ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

Director of Current Planning, in consultation with the Director of Real Estate Services

SUBJECT:

Woodward's - 101 West Hastings Street: Urban Design Guidelines

 

RECOMMENDATION

A. THAT Council approve the Woodward's Urban Design Guidelines, attached as Appendix "A"; and

B. THAT Council require that, as a minimum, the 1903-1908 portion of the Woodward's building, as well as the "W" sign, preferably with its steel tower, be retained and rehabilitated, and that this requirement be included in the Request for Proposals.

CITY MANAGER'S COMMENTS

COUNCIL POLICY

On February 24th, 2004, Council approved the Woodward's "Request for Proposals" Framework which stipulated that the Director of Current Planning would report back to Council prior to issuance of the RFP to seek Council's formal endorsement of the Woodward's Urban Design Guidelines.

Council's zoning and heritage policies provide for the creation and transfer of a heritage density bonus.

Council has approved the Heritage Building Rehabilitation Program to assist with the upgrading of heritage buildings in Gastown, Chinatown and the Hastings Corridor.

PURPOSE

This report serves to seeks Council approval of the Woodward's Urban Design Guidelines (Appendix A) in order to inform future development of this site. As well, this report recommends that Council require, as a minimum, the retention and rehabilitation of the 1903-1908 portion of the Woodward's building, as well as the "W" sign, preferably with its steel tower.

BACKGROUND

In March 2003, Vancouver City Council purchased the former Woodward's department store at 101 West Hastings from the Provincial government. A set of Guiding Principles was developed and endorsed by Council. The Request for Expressions of Interest was issued in August 2003. On February 24, 2004, City Council short-listed four respondents in the developer category: Concert Properties Ltd., The Holborn Group, Millennium Properties Ltd., and Westbank Projects Corp./The Peterson Investment Group Inc. as the selected proponents to participate in the Request for Proposals. Council also asked staff to report back with Urban Design Guidelines which will inform development of the site and which could be included in the Request for Proposals (RFP).

WOODWARD'S URBAN DESIGN GUIDELINES

The Need for Urban Design Guidelines
The 1995 Development Permit Application proposed retention of much of the existing Woodward's building. This form of development may, or may not, be the form which is ultimately approved and built. In order to provide direction as to what form of redevelopment may be permissible to City Council, a clear set of Urban Design Guidelines is required. Initially, this will assist the proponents participating in the RFP, by having greater clarity of the City's built form expectations (density, massing and height), as well as general project quality. The Urban Design Guidelines are intended to inform development on this site, regardless of what eventually happens through the RFP process.

Independent Advice on Urban Design
Given the City's role as both owner and regulator, the architectural and urban design firm of Hotson Bakker Boniface Haden was engaged to independently advise staff on appropriate urban design influences, and a range of possible built form responses.

Intent of the Design Guidelines
The overriding intent of the guidelines is to inspire a design response worthy of the Woodward's initiative. The design guidelines attached as Appendix A are intended to initially assist the RFP proponents in preparation of their proposals. Once Council hasapproved the guidelines in Appendix A, along with any revisions it may adopt, staff will convert the guidelines into standard City format. They will then be used by Council, staff and stakeholders to evaluate the RFP proposals, and to inform the zoning/development approvals process. And finally, staff will use them to develop urban design guidelines for the balance of the block, which will be brought back to Council for approval at a later date, once the developer has been selected and the programme and built form response better understood. The guidelines are not intended to be prescriptive noting that, at this time, there is not full knowledge of the anticipated use programme. It is the intent of the guidelines to inform any future development of the site.

The guidelines aspire to produce a high quality, well-executed design response that appropriately enhances, and mediates, the recognized prevailing contextual qualities and characteristics of the Gastown-Hastings Corridor-Victory Square Precinct. Further, the intent is to "open the door" for innovation in urban form, in housing and in building expression that demonstrates how new development can respect and enhance in situ heritage resources while showcasing new architectural expression in an established urban context. Finally, the guidelines are intended to also capture the more general design expectations that have become accepted throughout the city including neighbourliness, livability, safety and security, pedestrian amenity, public realm quality, open space and sustainability performance, including green roof initiatives.

Woodward's is a Distinguished Site in a Special Historic Precinct
The Woodward's site is nested within a distinguished, and high quality, historic context which is characterized by a variety of building frontages and heights, and typically expressed as robust, streetwall oriented form. There are three historic areas surrounding Woodward's which establish the context for compatible scale and character on the Woodward's site. They are:

1. Gastown which is a protected (designated) historic area of masonry commercial and warehouse buildings dating primarily from 1886 to 1914. Building heights vary from two to seven storeys, resulting in a characteristic "sawtooth" pattern. The recently approved Gastown Heritage Management Plan included Design Guidelines, which guide rehabilitation of historic buildings, and the construction of appropriate new buildings. The civic parkade, and Lore Krill Co-op are new buildings, north of the Woodward's building, which meet these new guidelines.

2. Victory Square is a historic character area with many significant stone buildings, as well as Victory Square Park. Building heights vary and include the Dominion Building at approximately 150 feet (46 metres). The 1990 Victory Square Policy established a maximum FSR of 3 and a height of 70' (21 metres) for "mostcircumstances".

3. The Hastings Street Corridor was Vancouver's main commercial street in the early 1900s. It still retains many significant buildings, of varying heights, with the main alterations at the storefront levels. Hastings Street, west of Carrall (including Woodward's) is part of the Downtown District ODP, while east of Carrall is part of the Downtown Eastside /Oppenheimer ODP.

The heritage incentives that were developed as part of the Gastown Heritage Management Plan were subsequently made available by Council to Chinatown and to the Hastings Corridor (Cambie Street to Heatley Street). This further reinforces the civic intent to maintain the historic qualities of this part of the city.

Heritage Value and Physical Condition of Woodward's
The entire Woodward's building was designated a municipal heritage site in 1996, as part of the processing of the 1995 Development Permit Application. That proposal did not proceed, and other potential purchasers were dissuaded, some citing that retaining much of the existing building was an impediment to the quality and economics of the project.

In order to understand the heritage values of the Woodward's building, Commonwealth Historic Resource Management was retained to prepare a Statement of Significance. The Statement observes that "of greatest value are the original four-storey timber-framed building (1903), with brick facades at Hastings and Abbott Street (by noted architect W. T. Whiteway, expanded to six floors in 1908); the 1925 wing, which extended the building to Cordova Street and the large illuminated "W", which has become a Vancouver landmark. Also of value are the 1927 addition, which supported the "W" and the metal pylon and tower beneath it, and the northwest corner block of 1939, which completed the footprint and contained an auditorium (later used as a gymnasium)." The complete Statement of Significance, including a list of Character-defining elements, is included in Appendix B.

The Provincial government undertook cleaning and repair work on all the facades, except the 1903-1908 portion. In order to better understand the feasibility of retaining the 1903-1908 building, Reed Jones Christoffersen, consulting engineers, was retained to investigate the condition of the 1903-1908 structure (especially its brick exterior, windows and areaways). The RJC report concluded that the building can be rehabilitated, with repair and replacement required. (The report is on file in the City Clerk's Office.)

The Statement of Significance confirms that the 1903-1908 and 1925 portions of the Woodward's building, and the "W" sign and tower, have the greatest heritage value. Given that the 1903-1908 portion is the oldest portion of the building complex, it is recommended that it, at a minimum, along with the "W", preferably with its steel tower, be conserved. TheRJC report confirms that rehabilitation of the 1903-1908 building is feasible. The guidelines "encourage" retention of the rest of the building, especially the 1925 portion.

Consultant Observations and Recommendations
To inform their recommendations about new built form for the Woodward's initiative, the consultants reviewed the Statements of Significance for Woodward's and for Gastown and conducted field analysis to confirm prevailing qualities and characteristics of Gastown, Victory Square and the Hastings Corridor. Some of the consultant's key observations of common urban design elements that should inform the guidelines for Woodward's are:

· the precinct is characterised by buildings which are narrow, vertically proportioned and form a streetwall;
· facades vary in height and have robust cornice encroachments, punched windows and extremely high quality materials and detailing;
· two distinct tower forms dominant the neighbourhood and should continue to be the markers to identify the area: The Dominion Building and The Sun Tower which represented two distinct approaches to building form within an historic context;
· within the Woodward's block are five municipally protected heritage buildings, as well as two Downtown District redevelopment sites.

The consultants view the next step of the RFP process as an important design opportunity to generate an appropriate building form that reinforces the prevailing precinct qualities and characteristics while introducing innovation in housing form and an exciting new architecture that harmonizes with the historic fabric. This new architecture is envisioned to be bold, yet disciplined, in acknowledging the prevailing historic qualities by performing both a mediating role with adjacent buildings and as a "catalyst" by exposing the user energy generated by on-site activities. The appropriate mix of uses, the expression of their activities, the quality of the materials and detailing will ultimately ensure that the Woodward's initiative succeeds in terms of urban design and architectural performance. The consultants, recognizing the creative architectural opportunities possible on the site recommend the following "key" urban design guidelines:

1. The existing 1903-1908 building, and operational "W", preferably with its steel tower, must be retained. The tower placement, or the ultimate height, should not be prescribed.

2. The remainder of the existing building, especially the 1925 extension, should be retained if possible noting heritage significance and to reduce landfill volumes (sustainability objectives). Additional benefits above the allowable density and height should be made available for more extensive retention.

3. The street level should be animated with public oriented uses noting that Hastings and Abbott Streets are "retail required".

4. Podium heights should generally relate to the varied scale of the existing building.

5. Higher slab building form should be considered along the Cordova Street frontage with the possibility of marking the Cordova Street axis with a more unique element, in the range of 270 feet (82 metres).

6. A combination of higher and lower more slab-like forms that are well articulated is a more preferable approach to reinforcing prevailing character and scale and should not generally exceed 150' in height.

7. A distinguished, contemporary expression that carefully interprets precinct context while identifying opportunities for bolder, appropriately placed and complementary architectural features is appropriate for new construction.

8. Facade expression, including fenestration patterning and proportioning, as well as materiality should be compatible with precinct context.

9. Public realm treatment on all edges should contribute to pedestrian movement, amenity and visual interest.

Applying the Design Guidelines in the RFP and Permitting Processes
The Urban Design Guidelines will serve two important functions in the RFP. Firstly, the guidelines will outline the parameters from which the short-listed proponents can model their proposals. Although the guidelines have been structured to inspire the short-listed proponents in crafting and refining their proposals, important urban planning criteria are clearly required to provide certainty around what type and form of project will be permissible to Council, regardless of the RFP process. The guidelines will also provide staff and the public, with clarity and certainty.

The wording of the guidelines stresses flexibility in applying the guidelines, and criteria for favourably considering departures, have been introduced to address all three audiences. This is essential so that staff, Council, the short-listed developers and the public can anticipate what forms may be possible for this site.

The second role of the Urban Design Guidelines is to provide a baseline from which the Woodward's Evaluation Committees and, ultimately Council, can evaluate and critique the different proosals. Staff have traditionally sought Council approval of site-specific design guidelines to provide a context for consideration of either rezoning
applications or development applications (to supplement existing discretionary zoning). In this instance, the proposed guidelines are being presented to Council for adoption to provide context for the RFP proposals and their evaluation. As such, the guidelines are a component of the City's normal regulatory role. It is important for Council to note thatthese same guidelines would endure and pertain to any subsequent rezoning and development application. The RFP will provide the potential for guideline amendments by Council if any proposal proceeds through RFP selection to rezoning and then to development application.

Comments of Advisory Groups
The draft urban design guidelines were presented to the Urban Design Panel on March 3, 2004. The Urban Design Panel generally agreed with the consultant's approach to deriving new built form from prevailing historic precinct qualities and characteristics. The Panel suggested that the guidelines should ultimately address the full block, and adjacencies, once the proponent had been identified and the proposed uses and resultant built form for the Woodward's site is more fully understood. (Staff will bring back a version of the guidelines that applies to the full block.) The Panel generally agreed with the guideline option of lower building forms that mediated street and precinct context and scale by full, or partial retention. As well, the Panel supported a more disciplined approach for new construction that allows for a sophisticated architectural response.

The Heritage Commission reviewed the draft design guidelines on March 15, 2004. A resolution was passed with the following main points:
- support for mandatory retention of the 1903-1908 building, the "W" with its tower, the 1925 building, and as much of the rest of the structure as possible;
- a slim tower, marking the Cordova Street axis was supported;
- a request that areaways and landscape guidelines be included.

COMMENTS OF THE PROPONENTS

The short-listed proponents were provided with a draft of the design guidelines and will be soon be meeting with staff to discuss them. Staff will provide Council with a summary of the proponents' comments.

CONCLUSION

Woodward's is crucial to the revitalization of the Hastings corridor west of Main and to the nearby communities of Gastown, Chinatown and Victory Square. A concise set of urban guidelines is required to ensure this development not only respects the context of the existing Gastown urban fabric, but also to provide some certainty and direction as to what form of project might be acceptable to Council.

The renovation and reuse of Woodward's has been identified as a top priority of the Vancouver Agreement. The City is well on its way to achieving its objectives of revitalization of the neighbourhood, encouraging heritage conservation, securing a mix of project uses, providing Non-Market housing, ensuring street-front retail continuity and accommodating a mix of incomes.

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APPENDIX A (pdf)

APPENDIX B

Woodward's Department Store
101 West Hastings Street, Vancouver
Statement of Significance

Description of Historic Place
The historic place comprises the entire Woodward's Department Store complex, including its roof-top sign, constructed in nine principal phases between 1903 and 1957, and occupying one-half of the downtown city block defined by West Hastings Street, West Cordova Street, and Abbott Street. The property is listed in the `C' category on the Vancouver Heritage Register.

Heritage Value
The Woodward's Department Store is significant because it is Vancouver's best example of the dominant way of organizing and marketing retail shopping as part of the materialism of the modern era, because of Vancouverites' enduring loyalty to the store and the retail experience it provided, and because of its associations with the Woodward family. The building, which reflects this larger retail trend, was the flagship store of the former Woodward's retail empire, which at its peak comprised 51 stores in British Columbia and Alberta. It embodies the vision of founder Charles A. Woodward; the leadership of his sons, the ambitiously expansionist and widely popular William Culham (`Billy') Woodward and the merchandising genius Percival Archibald (`Puggy') Woodward; and the closing of the store under grandson Charles Nanby Wynn (`Chunky') Woodward. The department store's many retail innovations included the one-price sale (1910), the self-service `groceteria' (1919), mail-order food packages, and the large attached parking garage (1930; demolished 2002). The store's paternalism made its committed employees feel like a `family'.

The building was Vancouver's first large department store and reflects the consummation of C.A. Woodward's vision. Of greatest value are the original four-storey timber-framed building (1903), with brick façades at Hastings and Abbott Streets (by noted architect W.T. Whiteway, expanded to six floors in 1903-1908); the 1925 wing, which extended the
building to Cordova Street and the large illuminated "W", which has become a Vancouver landmark. Also of value are the 1927 addition, which supported the `W' and the metalpylon and tower beneath it, and the northwest corner block of 1939, which completed the footprint and contained an auditorium (later used as a gymnasium).

The construction of the original store marked the rise of Hastings Street as Vancouver's central retail district, and its demise and closure in 1993 represented the retail shift to the southwest and suburban shopping centres. The store has become the rallying point for those concerned with the decline of the Downtown East Side.

Character-defining Elements
- The exterior design of the original 1903-08 store, which defined the character of the entire complex; particularly the use of reddish-brown brick, brick-and-stone piers and stone string courses at street level, giant pilasters, recessed spandrels and string courses, double-hung windows, rusticated stone sills, and classical entablature and cornice
- The similarity of the architectural treatment of each phase, except that of 1946
- The contrasting character of the 1946 addition, including its steel-framed, industrial-style windows on the west elevation.
- The original volume and west-facing windows of the auditorium
- The building's mass and siting at the property lines, which cause it to dominate Hastings Street and the adjacent buildings
- The centrally-located water tower and pylon surmounted by the highly visible `W' sign, including its illumination and the machinery that rotates it
- The pedestrian orientation of the ground level, including the mosaic tile and Woodward's signs in the pavement, the rows of doors with large push-plates at the customer entrances, the Woodward's signs above the entrances, the display windows with glazed transoms, and the Art Deco canopy and its suspension rods
- The open columnar grid in the interior, which creates a large, flexible space
- The traditional semi-public uses of the interior space, especially for retail shopping

prepared by Commonwealth Historic Resource Management Limited

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