Vancouver City Council |
POLICY REPORT
URBAN STRUCTURE
Date: November 30, 2004
Author/Local: P. Mondor/7727
RTS No. 03655
CC File No. 5303
Meeting Date: December 14, 2004
TO:
Vancouver City Council
FROM:
Director of Current Planning
SUBJECT:
201 Burrard Street (Burrard Landing) - CD-1 Text Amendment
(Parcel 2A at 299 Burrard Street)RECOMMENDATION
THAT the revised application by Via Architecture and James KM Cheng Architects, to amend CD-1 By-law No. 7679 (# 363), to allow General Office Live-Work, Retail and Service uses in addition to Hotel and Office uses on Parcel 2A (299 Burrard Street) in Sub-Area 1 and to allow a change to the form of development previously approved in principle, be referred to Public Hearing together with:
(i) draft CD-1 by-law amendments generally as presented in Appendix A,
(ii) plans prepared by James KM Cheng Architects received November 30, 2004, presented in Appendix D, and
(iii) the recommendation of the Director of Current Planning to approve the application, subject to conditions contained in Appendix B;AND FURTHER THAT the Director of Legal Services be instructed to prepare the necessary By-law for consideration at the Public Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of the foregoing.
CITY MANAGER'S COMMENTS, IN CONSULTATION WITH THE DIRECTOR OF FINANCE
The conversion of approximately 400,000 sq. ft. of commercially-zoned space to live-work in this location is of concern for two reasons.
Firstly, although this location is just outside the historic Central Business District, it is very close to the existing and future expansion of the rapid transit system and to the new Trade and Convention Centre. The loss of conventional commercial space (most of which was anticipated to be hotel space) in this area could impact on the ability of the City to ensure an adequate supply in the downtown in the future.
Secondly, from a taxation perspective, the City will very likely receive less tax revenue based upon experience with other live-work projects. Approximately 94% of live-work properties in the City are currently assessed and taxed for 100% residential use. While residential assessments tend to be higher than commercial assessments, the differential between residential and commercial tax rates could mean a loss of revenue to the City of up to $1,000,000 annually for this project alone if the entire 400,000 square feet of live-work space is developed.
Therefore, the City Manager recommends that Council consider carefully whether they wish to lose the 400,000 sq. ft. of commercial density near the downtown. Council could decide to deal with this issue before referral or at the public hearing.
COUNCIL POLICY
Relevant Council Policies for the site are:
· Central Area Plan approved on December 3, 1991;
· Coal Harbour Policy Statement approved in June 1990;
· Coal Harbour Official Development Plan (CH ODP) approved in November 1990,
· Burrard Landing CD-1 (363) By-law No. 7679 adopted November 26, 1996 and last amended November 5, 2002. In a by-law amendment enacted on December 04, 2001, on Parcel 2A (Lot 1), Hotel use was allowed in addition to permitted Office use and maximum building height (top of habitable space) was increased from 115 m (375 ft.) to 135.4 m (444 ft.);
· Burrard Landing (201 Burrard Street) Guidelines adopted November 26, 1996 and last amended December 4, 2001;
· Illustrative Form of Development for Parcel 2A and Form of Development for Parcel 2B approved in principle at Public Hearing of April 10, 2001;
· View Protection Guidelines, approved in December 1989 and last amended in 1990; and
· View Cone Encroachment policy approved by Council on January 29, 2003 that "in approving the intrusion of the architectural appurtenance for 687 Howe Street [Hotel Georgia], staff be advised that, except for this extra tall building, view cone intrusions should generally not be entertained."PURPOSE AND SUMMARY
This report assesses an application to amend CD-1 By-law No. 7679 (# 363) as it applies to Parcel 2A at 299 Burrard Street to allow General Office Live-Work use, in addition to the Office and Hotel uses now allowed, and also to alter the previously approved in principle form of development.
The application was very recently revised, as follows:
· General Office Live-Work use is requested for approximately 50 percent of the total floor area,
· Retail and Service uses are requested in the first two floors in addition to Hotel use, and
· a reduction in maximum building height is proposed, to better respond to View Protection Guidelines.Staff recommend that the application, with the height reduction proposed by the applicant, be referred to a Public Hearing and be approved.
BACKGROUND
Site and Surrounding Zoning: The site, which is shown on Figure 1 (Lot 1 at 299 Burrard Street) and which is referred to in the CD-1 By-law as Parcel 2A, is across from the proposed Vancouver Convention and Exhibition Centre (VCEC). Construction was recently completed on the abutting site to the west (designated as Parcel 2B (Lot 2) at 1067-1077 Cordova Street) for an Office and Live-Work building (known as "Shaw Tower").
Figure 1. Site and Surrounding Zoning
Recent CD-1 Amendments: The CD-1 By-law for the Burrard Landing area was amended. at Public Hearing in April, 2001 to adjust the boundaries of development parcels, and to allow additional uses and height on Parcels 2A and Parcel 2B.
On the subject site, designated as Parcel 2A, Hotel use was allowed in addition to permitted Office use and maximum building height (top of habitable space) was increased from 115 m (375 ft.) to 135.4 m (444 ft.). Staff had recommended a maximum height of 122 m (400 ft.), not including rooftop mechanical and architectural elements, so that thehotel tower would not encroach the Cambie Street/12th Avenue and Cambie Street/10-11th Avenue view cones. Council chose to approve the applicant's request for a maximum building height of 135.4 m (444 ft.), including a height up to 143.9 m (472 ft.) for all rooftop mechanical and architectural elements. The height increase was to provide flexibility to accommodate the program for a large hotel to serve the new convention centre.
On Parcel 2B (Shaw Tower), Live/Work use was allowed in addition to permitted Office use and maximum building height was increased from 92 m (302 ft.) to 137 m (450 ft.).
In July, 2002, Council approved amendments to adjust the boundaries of development parcels, to permit the Vancouver Convention and Exhibition Centre (VCEC) on Sub-Area 2 and Parcel 2C in Sub-Area 1 (Lot E on Figure 1, addressed as 100 Thurlow Street), and to provide floor area and height limits to accommodate the new use. Construction of VCEC is now underway, with completion anticipated in 2008.
As a result of the foregoing amendments, the four towers initially contemplated and approved in principle for Burrard Landing have been reduced to two, one each on Parcels 2A and 2B.
DISCUSSION
Land Use and Density: The revised application proposes that General Office Live-Work be allowed on this site in addition to Hotel and Office use, limited to 37 160 m² (400,000 sq. ft.), approximately 50 percent of the 75 000 m² (807,320 sq. ft.) which is presently allowed.
While a large, single-use, 800-room hotel had originally been contemplated on this site, the applicant explains that the requested by-law amendment will provide the flexibility to enable a hotel development, albeit smaller, in close proximity to the proposed convention centre, in a market where there is reluctance to undertake large, single-purpose hotel developments. A mixed-use development would also enhance the time-frame and financial viability for the proposed convention centre hotel. It is also noted that one of the property owner's commitments in selling the adjoining site for the Vancouver Convention Centre is to develop a hotel on the subject site which contains a minimum of 415 hotel rooms.
There is an objective in the Central Area Plan to maintain a 20-year commercial (office and hotel) capacity in the Central Business District (CBD). The City therefore has a concern about the rezoning of commercially-zoned sites in the CBD for residential use, and the downtown business community has been vocal with concerns about the potential erosion of commercial capacity by residential use.
In this instance however, staff note that the site is located just outside of the CBD and is thus not subject to this Central Area Plan requirement. Staff also note that office live/work use was previously approved for Tower 2B (Shaw Tower). Approval of this application to allow up to 50 percent of the floor area to be developed as General Office Live-Work (GOLW) as an alternative to Hotel and Office uses would mean that the site would retain a commercial potential for hotel and office use of 8 FSR, which is within the 7 to 9 FSR maximum on Core CBD sites. A letter of support has been received from the Downtown Vancouver Association which states that the proposed hybrid design will make the project economically viable.
Regarding GOLW, the Vancouver Building By-law requires that an occupancy separation be constructed between the office and residential areas of the suite. As this is clearly inconsistent with the flexible division between live and work functions which is the principle feature of GOLW, an equivalency approach will typically be employed. This equivalency can generally be achieved in new construction, such that live-work units are built to meet the code requirements for both business and personal service ("D") and residential ("C") occupancy requirements. Coordination between development permit application (DE) and building permit application (BU) is recommended to ensure that this is achieved.
The applicant has further requested that the CD-1 by-law be also amended to allow Retail or Service uses in the tower's lower two floors, to a maximum floor area of 4 875 m² (52,476 sq. ft.), as potential alternatives to the Hotel and Office uses now permitted. Staff support this. These uses can add considerable animation and vitality to a site and its surrounding area, and at this very prominent location, near the new Convention Centre, it is desirable that opportunities for pedestrian- and tourist-serving facilities not be unduly restricted. Retail and service uses at and near grade at this location will also enhance linkages between the downtown and the waterfront and convention centre.
Parking and Related Requirements: With respect to vehicle parking and loading requirements and bicycle parking requirements, Engineering staff recommend that GOLW be considered as Multiple Dwelling Use for the purposes of calculating required parking, loading, bicycle and passenger spaces.
Form of Development: The revised application proposes alterations to the illustrative form of development which was previously approved in order to accommodate live-work use in the upper storeys of the tower, to respond to the design development conditions which were previously approved, and to better respond to the View Protection Guidelines by shifting the tower orientation and reducing its height.
The proposed alterations to the form of development continue to respond to the Burrard Landing guidelines with respect to the `base zone' and `tower zone'. They also meet the guidelines with respect to public and private views across the site, and also street end views (Burrard Street and Portal Park at Thurlow Street). Reorientation of the tower results in significant enhancement to the Burrard street end view, providing a broader vista of Burrard Inlet and greater exposure of VCEC.
Maximum Building Height: The prior rezoning application considered in 2001 raised a major issue with respect to the View Protection Guidelines which seek to preserve longer range city and mountain views from the south. The height requested and then approved by Council for the Hotel tower was increased from 115 m (377 ft.) to 143.9 m (472 ft.), including rooftop mechanical and architectural elements. The stated reason for the height increase was to have flexibility to accommodate the program for a large hotel to serve the new convention centre.
This height encroached the Cambie Street/12th Avenue and Cambie/10-11th Avenue view cones by 10.1 m (33 ft.) and 13.4 m (44 ft.) respectively. A total building height which respected the guidelines would be limited to 130.5 m (428 ft.), including all mechanical and architectural rooftop elements. The intruding portion of the approved tower height is situated in the westerly portion of the view corridor, in front of Mount Capilano, which is framed by a visually compelling lower valley in the North Shore mountain backdrop.
When the subject rezoning application was initially submitted, staff concluded that the opportunity be explored to reduce the hotel tower height to bring it into better conformity with the View Protection Guidelines. The exception to the guidelines raised issues of fairness and equity given that view cone restrictions apply to many sites in the Downtown and surrounding areas. While it might be argued that the prime public objective of achieving a very large convention hotel would justify a view cone intrusion, a smaller hotel in a mixed-use building now proposed makes this project similar to others in the downtown core.
After design explorations, the applicant is prepared to reduce the tower height, such that:
· the main building mass, whose highest level is represented by the roof of the uppermost typical floor, would be reduced by 13.4 m (44 ft.), from 143.9 m (472 ft.) to 130.5 m (428 ft.) and no longer encroach the view corridor limit, and
· the penthouse levels of the tower would continue to encroach the view corridor limit, but they would have considerably reduced floorplates (i.e., cover no more than about 50 percent of the rooftop area), they would be oriented so that it is their narrow end which is viewed from Cambie Street/12th Avenue and Cambie/10-11th, and the total building height would be reduced to 139.7 m (458.25 feet), which is about 4.2 m (14 ft.) less than the previously approved 143.9 m (472 ft.).
The view corridor encroachment which remains would be very modest from the perspective from which the view will be enjoyed by citizens. Staff support the proposed height reduction and commend the applicant and property owner for a successful resolution of this issue.
COMMUNITY AMENITY CONTRIBUTION
This application is not subject to CACs because the site is located in the Coal Harbour ODP area which has its own Public Benefit Strategy, and because no increase in density is requested. Furthermore, for all of the Coal Harbour area, the property owner has provided the highest negotiated CAC which has ever been secured for a new neighbourhood. Many changes to the development concept have been approved since it was initially adopted without a need to revisit the initial public benefits package. Most recently, the by-law amendments in 2001 included approval of Live/Work use as an alternative to Office use in 21 500 m² (231,432 sq. ft.) on Parcel 2B (now Shaw Tower). This was a substantial change in land use, accompanied by significant changes in building height, for which a CAC was not required, for the reason that "CAC was obtained for Burrard Landing in its initial rezoning".
For these reasons, Planning staff do not believe that a CAC needs to be considered for the proposed CD-1 amendment. However, in case Council should wish to consider a CAC, Real Estate Services staff will be asked to review and advise on this matter and a land value increase, if any is anticipated, will be reported to Council at Public Hearing.
PUBLIC INPUT
No objections or concerns from surrounding property owners have been received. Staff note that a letter of support has been received from the Downtown Vancouver Association.
Communication has also been received from the Safety and Service Design Branch of Navigation Canada which has been concerned with the height of Shaw Tower and the tower height approved on the subject site. The issue is one of visibility - a line of sight is required from their control tower to Coal Harbour. Presently ninety percent of flights are done in the Visual Flight Rules "regime" (VFR) which requires actually seeing what is happening in the flight area. The height reduction now proposed may bring some improvement. The recently completed Shaw Tower reaches a height of 149 m (489 ft.), including all appurtenances, which is higher that the approved tower height on the subject site.
APPLICANT COMMENT
"The 201 Burrard Street site provides a unique opportunity to create a landmark building on Vancouver's waterfront. Few sites share its visual prominence and central location at the foot of one of the City's most important streets.
We have worked closely with City planning staff over the past several months and we commend their efforts to explore options and find a solution which will reduce the overall building height, while preserving architectural interest and maintaining the requisite floor area for this proposed development to remain viable.
Therefore, we support the staff recommendation as proposed in the Policy Report to Council."
CONCLUSION
Staff support the requested amendment to the CD-1 By-law to permit General Office Live-Work in the tower on Parcel 2A, and the proposed reduction in maximum building height for any development which is not solely for Hotel use.
At the applicant and property owner's request, staff recommend further amendments to the By-law to remove provisions for a "non-VCEC" option, given that the convention centre is now proceeding. These amendments will be prepared with advice from the Director of Legal Services.
Staff recommend that the application be referred to a Public Hearing, and approved, subject to proposed conditions of approval.
* * * * *
APPENDIX A
201 BURRARD STREET
DRAFT CD-1 BY-LAW AMENDMENTS
By-law amendments will be prepared generally in accordance with the provisions listed below, which are subject to refinement prior to By-law posting. Further amendments will be prepared in consultation with the Director of Legal Services to remove provisions for a "non-VCEC" option.
1. Amend Section 3 (Definitions) by inserting the following in proper alphabetical sequence:
"General Office Live-Work means the use of premises for a dwelling unit, general office, or both uses in conjunction with one another, provided that:
(a) any such use must not include any dating service, entertainment service, exotic dancer business, social escort service or other similar business, as determined by the Director of Planning in consultation with the Chief License Inspector; and
Note: By definition in the Zoning and Development By-law (Section 2), General Office excludes the other Office Uses, specifically Financial Institution, Health Care Office and Health Enhancement Centre.
(b) any development permit for such premises shall be for dwelling units, general office, and dwelling unit combined with general office."
2. Amend Section 4 (Uses) by:
2.1 replacing sub-section (b) with a new sub-section, in proper alphabetical sequence, for "General Office Live-Work", and
2.2 removing sub-section 4.2
3. Amend Section 6 (Floor Area and Density) by:
3.1 substituting the following for Table 1:
Table 1
Maximum Floor Area (in square metres)
Use |
Non VCEC Option |
Maximum Floor Area |
Office |
43 000 |
20 338 |
|
21 500 |
21 500 |
Retail and Service, excluding Hotel |
9 500 |
14 165 |
Hotel |
37 000 |
N/A |
Hotel, Office, General Office Live-Work, Retail and Service Uses |
75 000 except that General Office Live-Work is limited to 37 160 and Retail and Service Uses combined are limited to 4 875 |
75 000 except that General Office Live-Work is limited to 37 160 and Retail and Service Uses combined are limited to 4 875 |
Cultural and Recreational |
10 000 |
10 000 |
Convention and Exhibition Centre (including Exhibition Hall) |
N/A |
78 222 |
Total |
196 000 |
219 225 |
3.2 substituting the following for Table 2 Chart A and Table 2 Chart B:
Table 2
Chart A
Maximum Floor Area (in square metres)
|
Sub-Areas (from Diagram 1) | |||
1 |
2 |
3 |
4 | |
Office |
20 312 |
22 688 |
N/A |
N/A |
|
21 500 |
N/A |
N/A |
N/A |
Retail and Service, excluding Hotel |
3 665 |
5 835 |
N/A |
N/A |
Hotel |
N/A |
37 000 |
N/A |
N/A |
Hotel or Office or General Office Live-Work, Retail and Service Uses on development Parcel 2A (see Diagram 1) |
75 000 except that General Office Live-Work is limited to 37 160 and Retail and Service Uses combined are limited to 4 875 |
N/A |
N/A |
N/A |
Cultural/Recreational (Arts Complex) |
N/A |
10 000 |
10 000 |
N/A |
Table 2
Chart B
Maximum Floor Area (in square metres)
|
Sub-Areas (from Diagram 1) | |||
1 |
2 |
3 |
4 | |
Office |
20 312 |
N/A |
N/A |
N/A |
|
21 500 |
N/A |
N/A |
N/A |
Hotel, Office, General Office Live-Work, Retail and Service Uses on Development Parcel 2A |
75 000 except that General Office Live-Work is limited to 37 160 and Retail and Service Uses combined are limited to 4 875 |
N/A |
N/A |
N/A |
Retail and Service, excluding Hotel |
3 665 |
N/A |
N/A |
N/A |
Retail and Service in conjunction with Convention and Exhibition Centre, excluding Hotel |
N/A |
8 500 |
N/A |
N/A |
Retail and Service in conjunction with Cultural/Recreational (Arts Complex), excluding Hotel |
N/A |
2 000 |
N/A |
N/A |
Convention and Exhibition Centre |
N/A |
54 997 |
N/A |
N/A |
Exhibition Hall in conjunction with Convention and Exhibition Centre |
N/A |
23 225 |
N/A |
N/A |
Cultural/Recreational (Arts Complex) |
N/A |
10 000 |
10 000 |
N/A |
3.3 removing sub-section 6.7 and re-numbering sub-section 6.8 as 6.7.
4. Amend Section 7 (Height) by replacing sub-section 7.2 with the following:
The Development Permit Board, provided it first considers the applicable policies and guidelines adopted by Council, may relax the maximum height shown for Sub-Area 1 in section 7.1 to 135.4 m 139.7 m (including all appurtenances) for the tower on development parcel 2A at the Burrard/Cordova portion of the site, and 137 m for the tower on development parcel 2B at the Thurlow/Cordova portion of the site, and 99 m for any tower located in sub-area 2, except that the maximum height on development parcel 2A may be further relaxed to 143.9 m (including all appurtenances) for a tower which is wholly in Hotel use.
5. Amend Section 8 (Parking) by inserting the following sub-section:
8.4 General Office Live-Work shall be considered as Multiple Dwelling uses for the purposes of calculating any required or permitted parking, loading, bicycle and passenger spaces.
* * * * *
APPENDIX B
201 BURRARD STREET
PROPOSED CONDITIONS OF APPROVAL
NOTE: These are draft conditions which are subject to change and refinement by staff prior to the finalization of the agenda for the public hearing.
FORM OF DEVELOPMENT
(a) THAT the revised form of development for Parcel 2A prepared by James KM Cheng Architects and stamped "Received, City Planning Department, November 30, 2004", be approved by Council in principle, provided that the Director of Planning, or Development Permit Board, may allow alterations to the form of development when approving the detailed scheme of development as outlined in (b) below.
[Note: This would replace the "illustrative form of development" previously approved at Public Hearing of April 10, 2001.]
(b) THAT, prior to approval by Council of the form of development for Parcel 2A, the applicant shall obtain approval of a development application by the Development Permit Board, who shall have particular regard to the following:
DESIGN DEVELOPMENT
(i) design development to the lower level massing, to better relate to Tower 2B and to break down the scale of high podium elements;
(ii) design development to the lower level facade treatments, to provide continuous weather protection and pedestrian interest, and to clarify the details of these amenity features;
(iii) design development to the ground level setbacks to enhance pedestrian interest and amenity;
(iv) design development to the architectural treatment of the Burrard Street facade, to relate more strongly to the Marine Building character and scale, and its existing role as a landmark icon for the area; and
(v) design development to the architectural treatment and articulation of the tower, to refine and clarify the architectural treatments, and to maximize its sense of slimness.
AGREEMENTS
No further legal agreements or amendments to existing agreements are required, prior to enactment of the CD-1 By-law.
* * * * *
APPENDIX C
COMMENTS
FROM THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANT
Public Input: Rezoning information signs were erected on the site on June 20, 2003 and Planning Department staff sent a notification letter, dated June 16, 2003, to the 352 property owners on record in the area surrounding the site (area bounded by Howe Street on the east, Dunsmuir and Melville Streets on the south, Jervis Street to the west, and Burrard Inlet to the north). No objections or concerns about the proposed CD-1 amendment have been received by City staff.
A letter of support has been received from the Downtown Vancouver Association which states that the proposed hybrid design will make the project economically viable.
Communication has also been received from the Safety and Service Design Branch at Navigation Canada. NavCanada has been concerned with the height of the Shaw Tower and the tower height which is presently allowed on the subject site. The issue is one of visibility - a line of sight is required from their control tower to Coal Harbour. Presently ninety percent of flights are done in the Visual Flight Rules (VFR) regime which requires actually seeing what is happening in the flight area. The height reduction now proposed may bring some improvement to the situation, noting that the recently completed Shaw Tower reaches a height of 149 m (489 ft.), including all appurtenances, which is higher that the approved tower height on the subject site.
Engineering Services: In memo dated August 8, 2003, the Assistant City Engineer, Streets Division, states that Engineering Services has reviewed the application and provides the following comment: "Engineering Services has no objection to the proposed rezoning provided the following is a condition of rezoning enactment: live/work and work/live uses must be considered as multiple dwelling uses for the purposes of calculating any required or permitted parking, loading, bicycle and passenger spaces." Amendments to the CD-1 By-law are recommended to achieve this.
Vancouver Fire and Rescue Services: The following comments were provided in communication dated July 22, 2003:
1) This R/Z application for a 46 storey building with 5 levels of U/G parking.
2) Levels 1-24 for hotel and Levels 25-46 are for residential use.
3) This is one building and must comply with 3.2.6.VBBL for High Buildings.
4) There are a number of entrances from Cordova Street (& Arrival Plaza). There shall be only ONE principal response point.
5) Distances from street to principal entrance to comply with VBBL.
6) From principal entrance lobby, direct access is required to ALL above and below grade levels and to ALL areas of ground level.
7) From principal entrance lobby, one Fire Fighter's Elevator is required toprovide access to all levels.
8) For this 46 storey building, Fire Department requires a staging area / floor for fire fighting equipment. Suggest 27th floor.
There is a Fire Department access issue to and within building. These comments are based on the preliminary small scale architectural schematic drawings. Further comments may be forthcoming when more detailed drawings are submitted for Fire Department Review."
Development Services (Building): The following comments were provided in communication dated July 21, 2003:
"1) Live - work uses may require equivalencies to conform VBBL.
2) Two means of egress are required from residential units over 150 m² in floor area.
3) Exiting do not conform to VBBL. Check remoteness, No. of exits, travel distance etc.
4) Interconnected floor space shall conform to VBBL 3.2.8.
5) Accessibility and enhanced accessibility to residential units shall conform to VBBL 3.8. and Bulletin 2002-006-BU.
6) Building shall conform to requirements for high buildings measures per VBBL 3.2.6. and interconnected buildings.
7) Access tunnel may require fire wall/ fire separation at the property line. Also shall meet the exiting requirement.
Applicant is advised to retain the services of a qualified Building Code Consultant to review the entire project and potential nonconforming code issues."
Urban Design Panel: The initial application was reviewed on October 1, 2003, and supported (7-0), as reported below. The revised application has not been reviewed by the Panel, and is proposed to be reviewed at the development application stage.
Introduction: Ralph Segal, Development Planner, presented this application for a Text Amendment to the Burrard Landing CD-1. When this block was rezoned in April 2001, Council approved the extension of Canada Place Way, the Shaw Tower and an 800-room hotel, all on the assumption of the Trade & Convention Centre proceeding. This application is for the hotel component and seeks an amendment to allow for a live/work element to be included in the mix of uses. The current proposal is for a 500-room hotel up to level 24, with live/work above and a change to the tower form. There will no change to the previously approved density. The approved zoning also allowed for a slight intrusion into the 10-11th Avenue/Cambie view corridor.
The advice of the Panel is sought as to whether the proposed change to the towermassing, as a consequence of the change of use, is appropriate. Feedback is also requested on the fit of this revised waterfront tower floorplate and form in the neighbourhood including its fit on Burrard Street and the skyline.
The Development Planner and Phil Mondor, Rezoning Planner, responded to questions from the Panel.
Applicant's Opening Comments: Graham McGarva, Architect, briefly described the change in the program and the design team responded to the Panel's questions.
Panel's Comments: The Panel unanimously supported this application for Text Amendment and considered the inclusion of live/work use to be very appropriate.
The Panel complimented the applicant on the extensive and thorough view analysis. A comment was made that it would also have been helpful to see more contextual elevations, showing the streetscape in all directions, in order to more easily analyse some of the height relationships with neighbouring buildings.
The Panel strongly supported the proposed revised tower form, with the following comments and suggestions:
- there needs to be an in-depth analysis of the roofline on this prominent site. One Panel member preferred an earlier idea for the rooftop that was depicted on the photomontage but not on the model;
- acknowledging the challenges associated with trying to respond to the changing composition of the Panel, one member considered that the integrity of the tower itself should take precedence over any need to directly reference adjacent towers. It was suggested there could be greater emphasis on the fundamental three-part parti rather than multiple stepping in response to neighbouring buildings;
- concerns were expressed about impacts on the Marine Building which the Panel considers to be one of the most important buildings in the downtown. The challenge of preserving the delicacy of its massing was acknowledged, and a suggestion made that it may not be within the scope of the envelope of this building but rather a question of scale. It was noted that in one of the views from the 9 o'clock gun, the Marine Building appears to be more crowded than in another option. Another comment was that the distance between this tower and the Shaw Tower might be greater than necessary, at the expense of some of the wider view of the Marine Building. Less of a gap between the two towers - possibly on the upper floors - could achieve a wider angle display of the Marine Building;
- the importance of the ceremonial nature of Burrard Street was acknowledged and aconcern noted about the street level on Burrard being broken up with a number of smaller scale uses. The emphasis of the corner to address the larger scale of Burrard could be stronger;
- this building will undoubtedly be a landmark tower in the downtown. The Panel will therefore give considerable attention to all the architectonic details at the development application stage;
- sustainability cannot be ignored in this important building and will need to be addressed in the next submission;
- without a very well designed skin this building is unlikely to meet expectations for a great building;
- there could be more "play" at the top of the building where it protrudes into the view corridor - possibly a little more chamfering or a greater emphasis on its crystalline structure;
- treatment of the ground plane will be very important in terms of how people move through the site. The restaurant use at the corner may not be best option - there needs to be further analysis on the kind of activity that will occur on this corner;
- given the prominence of this site at the end of Burrard and next to the convention centre, there was a suggestion from one Panel member it should have been identified for a higher building, allowing for a taller, more slender form;
- one Panel member thought more attention should be given to the interaction of the different uses within the building rather than differentiating these uses on the outside;
- the proposed sign on the north elevation is too big/dominant; and
- one Panel member questioned the ramp/garage entry on Canada Place Way.
Applicant's Response: Mr. McGarva thanked the Panel for its comments and that some very perceptive points were raised. He assured the panel that, as the project moves forward, they will be getting to the details and really make them work.
Applicant Comments: The applicant and the property owner have been given a copy of this report and comment as follows:
"The 201 Burrard Street site provides a unique opportunity to create a landmark building on Vancouver's waterfront. Few sites share its visual prominence and central location at the foot of one of the City's most important streets.
We have worked closely with City planning staff over the past several months and we commend their efforts to explore options and find a solution which will reduce the overall building height, while preserving architectural interest and maintaining the requisite floor area for this proposed development to remain viable.
Therefore, we support the staff recommendation as proposed in the Policy Report to Council."
* * * * *
APPENDIX D
Reduced form of development drawings (under PDF file).
* * * * *
APPENDIX E
APPLICANT, PROPERTY AND DEVELOPMENT PROPOSAL INFORMATION
Applicant and Property Information
Street Address |
299 Burrard Street (201 Burrard Street is the CD-1 By-law reference address) |
Legal Description |
Lot 1 of the Public Harbour of Burrard Inlet, Plan LMP 51876., LD 36 |
Applicant |
Via Architecture and James KM Cheng Architects Inc. |
Property Owner/Developer |
Fairmont Hotels Inc. (previously Marathon Developments Inc.) |
Site Area |
4 660 m² (50,161 sq. ft.) |
Development Statistics
Allowed Under Existing Zoning |
Proposed in the Revised Application |
Recommended by City Staff | |
Uses |
Hotel
|
Hotel
|
as proposed |
Max. Floor Space |
75 000 m² (807,320 sq. ft.) |
total of 75 000 m² (807,320 sq. ft.),
|
as proposed |
Floor Space Ratio |
n/a |
||
Maximum Height |
135.4 m (444 ft.), with rooftop mechanical and architectural elements extending further to 143.9 m (472 ft.) as shown in form of development drawings |
if not wholly in Hotel use:
|
as proposed |
Parking, Loading, Passenger Loading, and Bicycle Spaces |
as per
|
as per CD-1 By-law |
as per CD-1 By-law with amendment recommended by Engineering Services |