POLICY REPORT
URBAN STRUCTURE
Date: November 28, 2002
Author/Local: P.Mondor/7727
RTS No. 03113
CC File No. 5304
Council: December 10, 2002
TO: |
Vancouver City Council |
FROM: |
Director of Current Planning |
SUBJECT: |
CD-1 Text Amendment (Building Height): 801 West Georgia Street (Hotel Georgia) |
RECOMMENDATION
THAT the application by Bing Thom Architects Inc., on behalf of Allied Holdings Inc., to amend the CD-1 By-law No. 8536 for the site at 801 West Georgia Street and 687 Howe Street (Lots F and G, Block 41, D.L. 541, Group 1, NWD Plan LMP 42609), to increase building height, be referred to a Public Hearing, together with:
(i) draft CD-1 By-law amendment, generally as contained in Appendix A,
(ii) revised form of development in plans by Bing Thom Architects Inc. received November 26, 2002, and
(iii) the recommendation of the Director of Current Planning that the application be approved, subject to conditions as presented in Appendix B;
FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 amending by-law for consideration at the Public Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of the foregoing.
COUNCIL POLICY
· CD-1 By-law No. 8536 (# 413) for 801 West Georgia Street enacted in July 2002,
· View Protection Guidelines, approved in December 1989, and
· General Policy for Higher Buildings, approved in May 1997.
PURPOSE AND SUMMARY
This report assesses an application submitted November 27, 2002 to amend Section 4 of the CD-1 Comprehensive Development District By-law for this site to increase the maximum building height (measured to top of habitable space) and to modestly increase the total building height (measured to top of mechanical penthouse and decorative roof).
The applicant, in a letter dated November 26, 2002, has withdrawn the application submitted June 25, 2002 which requested a significant increase in total building height to 182.9 m (600 ft.). Staff welcome the withdrawal as that application represented a very significant encroachment into an important protected public view cone.
Staff have reviewed the new application and conditionally support it. The proposed increase in "habitable building height" will enable the liveability of dwelling units in this central downtown location to be significantly improved. The proposed changes in building height would not involve any change in the total floor area proposed on the site.
The Director of Current Planning recommends that the application be referred to a Public Hearing and approved, with a condition to remove an unnecessary appurtenance.
BACKGROUND
Site, Context, and Surrounding Zoning: The 2 787 m² (30,000 sq. ft.) site is located in Area A of the Downtown District (DD), as shown in Figure 1 (on the following page). The 12-storey Hotel Georgia, a designated "B" heritage building, stands prominently at the northwest corner of Howe and Georgia Streets (Lot F). Adjacent to the hotel and fronting Howe Street, on the north portion of the site (Lot G), there is an ancillary 4-storey parking/retail structure.
Surrounding development includes the HSBC building (22 storeys) across the lane to the west, the Metropolitan Hotel (17 storeys) immediately abutting to the north, the Four Seasons Hotel at Pacific Centre (32 storeys) across Howe Street to the east, and the Art Gallery and Courthouse Square across Georgia Street to the south.
Figure 1. Site and Surrounding Zoning
CD-1 Rezoning Approval: An application was approved at Public Hearing on June 13, 2002 to rezone the site to CD-1 to allow for residential use and additional height in a 50-storey, 154.4 m (506.6 ft.) hotel-residential tower which would replace the existing parkade adjacent to the heritage Hotel Georgia. The CD-1 By-law was enacted on July 30, 2002.
The proposed development incorporates heritage bonus density provided in the Heritage Revitalization Agreement approved in 1998, and also a transfer of some additional heritage density from a donor site elsewhere, consistent with Downtown residential rezoning policy. The 1998 and 2002 Council decisions effectively secure the heritage values on this site.
The maximum building height (to top of habitable space) allowed by this By-law is 141.7 m (465 ft.), which is an increase of 4.6 m (15 ft.) above the 137 m (450 ft.) allowed by the zoning in this sub-area of the Downtown District. Also allowed was a total building height(to top of mechanical penthouse and decorative roof) of 154.4 m (506.6 ft.), which is a view cone height limit applying to the site as determined by the View Corridor Guidelines.
Proposed Development (DE407114): A development application was submitted on October 30, 2002 for the proposed 50-storey, 154.4 m (506.6 ft.) tower at 687 Howe Street (Lot G) next to the existing Hotel Georgia (Lot F). It generally conforms to the CD-1 zoning and the form of development which were approved at Public Hearing in June. Application review is underway, and Development Permit Board decision is anticipated in late January.
Recent/Concurrent Rezoning Application: An application was submitted on November 5, 2002 to add flexibility in the CD-1 By-law regarding the allocation of floor area between the two parts of the site. The referral report dated November 14th includes further amendments recommended to enable staff to deal with the automated parking which is proposed in the new building, and also to add a clarification that Dwelling Use on this site is permitted in a district that is an "activity zone" as defined in the Noise By-law.
City Council at its meeting of November 26th approved that this application and related staff recommendations be referred to Public Hearing (tentatively scheduled for late January).
Rezoning Application for Higher Building: A rezoning application was submitted on June 25, 2002 to amend the CD-1 By-law to increase the total building height to 182.9 m (600 ft.), and the number of floors from 50 to 56. Staff did not support this application because it would significantly encroach into a view cone height limit established by the View Protection Guidelines, and it did not meet important requirements established in the General Policy for Higher Buildings. On August 14, 2002, Council did not refuse the application, but instructed staff to review it according to criteria and procedures set out in the General Policy for Higher Buildings.
The applicant, in a letter dated November 26, 2002, has withdrawn this application.
DISCUSSION
New Application
The applicant has submitted a new application to increase the maximum building height by 6.7 m (22 ft.), from 141.7 m (465 ft.) to 148.4 m (487 ft.), and the total building height by 1.5 m (5 ft.), from 154.4 m (506.6 ft.) to 155.9 m (511.6 ft.). (See cross-sectional drawing attached as Appendix C)
[Note: Maximum building height for zoning purposes is calculated only to the roof parapet of the uppermost occupied space, i.e., top of habitable space. The total building height calculated for view protection includes all appurtenances such as mechanical/elevator penthouses, decorative roofs and aerials.]
The applicant has also proposed an architectural appurtenance, in the form of a relatively transparent glass box, about 2.4 m by 2.4 m (8 x 8 ft.), and 6.1 m (20 ft.) in height, as a skyward extension of the building's architecture. The increase in total building height would encroach the view cone height limit by 1.5 m (5 ft.). The proposed architectural appurtenance would increase the encroachment to 7.6 m (25 ft.).
The current application also proposes an additional minor amendment, to Section 4 (Floor Area and Density), to allow exclusion from floor area and floor space ratio calculations the floors or areas of floors used for heating or mechanical equipment and similar uses.
Improved Residential Livability
In the original rezoning of this site, staff had two concerns about the residential liveability of proposed dwelling use at this location: noise and privacy:
· Noise: The site is an "activity zone" as defined in the Noise Control By-law where commercial and industrial noise levels are permitted and residents not given much relief in response to noise complaints. To ensure that noise impacts could be mitigated, an air conditioning system was required to give occupants a choice between opening windows and keeping them closed. The applicant subsequently confirmed that it will be difficult to provide an air conditioning system economically within the limited floor-to-ceiling heights of 2.6 m (8.5 ft.).
· A second livability concern was raised by the proximity to the HSBC office building of the four lowest residential floors. To improve this situation, it was required that the privacy and view impacts of this proximity be addressed through an appropriate orientation and layout of the dwelling units on the lane side of the building to maximize privacy and views.
Staff have since reviewed these concerns more closely with the applicant and agreed that some increase in floor-to-ceiling heights might be considered to improve the feasibility of providing air conditioning and also to raise some dwelling units relative to the office building across the lane, both of these to improve the liveability of the dwelling units.
An increase of 0.15 m (0.5 feet) per floor in both the hotel and residential floors (44 habitable floors in total), which would raise floor-to-ceiling heights from 2.6 m (8.5 ft.) to 2.7 m (9 ft.), was determined to be the minimum increase necessary to respond to staff concerns and rezoning approval conditions regarding liveability. Accommodating this increase in floor-to-ceiling heights would require an overall increase of 6.7 m (22 ft.) in maximum building height, from the present maximum of 141.7 m (465ft.) to 148.4 m (487 ft.).
Staff support this proposed increase in "habitable building height" to enable the liveability of dwelling units in this central downtown location to be significantly improved. The proposed CD-1 By-law amendment is listed in Appendix A, giving discretion to the Director of Planning or Development Permit Board to approve up to 6.7 m (22 ft.) in additional height over the maximum now listed in the By-law.
A design development condition, proposed to be approved as a condition of rezoning, is listed in Appendix B. Further design development in the massing, articulation and architectural treatment of the upper storeys, including setbacks where possible and appropriate, is recommended to maximize the slenderness of the upper portion of the building. Further design development to the mechanical penthouse, decorative roof and related architectural appurtenances to achieve an appropriate rooftop for this building in its physical setting.
Minimal View Impact
A consequence of the proposed increase in maximum (habitable) building height is that the mechanical penthouse and decorative roof must be reduced from 12.7 m (41.6 ft.) to 6.0 m (19.6 ft.) if the Cambie/12th view cone limit of 154.4 m (506.6 ft.) is to be respected.
The applicant has explored ways of reducing the amount of space necessary for rooftop elevator equipment and other building services. First, recent experience in new residential towers with the provision of elevator equipment within the uppermost habitable floor instead of on the rooftop was studied, but this was found to be unacceptable for the abutting dwelling units. Second, improvements in elevator technology were studied to identify the most appropriate one for this building and its programme. As a result, the applicant has determined that a minimum of 7.5 m (24.6 ft.), as compared to 12.8 m (42 ft.) initially proposed, would be necessary for the rooftop mechanical penthouse within a decorative roof.
If we accept a maximum building height of 148.4 m (487 ft.), to meaningfully increase the floor-to-ceiling heights of all 44 habitable floors, and add to that the minimum height of 7.5 m (24.6 ft.) to provide the mechanical penthouse and decorative roof, the total buildingheight would be 155.9 m (511.6 ft.). This would encroach the view cone height limit of 154.4 m (506.6 ft.) by 1.5 m (5 ft.), about one percent of the building's total height.
This proposed 1.5 m (5 ft.) increase in total building height is very modest and well within a reasonable margin of error for view cone height calculations by current technical means. It will only minimally encroach into the view cone and will be barely perceptible to the naked eye. It will also have very limited shadow impact and impact on short views within its surrounding precinct.
In this context, staff believe that the limited encroachment of 1.5 m is a minimal one which is acceptable in relation to the improved livability and the improved slenderness of the building in its upper storeys which can be achieved. A proposed CD-1 By-law amendment is listed in Appendix A which gives discretion to the Director of Planning or Development Permit Board to approve a view cone height limit encroachment, but not exceeding 1.5 m (5 ft.).
The applicant's proposal for an architectural appurtenance, in the form of a relatively transparent glass box, about 2.4 m by 2.4 m (8 x 8 ft.), and 6.1 m (20 ft.) in height, as a skyward extension of the building's architecture, is not supported. This architectural appurtenance is not necessary and it would increase the view cone encroachment to 7.6 m (25 ft.). Staff have made no provision for it in the By-law amendments proposed in Appendix A and in Appendix B we recommend design development that it be removed.
These proposed changes to the form of development represent modest changes to the development application now in process and, if the recommended CD-1 By-law amendments are approved, will be easily incorporated in a revised development application.
Floor Area Calculation Amendment
The current application also proposes an additional minor amendment, to Section 4 (Floor Area and Density), to allow exclusion from floor area and floor space ratio calculations the floors or areas of floors used for heating or mechanical equipment and similar uses. Staff support this amendment, consistent with other recent CD-1 By-laws.
POLICY CONSIDERATIONS
Proposed height increases above the maximum of 137.2 m (450 ft) permitted in the Downtown District, or the 141.7 m (465 ft.) permitted in this CD-1 By-law, would normally be subject to the procedures and requirements of the General Policy for Higher Buildings.
These procedures and requirements are not appropriate or necessary for this application. A total building height of 154.4 m (506.6 ft.) has already been approved by City Council on this site. An increase in maximum building height of 6.7 m (22 ft.), from 141.7 m (465 ft.) to 148.4 m (487 ft.), with no increase in building floor area, is therefore of little consequence in this context. The increase of 1.5 m (5 ft.) in total building height which is proposed, to 155.9 m (511.6 ft.), is too modest to reasonably fall within the parameters of extra requirements in the General Policy for Higher Buildings and therefore staff recommend that the special process related to this be foregone in this case.
APPLICANT COMMENTS
"This application for additional height allows for the accommodation of the technical requirements of a tall building. The provision of height for air conditioning, elevator machinery, and rooftop mechanical equipment are real physical constraints that must be addressed when designing buildings of this stature. In addition, we recognize the great importance of this project within its physical context. The location of this site in the Central Business District, its prominence on Georgia Street and its location adjacent to the Art Gallery Square, demand a proposal of the highest design quality, which must not be compromised. For this reason, we request that Council not only support the accommodation of the technical requirements of tall buildings, but also insist that the architectural integrity of this project be maintained. To this end, this design incorporates a glass sculpture rooftop appurtenance that is integral to this design. Where many projects treat the roof element as a forgotten and leftover space, this project celebrates the termination of the tower with shimmering glass spires. We do not view this artistic statement as `unnecessary', rather an essential design element that completes the structure: a poetic terminus that celebrates the meeting of building and sky. Any proposed encroachment into the 12th and Cambie view cone restriction will be minimal, and the visual benefit of the glass spires greatly outweigh any view impacts. We encourage the City to embrace this opportunity to create the kind of architecture this site demands."
CONCLUSION
Staff have reviewed the new application and conditionally support it. The proposed increase in "habitable building height" will enable the liveability of dwelling units in this central downtown location to be significantly improved. The proposed increase in total in building height will have minimal impact on the Cambie and 12th Avenue view cone. As an alternative to the major view cone intrusion represented by the previous application for a 182.9 m (600 ft.) building, this proposal is strongly preferred.
The Director of Current Planning recommends that the application be referred to a Public Hearing and approved with conditions, including removal of an architectural appurtenance above 155.9 m (511.6 ft.).
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APPENDIX A
801 West Georgia Street (and 687 Howe Street)
DRAFT CD-1 BY-LAW AMENDMENTS
CD-1 By-law amendments will be prepared generally in accordance with the provisions listed below, but are subject to change and refinement prior to By-law posting:
1. Amend Section 3 (Floor Area and Density) by adding the following to sub-section 3.2:
(f) the portion of a floor used for heating and mechanical equipment or other uses similar to the foregoing.
2. Amend Section 4 (Height) by inserting the following as a new sub-section 4.2:
The Director of Planning or Development Permit Board may permit an increase in maximum building height (measured to top of habitable space) to 148.4 m, for the purposes of improving the livability of Dwelling and Hotel Uses.
3. Amend Section 4 (Height) by re-numbering sub-section 4.2 as 4.3 and replacing (c) by the following:
the Director of Planning or Development Permit Board first considers all applicable policies and guidelines adopted by Council, however the Development Permit Board may permit a total building height including mechanical penthouse, decorative roof, architectural appurtenances and aerials not exceeding 155.9 m.
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APPENDIX B
PROPOSED CONDITIONS OF APPROVAL
801 West Georgia Street
Note: These are draft conditions which are subject to change and refinement by staff prior to finalization of the agenda for the public hearing.
(a) THAT the proposed change to the form of development previously approved by Council on June 25, 2002 be approved by Council in principle generally as prepared by Bing Thom Architects Inc., and stamped "Received, City Planning Department, November 27, 2002", provided that the Director of Planning or Development Permit Board, may allow minor alterations to the form of development when approving the detailed scheme of development as outline 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 Director of Planning, or Development Permit Board, who shall have particular regard to the following:
DESIGN DEVELOPMENT
(1) further design development to the massing, articulation and architectural treatment of the upper storeys, including setbacks where possible and appropriate, to maximize the slenderness of the upper portion of the building;
(2) further design development to the mechanical penthouse, decorative roof and related architectural appurtenances to achieve an appropriate rooftop for this building in its physical setting; and
(3) design development to remove the proposed architectural appurtenance, which has the form of a relatively transparent glass box, about 2.4 m by 2.4 m (8 x 8 ft.), and which extends 6.1 m (20 ft.) above the total permitted building height of 155.9 m.
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