POLICY REPORT
DEVELOPMENT AND BUILDING
Date: February 10, 2003
Author/Local: A. Duncan/6269
RTS No. 02963
CC File No. 5306
Council: February 25, 2003
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TO:
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Vancouver City Council
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FROM:
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Director of Current Planning
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SUBJECT:
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CD-1 Text Amendment - 1966 East 19th Avenue
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RECOMMENDATION
A. THAT the application by JMArchitecture to amend CD-1 By-law No. 4296 for 1966 East 19th Avenue (Lot 1, Block D and 13, Plan 13938, District Lot 195, except portion in S.R.W. Plan 17162. PID - 007-990-294) to permit the redevelopment of the northernmost building on the site to increase the number of residential units for low-income seniors, including congregate housing, to up to 123 units, be referred to a Public Hearing, together with:
(i) plans received August 14, 2002;
(ii) draft CD-1 By-law provisions, generally as presented in Appendix A; and
(iii) the recommendation of the Director of Current Planning to approve, subject to conditions contained in Appendix B.
FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 By-law, generally in accordance with Appendix A, for consideration at Public Hearing.
B. THAT, subject to approval of the rezoning at a Public Hearing, the Noise By-law be amended as set out in Appendix C; and
FURTHER THAT the Director of Legal Services be instructed to bring forward the amendment to the Noise By-law at the time of enactment of the Zoning By-law.
GENERAL MANAGER'S COMMENTS
COUNCIL POLICY
The Zoning and Development By-law No. 3575 defines congregate housing as follows:
"Special Needs Residential Facility - Congregate Housing, A building, containing residential units specifically to accommodate seniors as they age, with separate common areas for dining and socializing, and where support services are provided."
On May 8, 1989, Council approved the following community development objectives as the basis of the City's social housing policy:
· Maintain and expand housing opportunities in Vancouver for low- and moderate-income households, with priority being given to Downtown lodging-house residents, elderly people on fixed and limited incomes, the physically and mentally disabled, and single-parent families with children.
· Encourage the distribution of acceptable housing forms and affordable shelter costs equally among all residential neighbourhoods of Vancouver.
Other relevant Council policies for the site include:
· Kensington-Cedar Cottage Vision, adopted in 1998, which supports low-rise forms of housing for seniors.
· Congregate Housing for Seniors Guidelines, adopted February 19, 2002.
· Zoning and Development By-law Additional Regulations (Section 11.17) for Special Needs Residential Facility - Congregate Housing.
PURPOSE AND SUMMARY
This report assesses an application to permit the redevelopment of the northernmost of three existing buildings on the subject site to increase the number of residential rental units for low-income seniors, including a component of congregate housing, to up to 123 units at a floor space ratio (FSR) of 1.27.
Staff support this application which will increase affordable rental housing opportunities for seniors on a site that can accommodate the form of development required for the proposed use.
Staff recommend that the application be referred to Public Hearing and that it be approved subject to conditions.
DISCUSSION
Background: The site was rezoned from RS-1 to CD-1 (41 A) in 1967 and was developed with 71 units in two phases completed in 1969 and 1972.
Policy Context: Congregate Housing text amendments and guidelines for congregate housing for seniors and related parking by-laws were adopted by Council on February 15, 2002. The guidelines' site selection criteria (section 2.2) support this location to a degree in that it has good access to public transit and community services (Trout Lake Community Centre). The Kensington-Cedar Cottage Vision, adopted in 1998, allowsconsideration for seniors low-rise housing and suggests that these should be located near local shopping and transit, and scale and design should fit in with the neighbourhood.
Although the site has limited access to shopping, the New Chelsea Society provides minibus transportation for residents to access health care and for shopping and recreational outings. The adjacent John Hendry Park provides a comfortable walking environment.
Use: The application proposes to increase the total number of rental units for low-income seniors from 71 to up to 123, to be developed and to continue to be operated by the New Chelsea Society, a non-profit association with other similar facilities in the Lower Mainland. The northernmost building would be replaced with a three and a half storey building with up to 74 new one- and two-bedroom units, including a caretaker's suite on the first floor. The 20 one-bedroom and 29 bachelor units in the two remaining buildings would ultimately be used to house the residents of another facility operated by the Society at 3075 Nanaimo Street which is also proposed to be replaced with a new facility by the Society in the future.
Up to 18 of the new units are expected to be for congregate housing but the design and the CD-1 zoning will accommodate flexibility so the Society can increase or decrease the congregate housing capacity within the City's guidelines. Classified as a SNRF (Special Needs Residential Facility), congregate housing fills a significant gap in providing housing for seniors who want or need some support but do not require licensed care. The use involves the provision of housing with communal meal service, usually complemented by on-site laundry and light housekeeping services and 24-hour emergency monitoring. In addition, homemakers and health care services may be provided by outside agencies one or more days a week as needed. Unlike licensed care facilities, no medical staff are available on-site. Consequently, this housing is not licensed or regulated. Staff support this use which fills the gap between independent housing and multi-level care, provides a type of housing that presently is needed in this area of the city, and responds to the trend toward significant increases in the proportion of seniors who may be seeking rental, serviced housing. In this case, residents of this facility in independent living units will be able to transition more smoothly into congregate housing when necessary, without the disruption of having to seek out a new facility elsewhere.
Density: The application proposes to increase the density from the existing 0.7 floor space ratio (FSR) to 1.27. The FSR was initially indicated to be 1.25 but this changed to 1.27 when the FSR exemptions for SNRFs were recalculated by staff. Recommended development permit conditions will result in a building at 1.27 FSR that is actually more compact than illustrated in Appendix E.
The adjacent CD-1 zoned site to the west permits an FSR of 0.7, the RT-5 zone to the west, facing onto 19th Avenue, permits a maximum FSR of 0.60 which is relaxable to 0.75 and theRS-1S zone to the east allows a maximum FSR of 0.60. Although the proposed density is greater than the surrounding context, the additional density is sought primarily to provide more livable residential units for seniors at low-end rates and the building form and siting have been carefully considered to fit the context of neighbouring development.
Form of Development: The Urban Design Panel reviewed this application. Although concerns were raised about some aspects of the form of development, the Panel strongly supported the height, use and density. The architect is already revising the plans to respond to their comments and positive criticisms and to comments provided by staff which are included as conditions in this report. Consequently, staff are confident that an acceptable form of development can be achieved. (Refer to plans submitted at the time of application:
Appendix E.)
Parking: The proposal includes a combination of underground (11 existing and 17 new) and surface (14 new) on-site parking spaces for a total of 42. Engineering staff recommend a parking requirement of one stall for every four units which for this site would be 30 spaces. Therefore, the proposal exceeds the minimum requirement for the site. This is supported by neighbours who advised at an information meeting held by the New Chelsea Society on May 28, 2002 that on-street parking was their greatest concern, primarily due to the activities in John Hendry Park.
Community Amenity Contribution (CAC): On January 28, 1999, Council approved an interim City-wide CAC Policy, which applies to private rezoning applications (with some exceptions), to provide funds for additional community facilities needed for new residents. CACs are based on the increase in permitted density on a site. The CD-1 by-law for this project does not specify a permitted density. However, the project was developed to a FSR of 0.70 so the increase in density would be 0.57 FSR. This would result in a CAC of $91,832.
Provision of housing opportunities for seniors on fixed incomes or in need of support continues to be one of the City's social housing priorities. The proposal includes retention of 49 units. Twenty-three units are to be demolished and replaced by up to 74 new units, some which will be congregate housing. It is understood that ultimately the retained units will be replaced.
Regarding exemptions from DCL and CAC payments, the applicant has offered to enter into a housing agreement to maintain current rents for approximately 37 of the 49 retained units (30 percent of the total number of units on site). Under the DCL By-law and the City's CAC policy, social housing is exempt from both, where a minimum of 30 percent of the total number of units are occupied by persons receiving government paid assistance and in respect of which a covenant restricting the use to such housing is in favour of and has been acceptedby the City and where the owner, if a non-profit organization, is eligible for a government shelter subsidy. The Director of the Housing Centre supports DCL and CAC exemptions for New Chelsea if these occupancy requirements are met.
In terms of any future redevelopment of the 49 existing units to be retained, the Director of the Housing Centre emphasizes the Society's continued need to satisfy the stipulations of DCL and CAC exemptions, that being 30 percent of units being occupied by persons receiving government paid assistance. A new housing agreement will be needed at the point where the existing units are to be demolished and replaced.
CONCLUSION
Planning staff recommend that this application, which will increase affordable rental housing opportunities for seniors on a site that can accommodate the form of development required for the proposed use, be approved subject to conditions.
LINK TO APPENDIX E
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APPENDIX A
DRAFT AMENDMENTS TO CD-1 BY-LAW NO. 4296*
Use
Density
Height
Parking
*Note: The CD-1 by-law format will be updated.
APPENDIX B
PROPOSED CONDITIONS OF APPROVAL
(a) That the proposed form of development be approved by Council in principle, generally as prepared by JMArchitecture and stamped "Received City Planning Department August 14, 2002", provided that the Director of Planning may allow minor alterations to this form of development when approving the detailed scheme of development as outlined in (b) below.
(b) That, prior to approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning, who shall have particular regard to the following:
(i) design development to establish a more identifiable entry to the building;
Note to applicant: Relocating the main entry to the East 19th Avenue facade is recommended. Also note that fire department access cannot be provided from the lane.
(ii) design development to enhance the overall roof expression by minimizing its apparent scale relative to the neighbouring residential context;
Note to applicant: This could be achieved by deleting the proposed squared edge gable treatment and reducing the height of the secondary dormers.
(iii) design development to enhance the expression the East 19th Avenue facade as part of residential streetscape;
Note to applicant: This could be achieved by emphasizing the scale and rhythm of the detached residential streetscape.
(iv) design development to improve the livability for units #106, #107, #201 and #301 by relocating/reorientating to improve daylight access and privacy;
(v) design development to take into consideration the principles of CPTED (Crime Prevention Through Environmental Design) having particular regard to reducing opportunities for theft in the underground, break and enter, and mischief and vandalism such as graffiti;
(vi) design development to include a complete Landscape Plan illustrating thelandscape treatment on the development site and on the public realm and to retain the three existing trees located at the south end of the development site. The Landscape Plan submission should include the following information:
(1) a complete plant list noting common name, botanical name, size and quantity of all proposed plant materials;
(2) the public realm (to the curb and/or street) noting all existing street trees and public utilities such as lamp posts, hydro poles, fire hydrants, etc.;
(3) all existing trees 20 cm caliper or greater clearly illustrated and accurately located on the Landscape Plan and noted either retained or removed;
Note to applicant: The two Maples are located on City property, not on the development site.
(4) provision of dimensioned tree protection barriers (illustrated on the Landscape Plan) around all existing trees 20 cm caliper or greater to be retained on the development site, all existing neighbouring trees 20 cm caliper or greater located within 2 m of the property line and around all existing street trees located adjacent to the development site as per City of Vancouver Guidelines;
(5) a Certified Arborist assessment of the all existing on-site trees (which may be impacted by the proposed development), to the satisfaction of the Landscape Architectural Technician; and
(6) additional street trees, where possible, to the satisfaction of the General Manager of Engineering Services and the General Manager of the Park Board.
(c) That, prior to enactment of the CD-1 By-law, and at no cost to the City, the registered owner shall:
(i) make arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for:
(1) provision of additional lane dedications or rights-of-way to ensure adequate 2-way traffic flow in the lane;
Note to applicant: A 3:1 taper at the lane offset is needed to ensure proper two-way traffic flow.
(2) paving of the laneway adjacent to the site;
(3) widening of the existing 1.52 m (5 ft.) right-of-way on site, (ex plan #9599) to 3.05 m in width; and
(4) lot consolidation or other means if required for use of "that part of Lot 1 in statutory right-of-way plan 17162" for parking as shown on the plans received August 14, 2002.
(ii) make arrangements to the satisfaction of the General Manager of Engineering Services for undergrounding of all new utility services for this site, including a review of any required overhead lines needed, to determine the impact, if any, on the neighbourhood.
(iii) enter into a Housing Agreement, to the satisfaction of the Manager of the Housing Centre and the Director of Legal Services, to comply with the exemption provisions for social housing in the relevant DCL By-law and the Interim City-wide CAC Policy.
APPENDIX C
DRAFT AMENDMENTS TO NOISE BY-LAW NO. 6555
Amend Schedule B by adding the following:
"41A [CD #] 4296 [By-law #] 1966 East 19th Avenue [Approximate Location]"
APPENDIX D
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This 4989 m² (53,703 sq. ft.) site is comprised of one parcel on the south side of East 19th Avenue. The site has a frontage of 37.2 m (122 ft.) and a depth ranging between 123.5 m (405.1 ft.) and 148.9 m (488.44 ft.) It was rezoned to CD-1 (41A) from RS-1 in 1966 and was developed in two phases, completed in 1969 and 1972, with 71 bachelor and one-bedroom units of low-income seniors housing. The two existing buildings to remain are 10.73 m (35.2 ft.) and 9.8 m (32.2 ft.) at their highest points.
The property slopes down from south to north and west to east. There is a retaining wall along much of the west property line and the property is significantly lower than the adjacent townhouses to the west, a CD-1 zoned multiple dwelling complex built at 1.0 FSR. The elevation of the peaks of these townhouses range from 43.08 m to 54.07 m (compared to the proposed development ranging from 46.20 m to 50.53 m). Also to the west is a row of RT-5 zoned houses along 19th Avenue facing the park. Excluding the cottage adjacent to the site, whose owner has expressed an interest in redeveloping, the average ground-to-peak height of these houses is 8.03 m (26.35 ft.) with the tallest being 12 m (39.37 ft.). John Hendry Park and Trout Lake Community Centre are directly across 19th Avenue to the north. There are RS-1S houses across the lane to the east, fronting onto Hull Street and backing onto the lane separating them from the subject site. The SkyTrain guideway is located directly to the south, between the site and the Victoria Diversion, with the Cedar Cottage MC-1 area beyond that.
Proposed Development
The proposed rezoning would increase the number of rental units for low-income seniors from 71 to up to 123, to be developed and to continue to be operated by the New Chelsea Society, a non-profit association with other similar facilities in the Lower Mainland. The northernmost of the three existing buildings on-site would be replaced with a stepped three and a half storey building, 13.9 m (45.9 ft.) at its highest point above grade. There would be up to 74 new one- and two-bedroom units, including a caretaker's suite on the first floor. Up to 18 of the new units would be for congregate housing but the design and the CD-1 zoning will accommodate flexibility so that they can increase or decrease the congregate housing capacity within the City's guidelines.
The 22 remaining tenants in the building to be demolished are being offered first priority transfer to other accommodations operated by the New Chelsea Society and other non-profit housing groups. These tenants will be assisted in moving to avoid any financial hardship and will be offered first refusal if they want to move into the new project. The 20 one-bedroom and 29 bachelor units in the remaining two buildings would ultimately be used to house the residents of the New Chelsea Lodge at 3075 Nanaimo Street, also operated by the NewChelsea Society, that would be an improvement in housing for them and would allow redevelopment of the Nanaimo Street site.
Public Input: The New Chelsea Society invited nearby residents, by letter dated May 10, 2002, to a public information meeting on their proposed development at the Trout Lake Community Centre on May 28, 2002. Approximately fifty-six people attended who were generally supportive of the application. The only concern was that adequate parking be provided on-site. Subsequent to filing an application, a rezoning information sign was posted on the site on October 15, 2002. The neighbour in the house immediately to the west of the site met with staff and the New Chelsea Society to discuss the redevelopment potential for his house as part of the New Chelsea project or under the current RT-5 zoning. Besides him, no other phone calls were received and no one else came to City Hall to view plans in response to the sign or the notification letter mailed to property owners within a two-block radius of the site. One e-mail was received from a neighbour who expressed hope that existing trees on-site can be retained.
Comments of the General Manager of Engineering Services: The General Manager of Engineering Services has no objection to the proposed rezoning, provided that the applicant complies with conditions in Appendix B.
Park Board Comments: The only comment from the Park Board was that the two existing street trees were to be retained.
Environmental Protection Branch Comments: The Environmental Protection Branch received a soil profile for this site which indicates there are no soil issues and on that basis supports the rezoning.
Seniors' Advisory Committee Comments: Noting that the Committee withheld a recommendation until they could see revised drawings from the architect at the development permit stage, the Committee's comments have been passed on to the applicant or incorporated in recommended development permit Conditions of Approval (Appendix B).
Public Benefit: The proposal increases the amount of affordable rental housing for seniors and introduces affordable congregate housing for seniors.
Urban Design Panel Comments: The Urban Design Panel reviewed this proposal on September 18, 2002 and supported the proposed use, density and general form of development and offered the following comments:
"The Panel strongly supported this application. Most Panel members found this site ideally suited for the use which addresses a real social need.
The majority of Panel members had no problem with the proposed height, noting the strong effort that has been made to mitigate the height on the 19th Avenue frontage. There was a suggestion that the scale along 19th Avenue might be modified to be more representative of single family homes.
Concerns were expressed about the awkwardness of the blunt cut-off at the end of the buildings, suggesting that greater attention should be given to the end elevations as well as the transition from the higher to the lower building. It was suggested a hipped or gable form might be a more appropriate way to deal with the end elevations.
The Panel found the main entry to the building too subdued and almost like a back door. A much stronger presentation to the street was recommended, even making the building wider at the street if necessary to provide a front door that leads more directly to the elevator. There was also a recommendation for more glazing at the front entry to the independent seniors' component, noting there might be an opportunity to open it up to create more eyes on the lane.
There was a recommendation to cover a portion of the outside terraces. As well, to consider some sort of rail or hedging treatment along those edges to provide a buffer next to the lane.
Several Panel members were concerned about the lack of contained open space in the proposal. A little more developed common outdoor space, either at grade or on the roof, would be a great asset to the project.
There was a recommendation that some of the suites, particularly 301 and 201, might be given a little more pleasant outlook.
With further development of the site amenities, and particular attention paid to the entrance sequences, most Panel members thought the proposal could earn the 1.25 (revised to 1.27) FSR being sought. By a vote of 3-2, the Panel supported the application being returned for its review at the Development Application stage."
Environmental Implications: Nearby access to transit, park, community centre and commercial services may reduce dependence on use of automobiles.
Social Implications: There are no major positive or negative social implications to this proposal. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.
Comments of the Applicant: The applicant has been provided with a copy of this report and has no additional comments.
LINK TO APPENDIX E
APPENDIX F
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address
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1966 East 19th Avenue
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Legal Description
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Lot 1, Block D and 13, Plan 13938, District Lot 195, except portion in S.R.W. Plan 17162. PID - 007-990-294
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Applicant
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JMArchitecture
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Architect
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John Castell, JMArchitecture
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Property Owner
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New Chelsea Society
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Developer
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New Chelsea Society |
SITE STATISTICS
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GROSS
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DEDICATIONS
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NET
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SITE AREA
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4989 m² (53,703 sq. ft)
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N/A
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4989 m² (53,703 sq. ft) |
DEVELOPMENT STATISTICS
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DEVELOPMENT PERMITTED UNDER EXISTING ZONING
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PROPOSED DEVELOPMENT
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RECOMMENDED
DEVELOPMENT (if different than proposed)
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ZONING
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CD-1 (41A)
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CD-1 Amended
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USES
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Housing for seniors (existing)
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Dwelling units and congregate housing for seniors
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MAX. FLOOR SPACE RATIO
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0.7 (existing)
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1.27
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MAXIMUM HEIGHT
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14.0 m (45.9 ft.)
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PARKING SPACES
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As per Parking By-law
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