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CITY OF VANCOUVER POLICY REPORT
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Date: |
June 8, 2004 | |
Author: |
Harv Weidner | |
Phone No.: |
6538 | |
RTS No.: |
04209 | |
CC File No.: |
8001 | |
Meeting Date: |
June 22, 2004 |
TO: |
Vancouver City Council |
FROM: |
Director of Current Planning in consultation with the Director of City Plans, and General Manager of Engineering Services |
SUBJECT: |
Broadway-Arbutus Neighbourhood Centre - Proposed Policies and Draft Broadway-Arbutus C-3A Guidelines |
A. THAT Council refer consideration of Recommendation B to a special public meeting to hear speakers.
and, following the special public meeting,
B. THAT Council approve the "Broadway-Arbutus Proposed Policies" as outlined in Appendix A and the "Broadway-Arbutus C-3A Guidelines" generally as outlined in Appendix B, and appropriate consequential amendments to related Policies and Guidelines.
The General Manager of Community Services RECOMMENDS approval of A and B.
Council policy for the Broadway-Arbutus Policy review area (see map) is reflected in a number of documents:
· The Central Broadway C-3A Urban Design Guidelines (1976).
· The Central Area Plan (1991)
· The Arbutus Neighbourhood Plan (1992)
· The Arbutus Neighbourhood C-7 and C-8 Guidelines (1995)
AND PURPOSE
This report provides background to the Broadway-Arbutus Neighbourhood Centre policy review and recommends adoption of policies to guide future development of the Local Shopping Area (LSA) portion of the Broadway-Arbutus Neighbourhood Centre, and approval of amended C-3A guidelines for the part of the LSA on Broadway (between Vine and Maple Street). The policy review was initiated because of two major development proposals for this portion of Broadway:
· Maple Site - a rezoning inquiry for a 72,000 sq. ft. (6700 m2) Home Depot, 8,000 sq. ft. (750 m2) of other retail and 180 residential units on the current IGA site at Broadway and Maple Street (2002 - 2084 West Broadway)
· Vine Site - a development application for a 34,000 sq. ft. (3150 m2) (London Drugs, a 22,000 sq. ft. (2050 m2) grocery store and 134 residential units on the former ICBC site at Broadway and Vine Street (2256 West Broadway)
The details of both development proposals are contained in Appendix C.
Map 1 - Broadway-Arbutus Neighbourhood Centre Policy Review Area and Zoning
The size and scope of these proposals have raised questions about current policy, discretionary regulations, the sale and closure of a lane, among other issues. In addition, conversion of the former Arbutus Industrial area to residential uses in the past 10 years has completed a key part of an emerging neighbourhood centre in this portion of Kitsilano. In order to consider the questions raised by these proposals, staff launched a comprehensive policy review of the Broadway-Arbutus local shopping area in the context of this emerging neighbourhood centre. The review approach was to examine the makeup of healthy neighbourhood centres and local shopping areas (LSAs) and apply the findings to the Broadway-Arbutus area.
Staff examined questions of appropriate mix of uses and densities, height and built-form, traffic impacts, transit, pedestrian and cycling needs and other related issues. A public open house in November of 2003 gathered initial public input. City staff subsequently conducted further review and analysis in formulating the proposed policy. In March 2004, the proposed policies and analysis were made available to the public at a 2nd public open house held over 2 days drawing about 1200 people and almost 500 written response forms. In addition, staff met with the proponents of both sites, community groups and a group of west-side home improvement retailers to discuss the emerging policy.
The following table summarizes proposed policies in the two key issue areas. The complete set of proposed policies is included in Appendix A and is discussed in this report.
Current Policies |
Proposed Key Policies | |
Uses and Density
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Broadway C-3A · Commercial - retail, service and/or office up to 1.0 FSR, with the remainder to be residential. · Total 3.0 FSR Maple site (M-1 portion) · Mix of residential and commercial uses (but no retail) up to 2.25 FSR · Plus daycare space |
Broadway C-3A · Confirm current policies AND · Limit individual store sizes to 40,000 sq. ft. Maple site (M-1 portion) · Confirm current policies |
Height and Built Form |
Broadway C-3A · 30 ft. up to 50 ft. (In practice heights range from 30 to 85 ft.) Maple site (M-1 portion) · 40 ft. relaxable to 45 ft. |
Broadway C-3A · 30 ft. up to 70 ft. for large sites (125 ft. and greater frontages)
Maple site (M-1 portion) · 45 ft. relaxable up to 60 ft. to accommodate daycare and/or improve liveability if impacts addressed |
Public comment was generally supportive of the directions and policies proposed with additional commentary regarding maximum store size limit and building height. In terms of store size, while there was significant public support for the proposed 40,000 sq. ft. (3700 m2) limit, a proportion of the public wished to see a lower limit of between 10,000 sq. ft (930 m2) and 30,000 sq. ft. (2800 m2) with some supporting a larger size only to permit a supermarket.
With respect to building height, along Broadway, staff recommend a general street wall height of about 30 ft. (9.2 m), similar to the remainder of Broadway C-3A, with increases to 55 ft. (16.8 m), for smaller sites and up to 70 ft. (21.4 m) for larger sites (frontages of 125 ft. 38.1 m or more). These increases would allow flexibility in building massing to respond to adjacent buildings, optimize sunlight penetration and improve liveability within the maximum conditional 3.0 FSR. A large portion of the public (46%) wished to see heights kept to 4 to 5 storeys (40 ft. to 55 ft.). Public comments are summarized in the Public Commentary section, in Appendix E and referenced in the relevant sections of this report.
Proponents for the Vine Site proposal are generally supportive of the policy directions and have amended preliminary plans to be consistent with the proposed policies. Proponents of the Maple Site do not support the policies limiting the amount of retail use and the size of retail stores.
Following Council consideration and decision on the proposed policies, staff will finalize the Broadway-Arbutus C-3A guidelines based on Council instruction. These guidelines, together with the Arbutus Neighbourhood C-7 and C-8 District Schedule and Guidelines, will direct future development within the Arbutus Local Shopping Area portion of the Neighbourhood Centre.
The Broadway-Arbutus area is an evolving neighbourhood centre with about 3600 multi-family units, a community centre, major park, schools, new shops/services and is served by 3 transit lines. A key part of a healthy neighbourhood centre, is a strong shopping area. Prior to the mid-1990s, retail in this area consisted primarily of the IGA supermarket and liquor store at Broadway and Maple, with a few retail/service outlets on Broadway and Arbutus Street. Redevelopment of the Arbutus Neighbourhood has provided a contiguous shopping street along both sides of Arbutus. Currently, the Broadway-Arbutus commercial area has about 100 retail stores and service outlets on Broadway, (from Vine to Burrard), and 50 on Arbutus Street north of 12th Avenue (encompassing about a seven block area).
As the area has evolved, portions have been planned at various times and are governed by respective plans, policies, zoning regulations and guidelines. A commercial area policy review for this area last occurred in the mid-70s. The City recently received proposals to redevelop two major sites on Broadway at Maple Street (a rezoning enquiry on the current IGA/Liquor store site), and a development application at Vine Street (the former ICBC site), both including larger retail uses with residential units above. These proposals (summarized in Appendix C) have been the catalyst for a comprehensive review of this local shopping area within the context of the evolving neighbourhood centre.
Staff first conducted background research and analysis of other local shopping areas (LSA) to assist in understanding the key questions for the emerging Broadway-Arbutus LSA identified in Map 2. To better understand the commercial context, the commercial areas on Arbutus, south of 12th to 16th Avenue and on Broadway, east of Maple to Burrard Street were also reviewed.
Broadway-Arbutus Local Shopping Area - Future Directions
To assess the likely future role of Broadway-Arbutus, two successful and well-established LSAs - Kerrisdale and 4th Avenue (Balsam to Burrard) were examined and compared with Broadway-Arbutus. The analysis concluded that 4th Avenue has both a local-serving retail [primarily goods/services required on a regular basis - groceries, drycleaners etc.] and a city-serving role [retailers selling specialty goods- sports equipment, electronics, etc., and drawing customers from a broader area] in contrast to Kerrisdale's mostly local-serving role. Like 4th Avenue, Broadway-Arbutus is centrally located, with high traffic and transit volumes and near a younger population. Broadway-Arbutus has the additional characteristic of large sites which can accommodate larger stores, either LSA anchor stores (e.g. supermarkets) or city-serving uses.
Key directions and conclusions for the Broadway-Arbutus LSA were:
· Broadway-Arbutus LSA should remain a primarily local-serving shopping area but with a city-serving role that helps support and does not detract from this local-serving focus.
· Current zoned capacity for major anchors and expansion of smaller retail stores and services is more than adequate to allow for healthy LSA infill and growth.
· A full-service grocery store (supermarket) at Maple, Vine or both of these sites is necessary to complete the local-service function and provide a major LSA anchor.
· Other typical anchor tenants such as an appropriately scaled drugstore, liquor store or hardware store would positively contribute to the local-serving function of this LSA.
· Policy should anticipate a future LSA core in the current L-shape, or expansion to the west toward the Vine Street site to form a T-shape.
· The appropriate southern boundary for the LSA core is 12th Avenue in order to concentrate retail activity.
Map 2 - Broadway-Arbutus Commercial and Local Shopping Areas
Policy Issue Analysis
The examination of the future role of the Broadway-Arbutus LSA provided a context in which to evaluate current policy and issues raised by the two proposals. The following discussion reviews current policy/key issues raised by the proposals and summarizes the proposed key policies based on staff's analysis and public comments. The complete Broadway-Arbutus Policy Review including LSA analysis is accessible on the City's Website under Planning Department's Projects. The proposed policies for each topic area have been extracted from this document and are contained in Appendix A. One addition since the public open house is highlighted in italics at the bottom of page 3 of Appendix A.
Implementation of the policies will occur through the C-3A zoning and Broadway-Arbutus Guidelines (draft contained in Appendix B) for Broadway and the M-1 portion of the Maple site, and through the Arbutus C-7/C-8 zoning and guidelines for the Arbutus Street portion of this local shopping area.
1. Retail and Other Commercial Uses: Amount and Type
Current Policy and Practise
The Broadway Arbutus Neighbourhood Centre shopping area has three sub-areas governed by three types of zoning and guidelines.
a) Broadway - C-3A Area
On the Broadway frontage the C-3A zoning permits residential, office, retail, service and other non-residential uses up to a maximum of 3.0 FSR total. The C-3A guidelines adopted in 1976 encourage residential use with retail at grade. The Central Area Plan (1991) identified this as a residential preferred area in part to focus major Broadway office development in the area between Oak and Cambie Streets. Prior to this policy being adopted, two major office buildings were constructed on Broadway at Maple Street.
Current policy supports up to 1.0 FSR of commercial (retail/service and office) within the 3.0 FSR maximum allowable density with the balance to be residential. The most recent new development in the area - a mixed residential/retail development at Yew Street constructed in 1993 is consistent with that policy. Current policy has no maximum individual store size.
b) 10th Avenue - M-1 site
The M-1 portion of the Maple site was part of the Arbutus Neighbourhood planning policy directions but the industrial zoning was retained to ensure greater development control over this key site via the rezoning process. For this site, the Arbutus Neighbourhood Plan supports residential use, does not permit retail, and identifies this site as the location for a daycare. Building density would be considered up to 2.25 FSR and an FSR exclusion permitted for the daycare as per normal city policy. These directions are confirmed in the proposed Broadway-Arbutus policies.
c) Arbutus Street - C-7/C-8 and CD-1 Area
Arbutus Street was also part of the Arbutus Neighbourhood planning and is guided by zoning (C-8 and individual CD-1s) developed to convert the former industrial uses to residential and local serving commercial uses. The portion of Arbutus Street north of 12th Avenue to Broadway, in combination with the Maple site (IGA and Liquor Store) has emerged as the heart of the local shopping area since redevelopment of the new Arbutus Neighbourhood began about 10 years ago. Current regulations and guidelines support a range of retail/service and residential uses up to 2.25 FSR with continuous pedestrian-oriented commercial uses at grade. Retail uses were only permitted on Arbutus Street in order to ensure a vibrant shopping street emerged. The Arbutus C-7/C-8 regulations and guidelines are working well and have resulted in a very liveable and attractive shopping street on Arbutus. No changes to these regulations or guidelines are proposed.
Issues Raised by Proposals
The Vine site plans are consistent with the proposed policies, however several key questions are raised by the Maple site proposal:
Retail Type
The range of retail uses permissible under C-3A was reviewed and is supportable given the conclusions of the LSA analysis. A wide variety of retail and service types are intrinsic to a healthy LSA, including hardware stores, paint and decorating stores and others which could be considered "home improvement". These are appropriate and beneficial to the local-serving function of the LSA. Staff concluded that scale and impacts are the issues, and not retail type.
Amount of Retail
On the Maple site, current policy would permit 46,750 sq. ft. (4343 m2) (1.0 FSR) of retail use. The most recent proposal for the Maple site included use of the City-owned lane and 80,000 sq. ft. (7400 m2) (1.71 FSR) of retail (72,000 sq. ft. [6700 m2] in one store - Home Depot). Given the findings of the local shopping area analysis and conclusions about the appropriate role for this area, staff have concerns with the amount and scale of the retail uses being proposed for this site. In addition to the amount of retail, staff also have reservations that the approach taken by the proponents to date of "wrapping" a large retail floorplate with residential is problematic from both a design and functional perspective.
Recommended Policies
a) Broadway - C-3A Area
Staff recommend confirming the current C-3A policy to limit commercial floorspace to a maximum of 1.0 FSR, with the remainder of the allowable density to be residential. Staff also recommend introducing a maximum store size of 40,000 sq. ft. (3700 m2). While the commercial density maximum (1.0 FSR) will place an upper limit on store size (e.g. Maple site - about 47,000 sq. ft (4400 m2); Vine site - about 58,000 sq. ft. (5400 m2), a 40,000 sq. ft., maximum store size will help insure that city-serving retail uses would be keeping with the primarily local-serving role of the Broadway-Arbutus LSA, and still allow a large LSA anchor (e.g. grocery store) to help complete the local shopping area function.
b) 10th Avenue - M-1 site
For the M-1 site, staff recommend confirming a maximum 2.25 FSR (with allowances for the daycare space), and that retail not be permitted. If the M-1 site is developed comprehensively with the C-3A site, a portion of the allowable C-3A retail could encroach on the M-1 site if a better overall development was achieved. However, total allowable retail space would not increase and the 10th Avenue frontage could not include retail uses.
These conclusions were based on the following:
Future LSA Role and Retail Capacity under Current Zoning
A thriving LSA requires healthy anchor stores, a range of retail and service uses, and continuity of retail activity at grade in the LSA core. Current retail capacity (up to l.0 FSR for the Broadway frontage) is sufficient to accommodate LSA expansion. Increasing retail capacity would reduce the preferred alternative use - residential - which helps support local-serving retail/service uses. Additionally, increased retail floor area on any one site could be a negative factor in achieving retail continuity in other emerging portions of the LSA core.
Space Requirements for Local Anchors and Compatible City-serving Retail Uses
Large store sizes are generally required by anchor stores (e.g. grocery and drugstores) and some city-serving uses. City-serving uses are a basic part of a healthy retail market and the larger Maple and Vine sites are two of a limited number of locations on the west side where medium sized city-serving uses could locate.
Given these factors, staff considered a size range that would allow for larger LSA anchors - such as supermarkets, and also accommodate city-serving uses of a scale that could be designed to fit within the neighbourhood context. Supermarkets generally range from 15,000 sq. ft. (1400 m2) (e.g. Stong's on Dunbar Street) to 50,000 sq. ft. (4600 m2) (e.g. Safeway at Broadway and MacDonald), and most are within a range of 25,000 to 40,000 sq. ft. (2300 m2 to 3700 m2) (see Appendix D for a list of Vancouver store sizes). City-serving specialty stores currently on Broadway, such as Toys-R-Us (31,000 sq. ft.), Office Depot (32,000 sq. ft) and Future Shop (27,000 sq. ft.), are also within this range and therefore an upper limit of 40,000 sq. ft. is recommended.
2. Height and Built-form
Current Policy and Practise
On Broadway the C-3A Guidelines in use since 1976 call for a height limit of 30 ft. (9.2 m) to 50 ft. (15.3m). This height limit does not allow the flexibility to achieve a more liveable, more desirable urban form, particularly on larger sites. Consequently, relaxations have been granted on a regular basis for numerous buildings over the years and current heights range up to about 85 feet (25.9 m).
On the 10th Avenue portion of the Maple site, the Arbutus Neighbourhood Plan supports a 40 ft. (12.2 m) building height relaxable to 45 ft. (13.7 m) (4 storeys). Subsequent C-7/C-8 zoning based on the Arbutus Plan introduced height relaxations to 60 ft. (18.3 m) (6 storeys) on 10th Avenue west of Arbutus Street to improve liveability for new units adjacent to higher existing and future buildings on Broadway.
Issues Raised by Proposals
Development proposals on both sites propose heights above the current guideline limits in order to achieve the allowable 3.0 FSR in a liveable form. The Vine site development plans originally proposed a height of about 85 ft. (25.9 m) and currently propose a portion of one building element at 78 ft. (23.8 m). The Maple site concepts suggest heights ranging between approximately 40 ft. (12.2 m) and 80 ft. (24.4 m) (up to 8 storeys).
On the 10th Avenue portion of the Maple site, staff have advised other enquirers in the past that some height flexibility could be considered given the need to accommodate the daycare and the precedent for height flexibility up to 60 ft. (18.3 m) in the C-7 portion of 10th Avenue to the west.
Recommended Policies
Broadway Height and Built-form
Increasing the conditional height limits to 55 ft. (16.8 m) (5 storeys) on smaller sites and to 70 ft. (21.4 m) (seven stories) on larger sites [125 ft. (38.1 m) and over] is recommended. These conditional increases would allow an improved building "fit" and response to adjacent buildings. Taller building elements would only be permitted for a portion of the building frontage, so that a continuous height of 30 ft. would occur at the street (street wall height), and taller elements would be located to optimize liveability, minimize overshadowing and overlook, and provide a good scale relationship to adjacent buildings including consideration of neighbouring views. The recommended height increases would also permit small public spaces to be accommodated at street level where appropriate. Building portions above 30 ft. would be limited to 2/3 of the site and heights above 55 ft. would be limited to a maximum of half of the site width to facilitate sunlight penetration and avoid bulky building forms.
Maple site - 10th Avenue (M-1 portion) Height
Height should be limited to 45 ft. (13.7 m) (4 storeys) with relaxations up to 60 ft. (18.3 m) to allow additional floor space and outdoor play area required to accommodate the daycare. Allowing height relaxations here would also be consistent with the C-7 zoned sites on 10th Avenue west of Arbutus Street where relaxations are considered to respond to the to higher existing and future buildings on Broadway.
3. Movement - Pedestrians, Cycling, Traffic, Parking and Transit
Current Policy and Practise
Traffic and Loading
Current policy and practice calls for proposed new development to adequately manage traffic and loading impacts and to pay for all required on and off-site mitigation measures. Parking and loading access should be from lanes to the extent that the lane can accommodate it, non-local traffic to be kept to arterials and traffic impact studies for large site redevelopment. Closure and sale of City lanes is only considered in special circumstances where it is not required for current or future utilities, and access and circulation can be adequately accommodated. There is a building line on the east side of Arbutus Street between 10th Avenue and Broadway to facilitate adding a dedicated left turn lane northbound at Broadway.
Pedestrians, Cyclists and Transit
Planned projects to prioritize walking, biking and the use of transit in the area include the approved bikeway on 10th Avenue [to be completed in 2004], a continuation of the 11th Avenue Greenway between Arbutus and Maple Streets and pedestrian/cyclist signals at Arbutus on 10th and 11th Avenues.
Broadway-Arbutus is a possible station location and transfer point for the Millennium Line which may extend along Broadway and terminate at Arbutus. Policy for the Arbutus rail corridor supports use for future public transit, and/or pedestrians and cyclists.
Issues Raised by Proposals
The retail uses proposed on both sites will be large traffic generators and improvements will be required to ensure commercial traffic is restricted to Broadway and the lane, and adjacent residential areas are not adversely impacted. It should be noted that the current Maple site uses (the IGA and BC Liquor stores) are already large traffic generators and the increase in traffic for a redeveloped site was not projected to be significant.
Maple Site
The Maple site presents some significant challenges for managing traffic, particularly with a large retail operation. The challenges include no vehicular access on the west side (rail line), limited access from Broadway (west bound vehicles must access the site from Maple) and 10th Avenue limited to residential access only. Further, Lord Tennyson Elementary School is immediately to the southeast of the site, together with the bikeway on 10th Avenue (with limited access) and a greenway on 11th Avenue (also with limited access). The preliminary traffic analysis undertaken by the proponents indicates traffic generated by the proposed development can be satisfactorily managed. However, given the restricted access factors, the need to accommodate large vehicle access and loading and concerns raised by neighbourhood residents, particular attention is required to address this issue through the next stages of rezoning and development review.
Closure and sale of the City lane on the Maple site with access from the current lane entrance and from Broadway is proposed. The size and location of the site provides an opportunity to reserve space for access to a possible future transit station and enhance the pedestrian environment by requesting setbacks or dedications.
Vine Site
Traffic impacts studies, prepared in conjunction with the development application, indicate that the current arterial street system can handle anticipated traffic increase with recommended improvements (a semi-actuated signal at Yew and Broadway and a left turn bay eastbound on Broadway at Arbutus).
Recommended Policy
Maple Site
A preliminary traffic study has estimated traffic generation on the Maple site based on the current concept. Staff's review concluded that no commercial traffic or truck loading should be permitted south of the current lane access, and that only residential access should be permitted on 10th. A further more detailed study will be required at the time of rezoning that reviews and confirms the estimated trip generation and allocates traffic to specific intersections for analysis. This review will also consider the special conditions of this site including the adjacent school, 10th Avenue bikeway and rail corridor. Recommended improvements will include traffic calming measures in consultation with surrounding neighbours, and restricted access to residential streets if necessary. Once both major projects are operational, further monitoring will occur to identify and address on-going or new traffic issues.
Vine Site
A detailed traffic study for the Vine Site has identified potential areas of concern and has recommended traffic calming measures to protect residential neighbourhoods, with specific measures and locations to be determined in consultation with the local community. Staff support a new signal at Broadway and Yew Street, as long as it is implemented with traffic calming for the area to the north. Staff also support a short left-turn bay on Broadway eastbound approaching Arbutus in order to reduce congestion on Broadway but only if a left turn signal is not permitted so traffic to northbound Arbutus is not encouraged.
Lane Closure
Proposed policies confirm City-wide policy that before lane closure or reconfiguration is considered, it must be shown that current and future utilities requirements can be met, and all aspects of traffic - circulation, parking, truck traffic and loading - will function at least as well as if the current lane configuration were maintained. In addition, a public benefit justifying lane closure should be demonstrated. If the lane is closed, the developer would be required to purchase it at current market value based on the blended density achieved for the entire site. If lane closure and sale was pursued, it would ultimately be dealt with in a report from the General Manager of Engineering Services.
Pedestrians and Transit
Proposed policies require a dedicated space at the northwest corner of the Maple site to provide access to a possible future transit station and to function as public open space, together with a 10 ft. building setback for sidewalk widening on Broadway near the potential station entrance. When site plans and a detailed traffic impact study are completed for the Maple site, traffic management measures and currently planned improvements (e.g. 11th Avenue Greenway, 10th Avenue Bikeway) can be integrated to provide a comprehensive "movement plan" for the area in the context of giving priority to walking, biking and transit.
Given the level of redevelopment proposed to occur in this three-block area of Broadway, and the objective of assisting the emergence of an attractive pedestrian oriented local shopping area, staff also recommend that the movement plan include a streetscape component that would recommend enhancements to the pedestrian environment in combination with the traffic calming and other required improvements. This could include additional landscaping, street trees, special sidewalk treatment and investigation of whether a landscaped centre median on Broadway from Vine to Maple Street is possible. These improvements could be funded by adjacent site developments according to normal city practise, and perhaps through City-wide DCLs.
4. Public Benefits
Current Policy and Practise
The Arbutus Neighbourhood Public Benefits Strategy requires a daycare to be provided on the Maple site (M-1 portion) and DCL funds to contribute to the daycare and construct the 11th Avenue greenway extension and Arbutus Street improvements. The Maple site is subject to two different DCL policies. City-wide DCLs are payable for all C-3A sites at $6.00/ sq. ft. (as of July 1, 2004) and so the C-3A portion would be subject to a $6.00/ sq. ft. charge. The M-1 portion is part of the Arbutus Neighbourhood DCL area where the DCL rate is $4.00/ sq ft. Any rezonings (including a consolidated Maple site rezoning) may be subject to Community Amenity Contributions (CACs) either based on the City's flat CAC rate of $3.00/ sq. ft. or established through negotiation.
On-going implementation of the Arbutus Neighbourhood Plan (ANP) Public Benefits Strategy and expansion of the Kitsilano Community Centre has provided a generally high level of public amenities in the area. The 11th Avenue Greenway will soon provide a dedicated pedestrian link from Lord Tennyson School to Connaught Park and Community Centre.
Recommended Policies
Remaining unmet needs relate primarily to improving the pedestrian environment and creating additional public space as part of developments. Pedestrian and general streetscape improvements will be considered as part of the Traffic Management/Movement Plan for the area. The height relaxations proposed allow larger sites to accommodate small public spaces at grade.
PUBLIC COMMENTARY
Public input to the policy review for Broadway-Arbutus began with an open house held in November 2003. Over 400 residents, property owners and business owners attended and submitted 250 response forms. Their future "vision" of Broadway-Arbutus proposed an area of small to medium scale development with a human scale and pedestrian character; buildings that preserved views and sunlight; more public open space and greening; and improved traffic, parking and transit services. Forty percent of the responses noted that they did not want "big box" retail in the Broadway-Arbutus shopping area. Staff considered these comments when preparing the draft policy directions.
On March 27-28, 2004, a second public open house was held to get public feedback on the draft policies. Representatives for the two development proposals, community groups and a group of local lumberyard and building supply retailers were also actively involved. Over 1,200 people attended the Open House and provided staff with almost 500 written response forms.
The response form was focused on gauging community support for the proposed policies. However, many of those attending simply wished to make a yes/no type response regarding the Home Depot Store and this made the compilation of the responses more challenging. In fact, almost 40% of the respondents wrote in a comment indicating opposition to Home Depot or "big box", even though the form did not specifically ask this question.
Overall, the responses indicated a high level of support for policies related to traffic and parking (74% support), pedestrians, biking and transit (81% support), and public benefits (77% support). Sixty-eight percent of the responses supported the proposed use and density policies which included limiting individual store size to 40,000 sq. ft. Almost a quarter of those who opposed the policies did so because they favoured a lower store size limit. The suggestions for a lower limit ranged between less than 10,000 sq. ft. to 35,000 sq. ft., with the majority suggesting 20,000-30,000 sq. ft.
The response to the policies for height and built form were almost equally divided between support (50%) and opposition (46%). Most of the comments in opposition to the proposed height suggested that the maximum height on Broadway should range between 4-5 storeys and that height along 10th Avenue should not exceed 4 storeys.
A survey undertaken by the Kitsilano Residents Association at the public open house on March 27-28 indicated support for smaller stores and lower buildings. Staff and Council have also received almost 200 emails and letters from groups and individuals, and more than 500 surveys from the Westside lumberyard and building supply retailers. The messages contained in the survey response and the additional correspondence were consistent with what was heard at the Open House (e.g. eighty-nine percent of the responses to the retailers' survey opposed a Home Depot store).
Based on the results of the survey, it is clear that there are two areas of proposed policy where the public have concerns: store size limit and building heights.
Store Size Limit
A majority (68%) of the public supported the proposed maximum individual store size of 40,000 sq. ft. however, there was a further 8% that indicated that store size limit should be lower. Of those who provided detailed comments, few (1%) suggested that the maximum store size limit should be increased above 40,000 sq. ft. The size of the existing IGA (28,000 sq. ft.) leads many to recommend that 30,000 sq. ft. would be a more appropriate limit. Six Kitsilano residents associations have proposed that the store size limit should not exceed 10,000 sq. ft. which is the size that the City has used as the minimum allowable size for "big box" retail in the highway oriented retail areas. However, they have also suggested that a larger store size limit of 30,000 or 40,000 sq. ft. could be considered if it was limited to grocery stores. Staff note that grocery and drug stores are a combined use category in the Zoning By-law. Examples of typical grocery and drug store sizes are contained in Appendix D.
Building Height
While there was significant public support (50%) for the proposed heights, a large number of respondents (46%) supported keeping heights to 50 ft. (15.3 m) or less on Broadway and 40 ft. (12.2 m) on 10th Avenue.
Proponent Response
The proponents for both development proposals were invited to provide comments about the Broadway-Arbutus policies. The following summarizes their responses.
Comments from Proponent for Maple Site (Home Depot)
Home Depot has advised staff that the previous proposal for the site should be considered withdrawn and that there is no current proposal. On the proposed policies they disagreed with staff's conclusion that Broadway-Arbutus is an emerging local shopping area and proposed that it should be compared to S.E. Marine Drive and Grandview Highway (highway oriented retail zones) instead of the 4th Avenue and Kerrisdale shopping areas. They did not support limiting commercial uses to 1.0 FSR along Broadway or limiting the maximum size of individual stores to 40,000 sq. ft. (latest proposal by Home Depot was for 72,000 sq. ft.). They also did not support the proposed setback requirement along Broadway or the requirement for open space at the northwest corner of the Maple Street site, both of which are intended to provide for potential future transit services at this location. They believed the policy review was biased against Home Depot and that the conclusions were flawed.
Comments from Proponent for Vine Site
The Vine site proponents support staff's position that Broadway-Arbutus should be treated as a local shopping area because of the contribution it will make to creating a complete community. While they had some overall policy suggestions as noted below, they concluded that they supported the work done to date and that their project would be redesigned to meet the policy recommendations. Although they agreed with the policy of limiting store size, they suggested that the maximum size be increased from 40,000 sq. ft. to 50,000 sq. ft. because large format grocery stores require this higher limit. They also suggested that the presence of large format stores could be reduced by locating floor area below grade, (i.e. Safeway in City Square). They supported limiting retail uses to 1.0 FSR and encouraged more flexible height policies to accommodate residential density. They noted that it was difficult to achieve 2.0 FSR of residential use with the proposed policy height of 55 ft., even with relaxations up to 70 ft. They suggested that towers of up to 100 ft. should be considered on sites where the urban design is merited and views, shadows, etc. are not a problem.
Staff Response to Public and Proponent Comments
Staff have reviewed the changes to the proposed policies for maximum individual store size and building height as requested by a portion of the public and the development proponents. With respect to maximum store size it is noted that compatible city-serving uses are a basic part of a healthy LSA and the Maple and Vine sites are two of a limited number of locations on the west side where medium sized city-serving uses could locate. It is very likely that at least one of these sites will include a grocery store (a grocery store is part of the current Vine St. development application) which would be both local- and city-serving.
While medium scale retail uses are appropriate in a healthy LSA, very large scale retail (even grocery store) developments are not, due to impact, incompatible scale and loss of residential capacity issues. Staff do not, therefore, support increasing the maximum store size to 50,000 sq. ft. or 72,000 sq. ft. as suggested by the development proponents. Lowering the maximum store size, except for grocery stores, as suggested by a portion of the public, will further restrict the already limited site opportunities for medium sized local and city-serving retail. Staff do not, therefore, recommend further adjustments to the recommended 40,000 sq. ft. maximum store size. The 1.0 FSR maximum commercial floor area limit and the existing smaller parcel subdivision pattern in the remainder of this area will likely result in predominantly smaller scale retail operations (less than 20,000 sq. ft.) with one or two medium scale operations, limited to 40,000 sq. ft. Limited to this size, impacts and scale can be managed successfully, noting that specific development approvals are subject to applicants demonstrating impact mitigation and compatible scale issues are addressed.
With respect to building height on Broadway, experience with other C-3A buildings has shown that height flexibility results in a more liveable building that responds to adjacent buildings and the street by balancing higher elements (up to 70 ft. (21.3 m) with lower (30 and 40 ft.) elements to ensure issues such as sunlight penetration, scale relationships and overlook issues are addressed. In addition, height flexibility will allow small public spaces along Broadway to be achieved. The proponents request for height relaxations up to 100 ft. is not considered appropriate for this portion of Broadway.
For the M-1 portion of the Maple site, in order to achieve a daycare and still accommodate the allowable density, height flexibility above 40 ft. (12.2 m) is required. In addition, flexibility will allow for a better response to the adjacent C-3A portion if these sites were to redevelop independently. This height flexibility mirrors similar provisions in the C-7 zoning for the remaining 2 blocks of 10th Avenue within the Arbutus Neighbourhood. These sites were permitted height relaxations up to 60 ft. (18.3 m) to improve liveability adjacent C-3A buildings by allowing greater rear setbacks, if impacts to surrounding buildings were not significant.
CONCLUSION
Staff have completed a comprehensive analysis and public review of the Broadway-Arbutus local shopping area in the context of the Neighbourhood Centre that has emerged, and the policy issues raised by two major development proposals on Broadway. The Broadway-Arbutus policies and the Broadway-Arbutus C-3A Guidelines are recommended for adoption by Council to guide current and future applications for development in this three block portion of Broadway and on the M-1 portion of the Maple site. These documents will augment the existing Arbutus Neighbourhood policies C-7/C-8 and CD-1 Zoning regulations and Guidelines in place for the remainder of the area, to help guide the emergence of an attractive and vibrant local shopping area in this part of Kitsilano.
- - - - -
APPENDIX A
Proposed Broadway-Arbutus Policies
Broadway-Arbutus Local Shopping Area Objectives
A. To support a strong local-serving LSA that is the commercial focus for the Broadway-Arbutus Neighbourhood Centre.
B. To encourage local-serving small scale retail/service uses in the area.
C. To encourage needed local-serving anchors in the LSA, including one or more full service grocery stores.
D. To ensure that the size and scale of future city-serving retail and service uses are compatible with the surrounding neighbourhood and do not detract from the local-serving component of the LSA.
E. To maximize the amount of supporting residential floor space close to the LSA by confirming current policy to favour residential space over commercial space in this portion of Broadway C-3A.
F. To ensure future developments and street improvements give priority to walking, biking and transit by helping to make these modes attractive, safe and convenient.
G. To ensure that vehicular traffic is well managed so that the area remains accessible, and surrounding residential areas are not negatively impacted.
H. To ensure that the physical form and design of new buildings enhances the pedestrian and residential environments.
1.0 BROADWAY-ARBUTUS PROPOSED POLICIES AND COMMENTARY
1.1 Uses and Density
Proposed Policy
A. For Broadway (between Maple and Vine Streets), confirm current policies for uses and density - up to 3.0 FSR total with 1.0 FSR retail/commercial at grade and the remaining floor space to be residential.
B. Limit individual store sizes to a maximum of 40,000 sq. ft.
C. On Broadway continuous retail/service uses at grade is preferred, but local serving, small scale, office uses (e.g. Dental office) would be considered if pedestrian interest is maintained and overall design contributes to street character.
D. For the portion of the Maple site fronting 10th Avenue (M-1 site), confirm current density maximum of 2.25 FSR, with choice of use (residential or commercial), but do not permit retail except as provided for in E.
E. If the Maple site develops comprehensively as a single land parcel, to achieve a better overall development consider flexibility in location of uses on the site within the allowable density maximums, but only if the 10th Avenue frontage is residential.
1.2 Height and Built-form
Proposed Policy
Broadway:
A. Generally limit heights to a maximum of 55 ft. (allowing up to 5 storeys - one or two commercial and up to 4 residential).
B. Consider height relaxations up to 70 feet (allowing up to 7 storeys - including one or two commercial and up to 6 residential) where it can be shown that:
· Overshadowing and overlook impacts to adjacent residential areas and sidewalks are improved;
· A better scale relationship to adjacent buildings is created;
· On-site street level public open space is achieved;
· Overall liveability of the residential units is improved, and
· Slimmer building form results.
C. Limit heights above 55 feet to a maximum of 50% of the frontage for sites exceeding 150 feet in length.
D. A street wall height of 30 to 40 feet on Broadway is recommended.
E. Height should generally be lower near the adjacent RM-4 District where 30 and 40 foot heights are common.
F. On the north side of Broadway, higher building massing should be located at the Broadway property line to reduce shadow and overlook impacts to the smaller scale residential buildings on 8th Avenue.
G. On the south side of Broadway, building massing should ensure substantial sunlight penetration to the north sidewalk at equinox.
H. Street walls on large sites should be articulated to improve design interest.
I. In general, higher building massing is most appropriate at corner locations where overshadowing impacts are less and height can be used to frame street corners.
Maple site - 10th Avenue (M-1 portion):
A. Generally limit heights to 45 ft.
B. Allow relaxations up to 60 ft. to accommodate the daycare, or to respond to the adjacent C-3A development, where it can be shown that:
· Overshadowing and overlook impacts to adjacent residential areas and sidewalks are manageable;
· A better scale relationship to adjacent buildings is created;
· On-site open space for the daycare is achieved;
· Overall liveability of the residential units is improved.
1.3 Movement - Pedestrians, Traffic and Parking
Proposed Policy
General:
A. All vehicular access to sites on Broadway should be from the lane behind Broadway where lane access exists.
B. Commercial truck access and loading should be from lanes.
C. On the north side of Broadway, (as sites redevelop) require a lane dedication to complete the 20 foot wide lane system where there is no lane or where this width has not already been achieved.
For the Maple site:
D. All non-local vehicular access and circulation should be contained at or north of the current lane entrance on Maple Street.
E. The closure or exchange of the City-owned lane should be supported only if it can be shown that access, circulation, parking and utility needs will function at least as well as if the lane were retained in its current configuration.
F. If the lane is closed and the site consolidated, all parking and loading should be contained internally, with access at the current lane location and, if necessary, on Broadway at the location with the least impact to the pedestrian realm.
G. A setback from the Arbutus rail corridor should be considered to facilitate a more direct connection for pedestrians between the retail/service uses on Broadway and Arbutus Street.
Proposed Actions
A. For the Vine site, implement measures recommended by the traffic and parking study.
B. For the Maple site, once a specific proposal is made in accordance with these policies, complete a neighbourhood traffic and parking impact study and implement the measures as recommended.
C. When plans and traffic impact studies for the Maple and Vine sites are complete, integrate recommended traffic management measures with currently planned improvements (e.g. 11th Avenue Greenway, 10th Avenue Bikeway) to provide a comprehensive traffic management/movement plan for the area in the context of giving priority to walking, biking and transit. NEW The plan should include a streetscape component and shoul consider enhancements to the pedestrian environment, such as additional landscaping, street trees, special sidewalk treatment and a landscaped median on Broadway.
D. Request Engineering Services to report back on the effectiveness of the traffic management measures within 2 years of development completion for these sites, and to recommend any changes or additional traffic management measures required.
E. On-street parking regulations in the area should be reviewed in consultation with area owners and businesses to ensure on-street parking is put to best use and to help provide a better pedestrian environment.
1.4 Transit
Proposed Policy
A. Require a 10 ft. building setback on Broadway for the two block faces on the east side of Arbutus Street (within 200 ft. of the likely station entrance locations) as these sites redevelop and until such time as the location of the Millennium Line transit station entrances are known. This space would be used to accommodate additional pedestrian traffic from a future transit station and allow space for planters, larger street trees, outdoor seating etc. Allow underground parking to encroach into this 10 foot setback.
B. When the Maple site redevelops, require a public open space dedication at the northwest corner of roughly 50 ft. by 50 ft. with future use to accommodate access/egress to a Millennium Line transit station and to be landscaped as public space in the interim. Do not permit underground parking under this space.
C. Require future development on sites adjacent the Arbutus corridor to respond to the impacts of possible future transit.
1.5 Public Benefits
Proposed Policy
A. Continue to require a daycare facility be constructed as part of the Maple site redevelopment or allow applicants to provide a suitable daycare facility elsewhere within the Arbutus Development Cost Levy (DCL) area. Permit a FSR exclusion for the daycare space if it is constructed as part of the Maple site redevelopment.
B. Review street and pedestrian related improvements which will contribute to the goal of achieving a safer and more attractive pedestrian environment and better linkages to parks and greenways. Require adjacent development to construct these improvements according to current City practise.
C. To assist in creating a more attractive and usable pedestrian environment, request large sites to provide small street level public spaces.
APPENDIX B
Broadway-Arbutus C-3A Guidelines
APPENDIX C
Development Proposal Statistics
Maple Site Proposal (Rezoning Inquiry)
Permitted or Required by Proposed Policies |
Development Proposal
| |||
C-3A portion |
M-1 portion |
Combined |
||
Site Area (sq. ft.) |
46,750 |
46,700 |
93,450 |
102,850 |
Total FSR
|
3.0
|
2.25
|
2.625
|
2.625
|
Residential FSR (Floorspace in sq. ft.) |
2.0
|
2.25
|
2.125
|
2.03
|
Retail FSR
|
1.0
|
n/a |
1.0 based on C-3A portion
|
1.71 (based on C-3A portion)* (80,000) |
Individual Store Size (sq. ft.) |
40,000 |
n/a |
40,000 |
72,000 |
Parking |
208 spaces |
140 spaces |
348 spaces |
Not defined |
Commercial Parking Access |
Restrict to Maple/lane
|
Restrict to Maple lane |
Restrict to Maple/lane
|
Off Maple St. |
Loading |
3 spaces |
n/a |
3 spaces |
Not defined |
Height |
30 ft - 70 ft. |
45 - 60 ft. |
N/A |
Not defined |
*Proposed development would use City lane and a portion of the M-1 site for retail
