) 5.22 (net)

as proposed

Dwelling Units
Market
Non-Market
Total

family non-family total
27 134 161
50 50 100
77 184 261

family non-family total
180 720 900
111 105 216
291 825 1,116

as proposed

Tower Floorplate

  

650.3 m² (7,000 sq. ft.)
maximum

as proposed

Maximum Height

28 storeys and 24 storeys

90.95 m (298.4 feet)
30 storeys

as proposed

Parking Spaces:

Required:

Proposed:

Recommended:

Residential

min:
max:

1/93 m² 600
1/80 m² 660

market 700
non-market 116

Generally as proposed (Also see recommended parking and loading provisions in Appendix A and Appendix B.)

Commercial &
Industrial

min:
max:

1/50 m² 476

+ 10%528

Warehouse Club 726
(Costco Wholesale)

Total

min:
max:

1,176
1,188

1542

Loading Spaces
(Class B)

4

4

Bicycle Spaces (required/provided)

Class A
Class B

market
residential

non-market
residential

Costco

Total

1,125
6

270
6

18
6

1,413
18

* * * * *

ag020625.htm

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