CITY OF VANCOUVER

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date:

February 10, 2004

 

Author:

Brent Elliott

 

Phone No.:

7447

 

RTS No.:

03933

 

CC File No.:

5307/5306

 

Meeting Date:

February 24, 2004

TO:

Vancouver City Council

FROM:

Director of Current Planning, in consultation with the Director of Legal Services

SUBJECT:

CD-1 Rezoning - 950 Quebec Street/939 Main Street

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A and B.

COUNCIL POLICY

PURPOSE AND SUMMARY

This report assesses an application to rezone the site located at 950 Quebec Street/939 Main Street from M-1 (light industrial district) to CD-1 (comprehensive development district). The application is seeking to achieve a gross residential floor area of 19,983 m2 (215,103 sq. ft.) through a form of development that would include a 22 storey tower and a 3-5 storey apartment and townhouse base. The development would provide 167 new residential units. Staff support this application which will, if approved, extend a residential character along Quebec Street to the Georgia Viaduct, soften the existing hard edge on Prior Street adjacent to the Viaduct and complete the City Gate neighbourhood along Quebec Street. There will be a separate, in-camera report setting out the proposal's public benefit provisions.

Staff recommend that the application be referred to a Public Hearing and be approved with conditions.

DISCUSSION

Background: The site consists in part, of the M-1 zoned former Greyhound Bus maintenance facility. The Greyhound site was not a part of the original 1989 City Gate rezoning as it was not for sale at the time. Support for residential use on this site, however, has been continuously outlined through the Council approved policy framework for False Creek.
Use: Of the total 167 units in this entirely residential development, there would be a mix of 148 family units (two or more bedrooms) and 19 non-family one bedroom with dens. As envisioned in the False Creek Policy Broadsheets, East False Creek is intended to provide a mix of uses. However, given that the site does not front onto Main Street where the majority of commercial uses are to be focussed, staff therefore believe that the residential nature of the development is appropriate. Moreover, staff note that this neighbourhood reflects a mix of market and non-market housing and, while a separate non-market housing component is not a part of the proposal, the question of non-market housing will be contemplated through the community amenity contribution.

Staff feel that the development will extend the residential character of the City Gate neighbourhood further north along Quebec Street and onto Prior Street, thereby improving the general streetscape and interface with the planned Creekside Park as well as supplementing the existing southerly portion of the City Gate neighbourhood.

Density: At 19,983 m2 (215,103 sq. ft.), inclusive of all exclusions, the proposed maximum density is 3.8 FSR, after site dedications. Staff note that the proposed density is comparable with the City Gate neighbourhood, which has an overall maximum density of 3.85 FSR. Further, the proposed density is similar to the range permitted within the adjacent FC-1 zoned properties along Main Street, which allow a maximum residential density of 3.0 FSR and the maximum mixed-use density of 5.0 FSR.

Form of Development (Note Plans: Appendix D): There are two principal components to the proposal. The first is a tower fronting Quebec Street with a maximum height of 22-storeys (59.4 m or 195 ft.). The location of the tower is complimentary to that of the other five towers along Quebec Street and is set back 30.5 m (100 ft) southward from the Viaduct. As well, the proposed tower floor plates and the tower's character will be consistent with that of the already built City Gate developments.

While the application originally requested a tower height of 24 storeys, staff determined that a height of 22-storeys was more appropriate for the site and surrounding context. It is noted that the proposed height of 59.4 M is beyond the height limit of 55 m (180 ft.), as set out in the Bridgehead Guidelines, for developments in close proximity to certain bridgeheads. However, staff agree that in stepping down the tower height to 22 storeys, as opposed to approximately 21-storeys as per the Guidelines, when compared to its 24-storey southerly tower neighbour, the development produces a more gradual transition to the north and creates an attractive back drop or skyline to the easterly end of False Creek.

The tower height is below the height restrictions imposed upon the site by the Cambie Bridge (E2.1), Main Street (9.1 and 9.2) and Queen Elizabeth (3.2.4) view corridors.

The second component is a 5-storey and two 3-storey building podia provided along Quebec Street, Prior Street and Milross Avenue respectively, containing townhouses and apartment units. Staff conclude that such forms appropriately define the street, continue the adjacent street wall and provide a strong residential scale and character to the streets that are consistent with the rest of the City Gate neighbourhood. With specific regard to Prior Street, the scale of the proposed form is intended to balance the visual strength and massing of the adjoining Viaduct.

Given that the proposed development is in an "activity zone", as defined by the Noise Bylaw, design development is recommended to provide appropriate acoustic measures for the building, in particular those portions adjacent to the Georgia Viaduct and its off-ramp, to ensure appropriate liveability conditions, and provision of a ventilation or air conditioning system in the dwelling units nearest the Viaduct which enables occupants to maintain closed windows in a location subject to noise. Staff recommend an acoustical investigation of the under-viaduct area to inform this design.

A significant area of semi-private open space is also provided within the development which offers a secure, private amenity to the eventual residents. Particular attention was given to ensure that the proposed form of development minimizes shadowing of the interior open space.

Overall, staff believe the proposal provides a positive design relationship to the surrounding developments and neighbourhood context and will provide a high quality living environment for its future residents. As well, the development in providing additional "eyes on the street" enhances the overall safety and security of the neighbourhood.

Access and Parking: A significant aspect of the development is the creation of a new pedestrian-oriented lane that will also provide vehicular service access for the development. Primary residential access will be provided off of Milross Avenue, consistent with the southerly developments. The lane also affords rear lane access to the existing developments fronting onto Main Street, which prior to this opportunity, have traditionally had to precariously gain rear access from Main Street. While dedicated as a lane, the right-of-way is to resemble more of a pedestrian mews with landscaping and a standard City sidewalk. Beyond aesthetics, staff also note that the enhanced treatment of the lane and its active use will also provide added security and safety.

Staff support the proposal that vehicle parking and bicycle storage be provided in two levels of underground parking. Residential loading will be provided below grade with access and egress from the rear lane.

Off-Site Improvements: Prior Street will receive an improved treatment, with the creation of a regularized street from Quebec Street to the newly created lane. It will include 2 lanes for traffic and 2 lanes of street parking with tree planted, grassed-boulevards and sidewalks on each side. To the east, from the new lane to Main Street, Prior Street will provide a pedestrian link and be closed to vehicle traffic. While not envisioned as a part of the immediate redesign of Prior Street, the roadway will provide adequate space to eventually accommodate an extension of the Downtown Streetcar. Dual tracks could be included within the Prior Street roadway, eventually becoming a single track as the Streetcar enters the easterly pedestrian oriented portion of Prior Street.

In an effort to calm the Quebec Street frontage, a corner bulge will be provided on Quebec Street by the applicant south of where Quebec and Prior Streets intersect. The bulge will begin to regularise the complex intersection between Quebec Street, Prior Street and Pacific Boulevard and provide a more identifiable and safer location for pedestrian crossing.

Community Amenity Contribution: For non-standard rezonings, as is the case with this proposed change from light industrial to residential, Council has discretion on whether the flat rate CAC or a negotiated approach should be applied. Staff will bring forward an in-camera report setting out for Council's decision a recommended amenity package.

Public Art: As with other private redevelopments greater than 15,236 m2 (164,000 sq. ft.) which require rezoning, this project is required to contribute $.95 per buildable (FSR) square foot to public art. This results in a $204,348 allocation for public art from this project.

CONCLUSION

Staff support the applicant's proposal to rezone the former M-1 industrial Greyhound maintenance site in East False Creek to CD-1 for residential use. This is an area that has long been identified by policy for residential development. As an extension of the City Gate neighbourhood, the proposal will introduce a mix of housing units in a scale and form that is compatible and respectful of neighbouring development. Further, the street improvements and the introduction of a rear lane will improve circulation, add to the overall streetscape and enhance the pedestrian environment. Staff therefore recommend that the application be referred to a Public Hearing with a recommendation that it be approved, subject to conditions.

- - - - -

APPENDIX A

DRAFT CD-1 BY-LAW PROVISIONS

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

Uses

Density

Height

Parking

Acoustics

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL
950 Quebec Street/939 Main Street

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 Perkins and Company Architecture and Urban Design Inc., and stamped "Received City Planning Department", June 6, 2003, provided that the Director of Planning may allow 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 make arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services which:

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 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 affecting 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 bylaw; 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 bylaw.

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, if any, shall be determined by the appropriate City official having responsibility for each particular agreement, who may consult other City officials and City Council.

The following is not a condition of rezoning or subdivision but should be forwarded to the applicant for their attention, including:

The following should be forwarded to the applicant to be addressed at the development permit stage.

APPENDIX C

ADDITIONAL BACKGROUND INFORMATION

Site, Surrounding Zoning and Development: The site is bounded by Milross Avenue to the south, Prior Street to the North, Quebec Street to the west and a newly created lane (spanning between Prior Street and Milross Avenue) to the east. Surrounding the site to the south of Milross Avenue is City Gate phase 6 (the Brighton), a multi-unit tower with townhouse and apartment base. To the east of the lane is mix of restaurant/pub, hotel, and retail uses located within older building stock. Abutting the site to the north is the Georgia Viaduct and to the west is the pending Creekside Park.

The surrounding zoning is CD-1 (264 - City Gate) to the south and FC-1 to the east.

Proposed Development: To rezone Lots 19, 20 and 21 (civically addressed as 950 Quebec Street) from M-1 (light industrial district) to CD-1 (comprehensive development district). The site, in part, is made up the former Greyhound Bus maintenance facility. The application is seeking to achieve, through a form of development that would include a 22 (59.4 m or 195 ft.) storey tower and 3-5 storey townhouse/apartment base, a gross residential floor area of 19 983 m2 (215,103 sq. ft.) and provide 167 new residential units. The application also seeks to improve the existing condition of Quebec and Prior Streets and Milross Avenue by extending the residential character of the neighbourhoods. Circulation is improved through the creations of a new lane to the east. It is proposed that vehicle and bicycle parking spaces be provided in two below grade storeys. The development, if approved, will effectively complete the City Gate neighbourhood along Quebec Street to the Viaducts.

Public Input: A notification letter was sent to nearby property owners on March 19, 2003 and rezoning information signs were posted on the site on March 18, 2003. There were two (2) phone calls and two (2) letters (one via email) received from neighbouring residents and property owners. The phone calls and one of the letters supported the market residential nature of the development. The remaining letter from The Source Enterprises Ltd., a retail operation immediately abutting the proposed lane to the east, wanted to draw attention to the existence of an easement through lots 7 and 8, the former access point for the Greyhound works yard and the Source. As lots 7&8 are not a part of this rezoning application and are being retained by the developer, staff have passed on the operator's concerns to the applicant. Moreover, the newly created lane should provide adequate rear access to the Source.

On September 16, 2003, staff and the applicant met with the Chinatown Revitalisation Committee (CRC) to review and discuss the proposal. While Chinatown is physically separated from the site by the Viaducts, its resident and business interests were sought given its relative proximity as well as the community's desire for increased market housing in the area. In general, positive comments were received by the CRC.

An Open House was held on January 22, 2004 in the foyer of Science World, to provide neighbouring residents and property owners the opportunity to review and comments on the proposal. Also invited to the Open House were the recent owners that have bought into the City Gate Brighton development (still under construction) that is located immediately south of the proposed tower. Overall, the open house experienced a good turn out, with several people filling out the available comment sheets. Most visitors requested general information; however, two of the comment sheets and a number of visitors verbally expressed concerns with the timing of the eventual development of Creekside Park.

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.

Public Benefit: The public benefit of this proposal will be the subject of an in-camera report, brought forward for Council's review. The project is contributing $204,348 towards the Public Art Program.

Urban Design Panel Comment: The Panel first reviewed the application on April 30, 2003, and did not convey support. The Panel had four main concerns at that time, namely: the location of the tower; the height of the massing next to Milross Avenue which caused shadowing on the semi private open space; the relationship with the lane (overlook, safety and security, containment of the courtyard); and the treatment of the facade and the overall character of the scheme.

The Panel reviewed the applicant's revised submission on June 11, 2003 and strongly supported the application, commenting that the applicant had responded well to the Panel's previous concerns.

The Panel strongly supported the revised siting of the tower. It was noted, however, that relocating the tower has created a privacy issue between the lower units of the tower and the units facing Prior Street. To provide a more generous separation, a number of Panel members recommended eliminating a couple of units at the base of the tower and transferring the massing to the top. Adding height to the tower for this purpose was supported. Another suggestion was to add the massing above the double-loaded component, in the form of a single loaded floor to avoid casting shadow onto the courtyard. It was also recommended that the lobby and/or amenity space be opened up to the corner to take better advantage of the light and green space resulting from relocating the tower.

The Panel strongly supported the height reduction in the Milross Avenue component and its expansion to a corridor building which effectively addresses the shadowing issue and improves the livability of the courtyard. A recommendation was made to bring some daylight into the long corridor of the Milross Avenue building. Given that residents of the units at grade may install bars on the windows, at least in the bedrooms, one Panel member suggested designing them into the units from the outset. One Panel member welcomed the inclusion of ground level units suitable for seniors because they are in short supply in the city.

The Panel responded very positively to the landscape plan and supported the revisions. One Panel member suggested there should be a stronger link with the landscape of the previous City Gate projects.

With respect to the lane, it was noted it will set the standard for what will occur on the other side. One Panel member would have preferred the units on Prior Street to be extended around to the lane. Another questioned the amount of pavement in the lane.

Some Panel members suggested exploring a different character for the tower. A comment was made that a character that is distinct from the other towers might be appropriate for this site given it is at the end of the block and next to the viaduct. Continuing the existing palette of materials and colours could be monotonous. The 5 - 6-storey street wall along Quebec Street is very appropriate but some Panel members thought the element towards Prior Street could be a bit weak at the parapet level. As well, it was recommended that careful consideration be given to the south wing as viewed from Main Street, to ensure that it does not appear as a back door.

Environmental Implications: Nearby access to transit 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 is supportive of its contents.

APPENDIX D

18 pages of architectural drawings

APPENDIX E

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

STREET ADDRESS

950 Quebec Street/939 Main Street

LEGAL DESCRIPTION

Lots 19, 20, and 21, District Lot 2037, Plan 5568, All of Group 1, New Westminster District

APPLICANT

John Perkins Jr., Architect

ARCHITECT

Perkins and Co. Architecture and Urban Design Inc.

PROPERTY OWNER

Bosa Development

DEVELOPER

Bosa Development

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

5 575 m2 (60,009 sq. ft.)

375 m2 (4,037 sq. ft.)

5 200 m2 (55,974 sq. ft.)

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT
(if different than proposed)

ZONING

    · M-1

    · CD-1

 

USES

· Various light industrial and related uses

· Multiple Dwelling
· Accessory Uses

 

DWELLING UNITS

· Caretaker Unit
· Residential Unit associated with Artist Studio Class B

    · 167

 

MAXIMUM DENSITY

· 5.0 FSR, subject to the following:

    (a) maximum 1.0 FSR shall be for all uses other than manufacturing ,
    transportation and storage, and Wholesaling Class A uses

    · 19 983 m2 (215,103 sq. ft.)

 

MAXIMUM HEIGHT

    · 30.5 M (100 ft.)

    · 59.4 M (195 ft.)

 

MAX. NO. OF STOREYS

    · N/A

    · 22

 

PARKING SPACES

    · As per Parking Bylaw

    · 0.5 per dwelling unit + 1 space per 100 m2 GFA

 

* * * * *


ph20040325.htm