TO: Vancouver City Council

SUBJECT: Loading Requirement Standards for New Development

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Relevant Council policy is contained within the Parking By-law.

PURPOSE

This report brings forward proposals to amend the Parking By-law to formalize several current practices with respect to loading requirements and introduce standards where necessary to respond to current needs.

SUMMARY

After detailed studies, staff recommend changes to the Parking By-law with respect to the loading requirements for certain classes of new developments. Based on experience, these would generally reduce total requirements for office and medical office uses or substitute smaller-sized spaces for larger ones, specify loading requirements for multiple residences [as has been the practice where rezoning occurs], and introduce threshold sizes for all uses below which there would be no loading requirement. In addition, new requirements are proposed for large-sized retail, hospital, wholesale, storage warehouse, and manufacturing uses where service by over-sized delivery vehicles must be accommodated. Finally, to help address the many occurrences whereby single-unit trucks have excessive height and cause safety concerns, a requirement of increased clearance height is proposed. See Appendix A for the substance of changes to various By-law sections.

BACKGROUND

Provisions for loading facilities for developments are contained within Section 5 of the Parking By-law. In the By-law there are provisions for two sizes of loading space. Class A spaces are for the use of cars, vans, and pick-up trucks, typically used by repair services, contractors, couriers, and some other delivery operations. Class B spaces are for the use of single-unit trucks and other medium-sized vehicles, typically 7.3 to 8.5 metres [24 to 28 ft.] in length, most commonly used for delivery activities. There is no provision for large loading spaces [i.e. for semi-trailers, longer than 8.5 metres] although in certain instances they are needed.

At present there are different provisions for five general use classifications. For Dwelling Use there is no requirement, even though there is a significant loading need for large residential projects. For Office Use, including Health Care Office, there is a relatively high requirement for medium-size truck loading spaces (Class B), but no requirement for smaller service/courier van (Class A) spaces. Also, for most uses, a Class B loading space needs to be provided no matter how small the building. The relaxation provisions of the Parking By-law are frequently used to reduce the number and/or size of loading spaces. With updated standards staff would be better able to adhere to the By-law's requirements.

DISCUSSION

Number of Loading Spaces for Residential Use

The Parking By-Law has no provision for loading for residential development. A staff study in the West End some years back determined that there is a need for loading in large, multi-unit buildings. Since then, loading has been made a condition of approval for numerous rezoning applications, e.g. the Concord lands, Coal Harbour, Bayshore Gardens, and Arbutus Gardens. The ratio applied was one Class B loading space per 200 dwelling units, with the initial loading space required at a threshold size of 100 units.

For consistency and to address needs beyond these locations, staff recommend that the Parking By-law be amended to include a loading requirement at a rate of one Class B space per 200 dwelling units, with fractional requirements rounded to the nearest whole number. If one or more parcels of land include more than one building and the buildings share a common parking facility, the total number of dwelling units for all such buildings will form the basis for calculating loading.

Table 1 - Proposed Multiple Dwelling Use Class B Loading Requirement

The standard proposed above would be relaxable per general by-law provisions.

Number of Loading Spaces for Office Uses

Studies by staff of office loading demands in Downtown and Central Broadway determined that the existing Class B `truck' loading standard for office uses exceed the demonstrated need. Furthermore, there is no provision for Class A `courier' spaces, though demand for these is considerable. The Development Permit Board and the Director of Planning, on the advice of the General Manager of Engineering Services, typically have relaxed the Class B requirements for large buildings and substituted Class A spaces in lieu. It is therefore recommended that the Parking By-Law be amended to reflect the observed need, and current practice. The following table details the proposed changes to the By-law.

Table 2 - Proposed Office Uses Loading Requirements

Office Use GFA (square metres)

Class A (car/van)

Class B
(truck)

Class A

Class B

Less than 500

0

1

0

0

500 to 1000

0

1

0

1

1000 to 5000

0

1-2

1

1

5000 to 7500

0

2-3

1

2

7500 to 10,000

0

3-4

2

2

10,000 to 15,000

0

4-5

2

3

15,000 to 20,000

0

5-7

3

3

20,000 to 28,000

0

7-10

4

3

Greater than 28,000

n/a

+1/2800*

+1/7500 for any portion

+1/15,000 for any portion

fractional requirements rounded to the nearest whole number above zero.

The standard proposed above would be relaxable per general by-law provisions.

Small Building Exemption

Currently all uses with a loading requirement require a space no matter how small the development. This has proven onerous for many small sites and has stymied development, except where a relaxation was granted. Particularly problematic are mixed-use proposals whereby multiple loading spaces would have to be provided due to small-scale uses falling in separate by-law classifications, while the combined demand would be adequately served by only a single loading space. In most of these cases a commercial lane is available to accommodate the limited loading needs of the site. It is recommended for all uses or combination of uses less than 100 square metres GFA, or for office uses less than 500 square metres GFA, there should be no loading requirement.

Size of Loading Spaces

Small-sized Class A `Courier' Loading Spaces

The current size, which requires a length the same as for a regular car space (5.5 metres) but with a minimum width of 2.7 metres and a minimum height of 2.3 metres , is retained.

Medium-sized Class B `Truck' Loading Spaces

A study of medium-sized delivery trucks currently in use found that approximately 20 to 25 percent exceeded the City's 3.5 metre clearance requirement. These included vehicles for a range of uses, particularly food delivery and furniture delivery. The minimum required length and basic width are 8.5 and 3.0 metres, respectively.

It is proposed that the height of the current Class B loading space be increased from 3.5 metres to 3.8 metres to better reflect the current height of vehicles, except for the first Class B loading space required (which would only have to supply the present 3.5 metre minimum clearance). This would avoid impacting small developments, with their limited loading demands. An exception to this would be that if loading access is taken from other than a local street or lane [i.e. from a street with a directional dividing line or lines] then even the first loading space required would have to supply the 3.8 metre minimum clearance in order to avoid safety problems from some delivery vehicles not being able to enter and, thus, being forced to back up into traffic.

Large `Semi-trailer' Loading Spaces

Although semi-trailers or other vehicles larger than Class B routinely serve larger-sized developments of certain building classifications, the Parking By-law at present does not include requirements for them. The most common uses which are routinely served by larger vehicles are grocery and drug stores, liquor stores, and other retailers in larger premises, as well as hospitals, wholesalers, storage warehouses, and manufacturing plants.

Experience has shown that grocery and drug stores, for example, that cross the 2000 square metres size threshold normally require service from semi-trailers. It is proposed that the City require loading spaces larger than Class B-sized, and attendant access and manoeuvringaisles, to accommodate semi-trailers or other large-sized vehicles, for retail, grocery or drug store, liquor store, hospital, wholesale, storage warehouse, or manufacturing uses which separately or in combination equal or exceed 2000 square metres of gross floor area. A second space for large trucks would be triggered at 5000 square metres. Since semi-trailers or trailer units often remain in bays for hours at a time, accommodation for them should be in supplement to other loading spaces required.

To accommodate large trucks, a new "Class C" loading space is proposed, equivalent to a WB15 [mid-sized] semi-trailer. A Class C space would be a minimum of 17 metres long and 3.5 metres wide, and have a minimum 4.3 metres of vertical clearance. It is expected that larger and/or additional spaces would be provided if required to serve the site. Similarly, if the new requirement posed an unnecessary hardship, then the approving authorities would be able to relax either the number of Class C loading spaces or the size of a space. All access paths would maintain a minimum vertical clearance of 4.3 metres as well, and ensure adequate width for circulation. For spaces designed at a right angle from the manoeuvring aisle, an aisle of a minimum 14 metres in width would be required; for angles less than 90 degrees, or where a space with reduced dimensions is accepted, a reduction in the aisle width may be approved.

SURVEY OF OTHER CITIES

Staff have surveyed several other cities to gain knowledge of their requirements and experience. Responses and website information were gathered from Toronto, Ottawa, Saskatoon, Calgary, Edmonton, and Victoria, as well as Los Angeles, San Francisco, Seattle, and Portland. Results are summarized in Appendix B.

Of greatest interest are the ways other cities are dealing with the issues highlighted in this report. `Truck' loading space standards vary widely, from very low requirements in San Francisco and Calgary to high requirements in Edmonton. The proposals for Vancouver office uses are in the middle. Many cities prescribe a mix of loading space sizes for office uses, as proposed for Vancouver.

The standard proposed for Vancouver multiple residential development is at an intermediate level, not requiring a loading space until there are a minimum of 100 dwelling units. The thresholds proposed for requiring loading for other uses likewise fall amidst other cities' levels.

Toronto, Ottawa, and Seattle specify requirements for semi-trailers for certain applications. These include large commercial developments and hospitals, as well as industrial, warehouse, and wholesaling uses where over-sized vehicles are normally expected. The proposals for Vancouver are consistent with the requirements of these cities.

The height clearance for standard delivery trucks [Class B] varies little among the cities surveyed, from 4.0 to 4.3 metres, all exceeding Vancouver's 3.5 metre standard. Still, staff believe the City should move cautiously in increasing its clearance standard, since vehicles in this category are almost always under 3.8 metres in height and the higher the clearance the greater the potential negative impacts on urban design and cost. Staff support the practice of San Francisco in requiring a lesser clearance for developments where only one truck space is provided, and recommend no increase in clearance where the requirement is for a single Class B loading space for most circumstances.

PUBLIC INPUT

The recommendations presented in this report were disseminated to some 50 large businesses, distributors, industries, delivery services, developers, trade associations, and municipalities. Only 3 responses were received, from the municipal staff of Surrey and Richmond, and from an architect on behalf of the Architectural Institute of B.C. The feedback was largely supportive, with Richmond suggesting that Vancouver might need to increase the multiple residential requirements. The architect was concerned that cumulative requirements for loading not become excessive and that requirements for semi-trailers would be difficult to satisfy on smaller sites served only by smaller streets and lanes. He also advised the City to provide adequate lead time to phase in changes so projects at an advanced stage of design are not affected.

In addition, staff surveyed managers for approximately two dozen recently built multiple residential projects in the Downtown Peninsula, City Gate, and Collingwood Village. Property managers representing 13 sites responded. Their comments stressed the importance of having on-site loading provision, and the need for curb space along adjacent streets where trucks and service vehicles can stop. A letter from Concert Properties on behalf of 5 rental buildings in Collingwood Village stressed the importance of providing enough on-site loading, given the higher turnover rates in rental buildings [roughly 4 to 7% of units each month and involving both a move out and a move in]. Further comments stated the need for greater clearance height for trucks to be able to access the loading dock, for attention to the location of loading facilities to ensure they are convenient, for attention to security arrangements [so the loading space can indeed be available for use], and for easier linkages between the loading space and elevator or ground floor units, eliminating obstacles such as stairs.

In response, staff believe the proposals being recommended strike a good balance of addressing needs while keeping development obligations affordable. When reviewing development applications staff will give particular attention to secure loading that is conveniently located and accessed. It is noted that several of the buildings with "not enough" loading were larger rental buildings. Staff do not propose increasing the amount of on-site loading for rental applications due to the drawbacks [for example, this could make rental housing less affordable, and if strata titling were to occur then provisions could be excessive]. However, staff will endeavour to supply increased on-street loading opportunities adjacent to buildings with substantial amounts of rental units. Finally, attention will be given to ensure phase-in of changes would not cause serious impacts to current applications.

CONCLUSION

A number of issues related to loading requirements for developments have been identified over a number of years. To address these issues, staff who process development applications have regularly used relaxation provisions in the Parking By-law. Also, tailor-made CD-1 by-laws have incorporated loading standards that reflect some of the new standards recommended in this report. Given these practices, and having considered local experiences and study results, reviewed other cities' practices, and consulted with the public and various City service groups, the General Manager of Engineering Services therefore recommends the changes to loading requirements as contained within this report.

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APPENDIX A - TEXT AMENDMENTS

The following sections of the Parking By-law are proposed for amendment:

Section 2

A new definition is required for a "Loading Space, Class C". This is a designated space, clear of any driving or manoeuvring aisles or means of emergency egress, for the loading or unloading of semi-trailers or other vehicles of overall length greater than 8.5 metres used for delivery activities.

Furthermore, the definition of "Loading Space" should include Class C along with the currently-mentioned Class A and Class B loading spaces.

Section 5.2.1

The existing wording specifies no loading space requirement for dwelling use.

The amendments to be prepared for enactment would specify no requirements for Class A loading, regardless of the size of the development. For Class B loading, no space would be required for less than 100 dwelling units, a minimum of one space for 100 to 299 dwelling units, a minimum of two spaces for 300 to 499 dwelling units, and so on for each increment of 200 dwelling units [see Table 1 in the body of the report]. Where one or more parcels of land include multiple buildings which share a common parking facility, loading would be required on the basis of the total number of dwelling units.

Section 5.2.3

The existing wording includes Office Uses in the Building Classification column.

The amendments would include incorporation of a new section for Office Uses, specifying minimum provisions of Class A and Class B loading spaces for development sizes as set out in Table 2 in the body of the report. Note that there would be no requirements for developments of less than 500 square metres gross floor area.

Sections 5.2.3, 5.2.4, and 5.2.5

The existing wording does not provide for any exemption from loading requirements for small-sized developments.
The amendments would include a provision to not require any loading for developments less than 100 square metres gross floor area for all uses under sections 5.2.4 and 5.2.5, and for all non-office uses listed under section 5.2.3.

Section 5.2.3 and 5.2.5

Some of the uses under these sections could require a new Class C loading space or spaces. The amendments would include a requirement to provide a Class C loading space where retail, grocery or drug store, liquor store, hospital, wholesale, storage warehouse, ormanufacturing uses, separately or in combination, equal or exceed 2000 square metres of gross floor area. A second Class C space would be required at 5000 square metres.

Section 5.5.1.2

Class B loading spaces require a 3.5 metre minimum height, which may be reduced by up to 30 centimetres by the Director of Planning in consultation with the City Engineer.

The amendments would increase the minimum height from 3.5 to 3.8 metres, except for applications where only one Class B space is required and access to loading is from a lane or local street [i.e. not from a street with a directional dividing line], in which case the existing 3.5 metre minimum would continue to apply.

New Section 5.5.1.3

The Parking By-law has no provisions to require accommodation for over-sized loading vehicles [i.e. larger than a Class B vehicle, with a required length of 8.5 metres].

The amendments would incorporate a new section which would prescribe the dimensions for Class C loading, such space to be of minimum 17.0 metres in length, 3.5 metres in width, and 4.3 metres in height. The Director of Planning, in consultation with the City Engineer, would have the discretion to reduce the minimum required width or height by up to a maximum of 30 centimetres, and the minimum required length by up to 3.0 metres, provided such dimensions remain adequate to accommodate the largest vehicles intended to occupy the space while loading. The manoeuvring aisle for right angle loading would be a minimum of 14.0 metres in width, although, this may be reduced by the Director of Planning, in consultation with the City Engineer, for access to Class C loading which is at an angle of less than 90 degrees off the manoeuvring aisle, or where a Class C space of reduced dimension is approved. Access routes to and from a Class C space would be designed to the satisfaction of the Director of Planning, in consultation with the City Engineer.

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