POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Rezoning - 1885-1895 Venables Street

 

RECOMMENDATION

                    (i) plans received April 15, 2004;

                    (ii) draft CD-1 By-law provisions, generally as presented in Appendix A; and

                    (iii) the recommendation of the Director of Current Planning to approve, subject to               conditions contained in Appendix B.

B. THAT, subject to approval of the rezoning at a Public Hearing, the Noise By-law be amended as set out in Appendix C; and

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

It is the City's long-term goal to protect, through voluntary designation, resources on the Vancouver Heritage Register.

PURPOSE AND SUMMARY

This report assesses an application to rehabilitate and expand the Vancouver East Cultural Centre, including heritage designation of the existing building and certain interior elements. The application proposes to restore the existing main theatre and develop new facilities for a studio theatre, rehearsal studio, administration and improved back of house facilities at an overall floor space ratio (FSR) of 1.4 and the provision of below-grade and on-grade parking for 24 vehicles.

DISCUSSION

Background: The Vancouver East Cultural Centre (VECC) was originally built as the Grandview Methodist Church in 1909. Additions were planned for the eastern portion of the site but were never realized. The building functioned as a church until 1967, then was used to serve a variety of community needs. In 1973, it was renovated into a Cultural Arts Centre and purchased by the City of Vancouver in 1977. The site was included in the first list of properties that formed the Vancouver Heritage Inventory in 1986, and subsequently removed from the Inventory in 1988 through a Council initiative to remove all isolated "C" buildings. The building was recently re-evaluated and, on July 19, 2004, the Vancouver Heritage Commission approved the rating and supported the addition of the building onto the Vancouver Heritage Register in the "B" category. The value of the building lies within its form and interior details and as one of the few remaining early Methodist Church buildings in Vancouver. In addition the "Cultch" is seen as local area landmark.

The 384-seat VECC has been operating as a cultural centre in this City-owned site since 1973 although it has never been a conforming use under the current RT-5 zoning and has many physical challenges as a performing arts facility. The Green House (1885 Venables), which was originally the church manse, is separate from the existing building (1895 Venables).

Use: The proposal is for a continuation of the same use, i.e., Cultural and Recreational -Theatre, a use which is not permitted use under the current RT-5 zoning.

Density: The current zoning allows a floor space ratio (FSR) of 0.6 although the current FSR is 0.684. The proposed FSR is 1.4.

Form of Development (Note Plans: Appendix E) The form of development will retain the original 1909 church building structure with its distinctive polygonal roof form capped by a belfry ventilator. More recent additions, like the 1977 one-storey staff offices, will be removed and new additions with a more contemporary architectural expression will flank the original building.

The main theatre will be reduced in capacity to 300 seats and the front of house facilities will be located further west than at present. The Green House to the west will be replaced with an 80-seat studio theatre which will share the front of house. The addition to the east on the existing parking lot will accommodate a larger stage area, new back stage facilities, green room, rehearsal and administration functions. An elevator tower is proposed where there was to have been the church bell tower. New development will not exceed the height of the existing building. The overall density is proposed to be 1.4 FSR and site coverage 61%. Besides the street trees along Venables Street, the only major landscape features proposed to remain is the large conifer at the corner of Venables Street and Victoria Drive and a mature tree adjacent to the lane.

Parking: There are 20 at-grade parking spaces on site, primarily on an existing gravel parking lot between the theatre and Victoria Drive. Twenty-four, primarily below-grade spaces, including 8 small car spaces and 3 disability spaces, are proposed. Engineering Services recommends 26 spaces, including a minimum of 2 disability spaces. They calculate that for the same seats-to-parking ratio to be maintained as exists now, there would need to be 30 parking spaces. However, in consideration of heritage designation, the upgrade of the existing gravel parking lot to a paved surface treatment, the efforts to provide additional parking underground, the provisions for disability parking, and the likely hardship of trying to provide 4 further parking spaces to maintain the existing balance, the application should not be required to provide more than the 26 spaces proposed (i.e., 24 spaces of which at least 2 are disability spaces). For more information, refer to Appendix D, Parking.

Eight below-grade Class A bicycle parking stalls are proposed for staff and a minimum of 12 Class B bicycle parking spaces will be provided by bike racks for event attendees.

Public Benefit: The Vancouver East Cultural Centre - affectionately referred to as the "Cultch" - is an important cultural facility in Vancouver. There is strong support for its renewal which will improve its ability to continue to deliver important cultural programming far into the future. Its designation as a "B" category building is also considered a significant benefit to the Grandview-Woodlands community and the City.

The project, because it is a cultural facility and is related to heritage preservation, is exempt from Community Amenity Contributions (CACs). Development Cost Levies (DCLs) will be applicable to new construction.

Public Input: Response to this application has been limited but positive. Most concerns were with parking in the neighbourhood, which is perceived to be a problem not just due to the VECC but also the proximity to the WISE Hall and Commercial Drive. Refer to Appendix D for more information.

CONCLUSION

Planning staff support the continued use on this site and the proposed density and general form of development, conditional upon heritage designation of the building and specified interior features. Accordingly, the Director of Current Planning recommends that the application be referred to a Public Hearing and approved, subject to the proposed 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.

Use

Density

Height

Parking

Acoustics

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL

Note: Recommended approved 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.

FORM OF DEVELOPMENT

(a) That the proposed form of development be approved by Council in principle, generally as prepared by Proscenium Architecture + Interiors Inc. and stamped "Received City Planning Department April 15, 2004", provided that the Director of Planning may allow minor alterations to this form of development when approving the detailed scheme of development as outlined in (b) below.

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(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:

AGREEMENTS

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

APPENDIX C

DRAFT AMENDMENTS TO NOISE BY-LAW NO. 6555

Amend Schedule B by adding the following:

"[CD-1 #] [By-law #] 1885 - 1895 Venables Street"

APPENDIX D

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 2 220.7 m² (23,904 sq. ft.) site is comprised of four parcels on the north side of Venables Street east of Victoria Drive. The site has a frontage of 60 m (196.9 ft.) and an average depth of 37.1 m (121.6 ft.). The site slopes down more than a storey, almost 4 m (12.5 ft.), from east to west.

All properties adjacent to the VECC south of the lane, including the lots on the east side of Victoria Drive, are zoned RT-5, zoning that emphasizes external design to be compatible with the historical character of the area and on being neighbourly in scale and placement. All adjacent properties north of the lane, including the lots on the east side of Victoria Drive, are zoned RM-4, which allows a variety of multiple dwelling types. Most of the other development south of the lane is comprised of older one and two unit houses. North of the lane is the WISE Hall, which was originally built as the church hall and gymnasium, apartment buildings and a park further to the west (which is zoned RS-1). Along Victoria Drive, adjacent to the site, is a mix of older homes and apartment buildings. Directly across Victoria Drive is St. Francis of Assissi School. East of the lots on the east side of Victoria Drive, the properties are zoned RT-4.

Proposed Development: The applicant proposes to redevelop and expand the VECC to address the spatial challenges it faces as a performing arts centre to better fulfill its mandate. Structurally, the objective is to rehabilitate the exterior and retain and rehabilitate significant interior elements of the existing building. These elements, which will be designated, include the balcony guard rail, the curved wooden stair to the balcony and the colonnaded balcony structure. Proposed new construction will be a western extension that will replicate the massing of the existing Green House and addition of a new administration/rehearsal wing to the east.

The main theatre will reduce its capacity to 300 seats and the front of house will be relocated further to the west than at present. The Green House will be replaced with an 80-seat studio theatre which will share the front of house facilities. The proposed addition to the east (on the existing gravel parking lot) will accommodate a larger stage area, new back stage facilities, green room, rehearsal and administration functions. An elevator tower is proposed where the original plans called for a church bell tower. The top of the existing cupola topping the steeply sloped octagonal roof form is at about 17.9 m (58.7 ft.) above grade. Proposed new development will be lower and will not exceed 14.4 m (43.9 ft.). The overall FSR is proposed to be 1.4 and site coverage 61%.

The restoration and expansion plans will be undertaken in three phases to accommodate construction of the underground parking, studio theatre, rehearsal hall, lobby expansion and offices for the VECC and the resident theatre companies:

· Phase One - New Office and Rehearsal Facility
· Phase Two - "VanCity" Studio Theatre plus Gallery & Foyer
· Phase Three - Upgrade of Existing Theatre Building

Besides the five Rock Elm street trees, the only major landscape features proposed to remain is the large conifer at the corner of Venables Street and Victoria Drive and a mature tree adjacent to the lane. The row of six White Poplar trees parallel to Victoria Drive has been recommended for removal and replacement by the project Arborist due to the proximity of major construction on the west, proposed road widening on the east and their low species value.

Public Input: Prior to submitting their application, the VECC held an open house on January 18, 2004 between 5:00 p.m. and 7:00 p.m. Eleven people signed in. Most people were curious and supportive. Comments were received from three people. Two people were concerned with parking in the area and speeding in the lane. One disliked the contemporary design of the additions.

Subsequent to application, a notification letter was sent to nearby property owners on May 11, 2004 and rezoning information signs were posted on the site on May 11, 2004. One phone call was received from a resident concerned about parking in the area and no one came to City Hall to view plans. Four letters and e-mailed messages expressing opposition were received from nearby residents. Three were concerned with parking in the area, which they feel is challenging due to, beyond the Vancouver East Cultural Centre, the increased attraction of Commercial Drive (becoming more of a city destination), the WISE Hall activities and the area east of Victoria Drive being "closed off" due to traffic calming measures. One letter was concerned about the modern style of the proposed additions and hoped for more Victorian expression, principal concerns as follows:

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. Since parking in the area seems to be the only major concern with the proposal, the Parking Branch provided the following additional comments on the parking proposed, taking into account the report to the City of Vancouver dated December 9, 2003, on parking review for the Vancouver East Cultural Centre by the Ward Consulting Group.

"The Ward study concluded that `there is sufficient on-street parking ....to accommodateguests at the VECC, residents, and other visitors in the area. Since overall seating at the theatre will not be increased, and on many occasions will be less than currently provided, the proposed redevelopment of the VECC should not impact non-theatre visitors access to public parking in the area.'

At present time, the Centre has the equivalent of 20 spaces in a gravel lot for about 250 seats, with no marked disability space. With addition of the Studio Theatre, there will be a total of about 374 seats and 24 paved spaces, including 3 disability spaces. From first principles and information from the Ward report, there is an annual attendance of about 30,000 people at 250 events, averaging 120 attending per event (for the250-seat Main Theatre). Scaled upward for the increased seating in the expanded facility, we may expect 180 attending for the two theatres combined, still well below a sell-out event at the larger Main Theatre by itself.

Ward documented that 75% of attendees came by vehicle, but most survey respondents of those coming by car were the drivers rather than the passengers; in the absence of data from this study on the average size of a party, use 2.0 to 2.25 persons per party, or say 2.15 persons per party (180 x 0.75) /2.15 = 63 vehicles for guests. Allow 2 vehicles for performers and allow another 10 vehicles for the 6 to 50 staffers (say one per four on a night when neither theatre is dark, with 40 staff present). Thus, demand would approximate 75 parking spaces on an average night when both theatres were active. This generates a requirement for 2 disability spaces.

Note that there is an expectation that the main theatre will receive heritage designation. Also Consider that in the Ward report, parties coming by car found readily available on-street parking within two blocks of the theatre. The on-street surveys were inconclusive to the extent that on a night with no event, the pattern of increasing on-street parking density was similar to those nights with events. However, rarely did any block exceed 85% occupancy for its on-street parking, leading to the conclusion that street parking generally is available to fulfill the Centre's needs.

The 75 space requirement determined above is consistent with the lift in on-street parking demand for event nights. Given that 2 of the 3 proposed disability spaces may be double-counted among "provided parking", since 2 are required for a 75-space (unrelaxed) total requirement, the provided parking should be credited at 26 spaces. For the same seats-to-parking ratio to be maintained as exists now, there would need to be 30 parking spaces. However, in consideration of heritage designation, the upgrade of the existing gravel parking lot to a paved surface treatment, the efforts to provide additional parking underground, the provisions for disability parking, and the likely hardship of trying to provide 4 further parking spaces to maintain the existing balance, the application should not be required to provide more than the 26 spaces proposed (i.e., 24 spaces of which at least 2 are disability spaces)."

Cultural Affairs Comments: The Office of Cultural Affairs has reviewed the plans for the rezoning application and can report that the plan for the theatre is well designed as a functional space for both performing artists and their audience. They also provided the following comments:

"Established as an arts centre in 1973, the VECC provides social and cultural services to the community of East Vancouver and the citizens of Vancouver. The Centre and adjacent house are both in a significant state of disrepair. The plan envisions the division of the current seating capacity of the existing theatre into two smaller theatre spaces and an increase and improvement of public, technical and production support areas. These changes are expected to enhance programming, improve public exhibition and access, increase production and rental prospects for the centre."

Fire Department Comments: The Fire Department had the following comments where clarification or further review were required:

· The Architect needs to review building height and building requirement implications;
· The proposed main entrance (about 12 m [39 ft.] from the Venables Street curb) does not provide fire department with access to all above and below grade levels. The new administration entrance (about 8 m [26 ft.] from the Venables Street curb and further to the east) does provide Fire Department access to all levels. However, this entrance is not prominent. The Fire department would respond to the new main entrance. Therefore, further review is required on Fire Department access to the building and to all levels from the Fire Department response point.

The Fire Department also commented that the occupant load and exiting requirements should be reviewed.

The applicant reviewed these concerns with the Fire Department and concluded most were easily solved. They came to the agreement that the Fire Department response should be to the administration wing entrance, being the logical spot that allows access to all floors and closest to the street. The concern is that it is not the predominant entrance and its lobby may be a bit tight if people are exiting during the fire response. However, in terms of function, it is best that the administration wing entrance remains secondary to the main theatre entrance. The Fire Department's concern is that like the public, the Fire Department will go to the main theatre entrance. Therefore, the easiest solution will be to increase the width of the administration entrance lobby and to add a fire response strobe light that will indicate the response door when the fire alarm is triggered.

Regarding the issue of how many storeys the building is, the existing building is one- storeywith a basement and a mezzanine. The proposed lobby addition is two storeys with a basement. (This is the only questionable area, in terms of building code, so due to grades falling off in the lane it may need to be classified as three storeys but no basement.) The administration wing is three storeys on grade with no basement. The only building element that extends to four levels is the elevator shaft. In its current location there is no question that its bottom stop is at a basement level. Therefore, it should be classified to be a three storey building overall.

Environmental Health Comments: Beyond the requirements for the proposed by-law, the Environmental Health Division will require confirmation by the applicant, at the development permit stage, that:

· the acoustical measures will be incorporated into the final design, based on the consultant's recommendations as concurred with or amended by the Medical Health Officer (Senior Environmental Health Officer); and
· the mechanical (ventilators, generators, compactors and exhaust systems) will be designed and located to minimize the noise impact on the neighbourhood and to comply with the Noise By-law No. 6555.

Public Benefit: The Vancouver East Cultural Centre - affectionately referred to as the "Cultch" - is an important cultural facility in Vancouver. There is strong support for its renewal which will improve its ability to continue to deliver important cultural programming far into the future. Its designation as a "B" category building is also considered a significant benefit to the Grandview-Woodlands community and the City.

The project, because is a cultural facility and is related to heritage preservation, is exempt from Community Amenity Contributions (CACs). Development Cost Levies (DCLs) will be applicable to new construction.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on June 9, 2004 and supported the proposed use, density and form of development and offered their consensus on key aspects needing improvement:

The Chair noted the following key issues arising from the Panel's commentary:

· General simplification of architectural expression, with particular attention to a greater visual clearance with respect to the existing roof element; and
· Improvement of the landscape integration with the architectural strategy of the building, particularly on the Victoria Drive side.

The Panel also offered this related commentary:

The Panel strongly supported this application and acknowledged the challenge of fitting the program onto a constrained site while preserving the architectural and cultural heritage of the much-loved "Cultch".

The Panel unanimously supported the modern, contemporary architectural expression of the new additions. This is much preferred to any kind of historicist approach which would be strongly resisted by the Panel. Panel members were, however, concerned that the new additions seem to be "pinching" the original structure, and the general massing of the additions appears to be fighting with the form of the original building, particularly on the easterly side. The need for height for the fly tower was acknowledged but the applicant was urged to look at ways to give the existing roof form more breathing room and to simplify the architectural expression as much as possible. One Panel member suggested lightening up the canopy as a way to create some transparency into the new building. Some Panel members questioned the appropriateness of the roof peak on the studio addition because it competes with the original roof form, and there was a recommendation to ensure the horizontal expression is continued around to the rear elevation. With respect to the Victoria Drive façade, one Panel member found it rather blank and disappointing and suggested looking at ways to introduce some openings to enliven the street. A comment was made that it seems a lost opportunity not to provide some view into the rehearsal studio. A member of the Panel observed that a positive feature of the existing VECC is its indoor/outdoor spill area and recommended looking at ways to maintain it.

The Panel had no concerns with the relationship to the existing house to the west which it generally found to be quite successfully handled.

The Panel generally supported the pedestrian quality on the Venables and Victoria frontages. Some Panel members found the landscape in front of the east wing to be somewhat suburban and suggested it should better complement the modern expression of the addition, possibly with more hard landscaping. Another comment about the landscape was that the planting plan at the westerly end seems very institutional in character where a more residential approach might provide a better transition to the residential neighbours.

A Panel member suggested that further consideration be given to the treatment of the lane at grade level and noted the disabled parking access seems a bit awkward.

The Panel requested that the application be returned for review at the development application stage.

Vancouver Heritage Commission Comments: The Vancouver Heritage Commission reviewed this proposal on June 28, 2004 and considered the following issues for this formerly C-listed building on the Vancouver Heritage Register:

· compatibility of proposal with heritage values of the building (i.e., use and domestic quality);
· impact of proposal on Character Defining Elements:

· character of additions (compatibility and distinguishability); and
· heritage process: requirements to add building to Register, designate exterior and selected interior elements.

The Commission unanimously resolved "that the Vancouver Heritage Commission supports the heritage conservation aspects of the project at 1885-1895 Venables Street (Vancouver East Cultural Centre), as presented at the June 28, 2004 meeting, noting that the Commission requests the heritage evaluation be brought back to the Commission."

Environmental Implications: The proposed rezoning neither contribute to nor detracts from the objective of reducing atmospheric pollution.

Social Implications: There are no major positive or negative social implications to this proposal. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

Comments of the Applicant: The applicant has been provided with a copy of this report and has provided the following comments on the Form of Development conditions:

"The proponent supports the Form of Development with the following comments*:

- the proponent reinforces the simplification of the design and detailing of the east and west additions to the existing building in a contemporary manner, as outlined in paragraphs (1) and (3) and as suggested by the Urban Design Panel on page 5 and 7 of Appendix D.

- The proponent will work to reduce the pinching effect on the existing roof. The height added to the stage is for overhead performance lighting and the support of scenic elements that are on the performance platform.

- The proponent will investigate the use of the heritage stair as part of the existing system for the administration offices on the third floor of the east addition to eliminate the need for the stair tower referred to in Paragraph (b) (3) on page 2. This is however in direct conflict with the Fire Department comments on pages 4 and 5 of Appendix D.

- The proponent is concerned that: given the location of the existing building; the benefit of locating the bulk of the parking below grade; and, the requirement of a setback adjacent to the residential property to the west, it would be a great financial hardship to remove the existing stone foundation of the church building to provide the 6.6 meter manoeuvring aisle referred to in Paragraph (b) (9) on page 3. Given the existing condition the proponent requests that Director of Planning permit the manoeuvring aisle to be 6.1 m, as allowed for in paragraph 4.7.5 of the City of Vancouver Parking By-law."

*Note: These comments can all be resolved at the development application stage.


APPENDIX E

This is for Drawings under `PDF' files (total 7 pages).

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

1885 - 1895 Venables Street

Legal Description

Lots 13- 6 [except the north 8 feet now lane] of Lot 9, Block E, DL 183, Plan 180 Group 1,

Applicant

Proscenium Architecture + Interiors Inc.

Architect

Hugh Cochlin

Property Owner

City of Vancouver

Developer

Not yet determined

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

2 220.7 m² (23,904 sq. ft.)

115.5 m² (1,243.3 sq. ft.)

2 105.2 m² (22,661 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

RT-5

CD-1

  

USES

Various community uses but not Cultural and Recreation - Theatre

Cultural and Recreation -Theatre

  

DWELLING UNITS

0

0

  

MAX. FLOOR SPACE RATIO

0.6

1.4

  

MAXIMUM HEIGHT

10.7 m (35.1 ft.)

10.7 m (35.1 ft.)

  

MAX. NO. OF STOREYS

2 ½

3

  

PARKING SPACES

n/a

26

  

FRONT YARD SETBACK (Venables St.)

7.3 m (24 ft.) but relaxable to depths of adjacent front yards

3.41 m (11.2 ft.)

  

WEST SIDE YARD SETBACK

1.5 m (5 ft.)

1.5 m (5 ft.)

  

EAST SIDE YARD SETBACK*

3.7 m (12.1 ft.)

3.7 m (12.1 ft.)

  

REAR YARD SETBACK*

7.7 m (25.1 ft.)

3.93 m (12.9 ft.)

  

* Based on pre-dedication site.

* * * * *

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