POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Text Amendment - 6450 Clarendon Street

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Relevant Council Policies for this site include:
· Victoria-Fraserview/Killarney (VFK) Community Vision, adopted by Council January 2002, which supports:

· Congregate Housing for Seniors Guidelines, adopted by Council in February 2002, which guide the planning and design of congregate housing; and
· Interim City-wide Community Amenity Contribution (CAC) Policy, approved by Council on January 28, 1999, which applies to all private rezoning applications received as of December 8, 1998, and provides funds for additional community amenities needed for new residents.

PURPOSE AND SUMMARY

This report assesses an application to amend the CD-1 Comprehensive Development District zoning for the site shown on the map on page 3. The application proposes amendments which would allow sub-area A (the south portion of the site) to be developed with 105 units of congregate housing at slightly greater density and heights than previously approved.

Staff support the proposal which is consistent with the Victoria-Fraserview/Killarney Community Vision and would increase the range of affordable rental housing opportunities for seniors.

Staff recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions.

DISCUSSION

Background: In 1961, the site was rezoned to CD-1 for development of low-cost rental housing for seniors. In 1999, the CD-1 was amended to allow redevelopment of the site for non-market housing for seniors on sub-area A and market dwelling units on sub-area B. Later that year, the CD-1 was further amended to permit seniors rental congregate housing on sub-area B, and these congregate units have been built and are now occupied. Permitted development on sub-area A was not pursued.


Use: The proposed rezoning would allow the entire site to be developed with congregate housing. Ninety units of market rental congregate housing have already been built on sub-area B and the rezoning would allow another 105 units of congregate housing to be built in two separate buildings on the remainder of the site (sub-area A). One building would provide 43 market rental congregate housing units and the other would provide 62 non-market rental congregate units.

The Baptist Housing Society which owns this site is seeking funding for the 62 units under BC Housing and Vancouver Coastal Health Authority's Independent Living BC program (ILBC). These funds would allow rents to be geared-to-income. Sub-area A is already subject to a housing agreement which will need to be amended to address the proposed change in type of seniors housing.

Density: The CD-1 By-law permits separate maximum densities for each sub-area: 1.25 FSR for sub-area A and 1.35 FSR for sub-area B. The application proposes an increase in density to 1.43 FSR for sub-area A to provide the additional amenity space requirements of congregate housing which are not excluded from floor area calculations. Five extra units of housing are also proposed. Staff support the additional floor area of 967 m² (10,410 sq. ft.) as the additional amenity space would increase livability for the congregate housing residents. Staff also support the additional units which are being proposed to meet the ILBC program requirements and to provide enough market units to help off-set the cost of some affordable units.
Form of Development: Staff and the Urban Design Panel are supportive of the form and the residential character of the development with further design development as noted in Appendix B.

The CD-1 By-law permits a maximum height of 12.2 m (40 ft.) in sub-area B and a maximum height of 12.8 m (42 ft.) in sub-area A, except for the portion of buildings that would front onto Clarendon Street where the height is limited to 10.5 m (35 ft.). The application proposes that the maximum height in sub-area A be increased to 13.2 m (43½ ft.) and that the height limit along Clarendon Street be increased to the same height as permitted in sub-area B (12.2 m). These increases are proposed to accommodate the additional height requirements of the amenity areas (dining rooms, lounges) which normally have extra high ceilings. A view analysis has been provided and indicates that the proposal will not have any significant impacts on neighbouring properties; however, three neighbours to the south are concerned about the increased height. Design development conditions are recommended which address these concerns by reducing the scale and massing of the buildings (See Appendix B).

The setbacks in the proposal are consistent with the provisions of the CD-1 By-law except along Clarendon Street where the application proposes an entrance court (including access to the underground parking) and a porte cochere for passenger drop-off that would encroach on the setback. Staff support a relaxation of this setback to provide the residents with good, safe access. There are no homes immediately across Clarendon Street that would be affected by the location of the porte cochere.

Parking: Parking and loading would be provided in excess of the existing standards in the CD-1 By-law. Engineering staff are satisfied with the amount of parking proposed and recommend that the exemption and relaxation provisions of the Parking By-law be available to development on this site.

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 the additional community facilities needed for new residents. Normally, CACs are based on the increase in permitted density on a site.

However, sub-area A is currently covered by a housing agreement to ensure the provision of rental housing and the applicant has offered to enter into a further housing agreement to secure the rent levels for more than 30 percent of the units in sub-area A. Under the DCL By-law and the City's CAC policy, social housing is exempt from both, "where at least 30% of the units are to be occupied by persons receiving government paid assistance (i.e., SAFER or other funds), where a covenant restricts the use to such housing, and where the owner, if a non-profit organization, is eligible for a government shelter subsidy". The project will qualify for CAC and DCL exemptions, if it is successful in acquiring ILBC funding.

CONCLUSION

Staff support the use, density and form of development proposed in this application. The proposal will expand the range of low to moderately-priced, rental seniors congregate housing units available in this area of the city and will not unduly impact the livability of the adjacent neighbourhood.

The Director of Current Planning recommends that the application be referred to Public Hearing and approved, subject to proposed conditions presented in Appendix B.

- - - - -

APPENDIX A

DRAFT AMENDMENTS TO CD-1 BY-LAW NO. 3914

Note: A by-law will be prepared generally in accordance with the provisions listed below, subject to change and refinement prior to posting.

Section 2 - Uses
· Delete section 2 (a) Multiple Dwelling and amend section 2 (b) Special Needs Residential Facility - Congregate Housing to permit this use in sub-area A.

Section 2A - Conditions of Use
· Delete section 2A which is superseded by the Congregate Seniors Housing Guidelines and ILBC Guidelines

Section 3 - Floor Space Ratio
· Amend section 3.1 to increase the maximum floor space ratio in sub-area A to 1.43.

Section 4 - Height
· In section 4.1 increase the maximum height in sub-area A to 13.2 m, with the exception that the height must not exceed 12.2 m for buildings, or fronting portions of buildings, on those parts of the sub-area which directly abut Clarendon Street.

Section 6 - Yards and Setbacks
· In section 6.4 amend the minimum setback relaxation along Clarendon Street to 0.3 m for the provision of a porte cochere, fences, loading spaces, access and manoeuvring aisles and a garbage/recycling shed.

Section 8 - Off-Street Parking, Loading and Bicycle Spaces
· Add section 8.5 to make the relaxation and exemption provisions of the Parking By-Law available.

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL

Note: Recommended approval conditions will be prepared generally in accordance with the draft conditions listed below, subject to change and refinement prior to 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 Lloyd Plishka Architect, and stamped "Received City Planning Department", August 21, 2003, 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:

(c) That, prior to enactment of the CD-1 By-law, the registered owner shall:

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.

Such 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

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 11 073 m² (119,193 sq. ft.) site is bounded by Clarendon Street, Waverley Avenue, Elliott Street, and the lane north of 49th Avenue and consists of two legal parcels. The north portion of the site (sub-area B) is developed with a 90-unit congregate housing facility called Shannon Oaks. The south portion (sub-area B) is vacant except for a small unoccupied building that will be demolished when redevelopment occurs.

The surrounding area is generally zoned RS-1 with a number of neighbouring institutional uses. South of the site is a church, to the west is a private school and convent and to the north is an elementary school and park. The northeast corner of Elliott Street and 49th Avenue is zoned C-2 and includes the Killarney Shopping Centre.

Proposed Development: The application proposes amendments to permit congregate housing on the undeveloped portion of the site (sub-area A) because the current zoning only permits multiple dwellings for seniors to be built on this sub-area. The amendments would allow 105 units of housing in two separate buildings. A 4 storey building along the lane (called Clarendon Court) would provide 62 units of non-market rental congregate housing and 30 underground parking spaces. There would be 2 studio units of about 30.2 m² (325 sq. ft.), 57 one-bedroom units of about 46.5-58.0 m² (525-625 sq. ft.) and 3 two-bedroom units of 67.8 m² (730 sq. ft.). A 3 storey building along Clarendon Street (called Shannon Oaks West) would provide 43 units of market rental congregate housing and 21 underground parking spaces. There would be 2 studio units of 34.1 m² (365 sq. ft.), 32 one-bedroom units of 41.9-45.5 m² (450-490 sq. ft.) and 9 two-bedroom units of 52.4-54.3 m² (565-585 sq. ft.). Both buildings would be served by the kitchen located in the building (Shannon Oaks) in sub-area B. The residents of Shannon Oaks West would eat their meals in the Shannon Oaks dining room and the residents of Clarendon Court would have a separate dining room located in their building. The amenity areas (i.e., craft rooms, library, auditorium) in Shannon Oaks would also be available to the residents of Shannon Oaks West.

Public Input: City staff sent a notification letter to 431 nearby property owners on September 19, 2003 and rezoning information signs were posted on the site on the same day. Two phone calls and one email were received from residents living south of the site (across 49th Avenue) expressing concern about the proposed height increases.

Comments of the General Manager of Engineering Services: The General Manager of Engineering Services has no objection to the proposed rezoning, provided that the applicant complies with conditions as shown in Appendix B.

Seniors' Advisory Committee Comments: "The Committee supported this application with one minor concern regarding the frequency of meals and dirty dishes moving along the firstfloor corridor from the existing Shannon Oaks' kitchen through Shannon Oaks West and into Clarendon Court. The Committee was concerned about a disturbance to residents in the new Shannon Oaks West. The Committee also strongly supported the necessity of a covered drop-off area for the residents of Shannon Oaks West."

Comments of the Director of the Housing Centre: "The securement of 62 non-market congregate rental units under the Province's Independent Living BC (ILBC) program is considered to be a significant public benefit. ILBC will provide capital construction and operating subsidies for seniors on very low incomes. While there is some uncertainty about meeting the non-market commitment if the ILBC application is not successful, results will likely be known before year end, and in advance of the Public Hearing, and any necessary adjustment can be made at that time. The ILBC component or equivalent will be necessary for the project to receive CAC and DCL exemptions.

The Housing Centre supports this application, subject to continuance of a Housing Agreement on title, amended as may be required because of this rezoning. The principal tenets of the agreement will be no strata-titling and ownership to be maintained by a non-profit society."

Public Benefit: The proposal increases the range of rental housing options for seniors with more than 30 percent of the units being affordable non-market rental congregate housing.

Urban Design Panel Comment: On October 15, 2003, the Urban Design Panel reviewed this proposal and offered the following comments:

"The Panel strongly supported this application. The congregate housing use was supported unanimously. The proposed density and height were also fully supported, with some reservations expressed about the form of development.

In general, the Panel found that the non-market Clarendon Court facility lacked the quality of Shannon Oaks West. It seems alienated and does not relate well to either of the neighbouring buildings.

It was thought that the amenities in Clarendon Court, particularly the dining area, would be better oriented towards the courtyard rather than the church parking lot. Also, the greenhouse in the existing Shannon Oaks facility is not easily accessed from Clarendon Court. There was also a recommendation to include another greenhouse for Clarendon Court residents, possibly incorporating a solarium.

Major concerns were expressed about the access off the lane for Clarendon Court which seems to emphasize it being a second class citizen of the development. The Panel strongly recommended that there be a single drop-off to serve both buildings, even at the expense of a unit. It was thought the driveway could be extended to encompass both entrances.

The Panel generally thought there could be better treatment along the lane. Given the lane is likely to be heavily used by Clarendon Court residents to access the shopping plaza, it was thought it should be more pedestrian-friendly. Suggestions included treating the lane frontage as front yards which actually address the south-facing aspect across the lane.

There were a number of comments made about the porte-cochere, with some Panel members suggesting it should be eliminated because they tend to diminish the public realm. It was thought the entries to the buildings should be treated equally. Suggestions were made to use attractive pavers or grass paving instead of asphalt.

With respect to the roofscape, the Panel noted the challenge of Clarendon Court being higher than the other two buildings. As well, the very low pitched roof of Shannon Oaks West suggests a flat roof form might be more appropriate.

There were concerns about the ground floor corridor and it was strongly recommended that its width be increased to better accommodate the flow of pedestrian traffic and food trolleys. One suggestion was to consider celebrating the food delivery in some way within the design and make it part of the activity of the building. One Panel member strongly suggested some redesign of the Clarendon Court dining area, possibly relocating it.

A concern was expressed about the need to provide places for the residents to socialize in the hallways, near the elevators. Also, a recommendation to introduce some natural light into the long, dark corridors.

Comments were made about the architectural expression and concerns expressed in general about making multiple dwellings look like single family houses in an attempt to integrate them into a single family neighbourhood. The design of the corner at the lane and Elliott was thought to be a good opportunity to make it look more like an apartment building. Another opinion was that the architectural expression is neither urban nor suburban, suggesting it needs further resolution.

It was suggested the planters in this development will only be used if they are raised."

Environmental Implications: The proposal is well-located near transit, shopping and other community services which may reduce dependence on the 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 provided the following comments:

"Thank you for the opportunity to respond to the Policy Report dated 2003.November.20. We are in general agreement with the wording of the Report. Nonetheless there are some points which we would like to emphasise or clarify:

1. SUB-AREA A SUBDIVISION

We note that the Sub-Area A will be subdivided into two separate parcels, one for Clarendon Court and the other for Shannon Oaks West. The subdivision is required for the purpose of obtaining mortgages for the two buildings. The areas of the two parcels will be 2,881.4 and 2,490.6 meters squared respectively. The exact area will be determined by a Surveyor.

The floor space ratio (FSR) and site coverage (SC) factors referenced in the Report will apply to the two parcels in aggregate; the resulting FSR and SC for each separate parcel will differ from the specified factors.

2. PROPOSED DEVELOPMENT

We are grateful that City Staff and City Committees support of the number of housing units required to economically achieve affordable housing for seniors on this site.

3. CLARENDON STREET PORTE COCHERE

The covered entry, referenced on page 4 of the Report, is considered by the building owner as an essential element in the provision of a dignified, comfortable and safe living environment for the residents of Shannon Oaks West. This position is supported by the Senior's Advisory Committee, as noted in Appendix C. In response to the comments in Appendix B, [(b) (iv)] we agree to keeping vehicle crossings on Clarendon Street to a minimum, and believe that the Porte Cochere for Shannon Oaks West accomplishes this goal.

4. BUILDING MASSING

We understand the general intention of Appendix B, is to achieve buildings that do not have a relatively massive appearance. We will work with Planning Staff to achieve an optimized design suitable to the neighbourhood; we note that the details of design refinement may not meet the strict wording of Appendix B, clauses [(b) (i) & (ii)] which references roof forms. We also would understand the "improvement of the lanescape" referenced in clause [(b) (vii)] may be achieved architecturally without the necessity of "relocation" of the refuse and loading features.

CONCLUSION

We would like to thank City Staff, Committees, neighbours and residents who have supplied valuable comments and insights for the development of the building concepts. We lookforward to creating a vital supportive living environment for senior residents at both Clarendon Court and Shannon Oaks West."

APPENDIX D

9 pages of architectural drawings

APPENDIX E

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

6450 Clarendon Street

Legal Description

Lots A and B, Block 3, D.L. NW¼ of DL 336, Group 1 NWD, Plan 10861

Applicant/Architect

Lloyd Plishka Architect

Property Owner/Developer

Baptist Housing Society of BC

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

11 073 m²
(119,193 sq. ft.)

N/A

11 073 m²
(119,193 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

CD-1 (sub-area A)

CD-1 (sub-area A - Amended)

  

USES

Multiple Dwellings (for Seniors)

Special Needs Residential Facility - Congregate Housing

  

MAX. FLOOR SPACE RATIO

1.25 FSR

1.43 FSR

  

MAXIMUM HEIGHT

12.8 m (42 ft.) and limited to 10.5 m (35 ft.) along Clarendon Street

13.2 m (43½ ft.) and limited to 12.2 m (40 ft.) along Clarendon Street

  

SETBACK ALONG CLARENDON STREET

6.0 m (20 ft.) relaxable to 1.1 m (3½ ft.)

6.0 m (20 ft.) relaxable to 0.3 m (1 ft.)

  

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