POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Current Planning

SUBJECT:

CD-1 Text Amendment - 2020 Harrison Drive

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Relevant Council Policies for this site include:

· Victoria-Fraserview/Killarney (VFK) Community Vision, adopted by Council January 2002, which supports:

· Guidelines for Seniors Supportive and Assisted Housing, adopted by Council in February, 2002 which guide the planning and design of seniors housing; and
· Interim City-wide Community Amenity Contribution (CAC) Policy, approved by Council on January 28, 1999, which applies to all private rezoning applications and provides funds for additional community amenities needed for new residents.

PURPOSE AND SUMMARY

This report assesses an application to amend the CD-1 Comprehensive Development District zoning for the site shown on the map on page 3. The application proposes amendments to increase the height and density to allow redevelopment of a site owned by the Icelandic Care Home Höfn Society for 82 units of Seniors Supportive or Assisted Housing.

Staff support the proposal which is generally consistent with the Victoria-Fraserview/Killarney Community Vision, would broaden the variety of affordable seniors housing in the area and would create an opportunity for a "campus of care" concept for this project and two adjoining care facilities. Residential neighbours to the north have expressed concerns about the impact of this proposed development on their views and the project has been reduced in height in response to these concerns. Further design conditions are recommended to improve the project's fit into the neighbourhood.

Staff recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions. Consequential amendments are proposed for the CD-1 By-law which also applies to the neighbouring properties (Finnish Canadian).

DISCUSSION

Background: In 1961, the site was rezoned to CD-1 which permitted development of a private seniors home by the non-profit Icelandic Care Home Höfn Society. In 1963, the facility was built and additions to the original buildings were made in 1982, 1990 and 1992. The home continued to serve as a private senior's home until 1983, when the Ministry of Health integrated it into its Long Term Care Program. The facility currently houses 46 residents requiring varying levels of care who are gradually being relocated to other facilities.

The CD-1 zoning created in 1961 included properties to the east of the subject site and permits seniors rental apartments and a care home which are owned and operated by the Finnish Canadian Rest Home Association. In 1991, the CD-1 zoning was amended to increase the overall density from 0.50 floor space ratio (FSR) to 0.70 FSR to allow redevelopment of the Finnish Canadian Care Facility.

The site located to the west of the Icelandic Home is owned by the German Canadian Benevolent Society and was incrementally zoned CD-1 during the late 1960s and early 1970s to permit a personal care home at a density of 0.55 FSR. In the early 1990s, a new CD-1By-law was adopted to allow expansion of the German Canadian home up to a density of 0.85 FSR but the additional development has not been built.

The current Icelandic home with its small, shared living quarters and accessibility issues, cannot meet current standards for seniors care, so it must close by March 15, 2005. The existing building is not considered suitable for renovation or reuse.

Use: The proposed rezoning would replace a 64-unit care facility (Special Needs Residential Facility - Class B) with 82 units of Seniors Supportive or Assisted Housing. This new type of residential use for seniors provides self-contained dwelling units and includes meal service plus housekeeping and other support services. The Icelandic Care Home Höfn Society which owns the site will receive funding under BC Housing and Vancouver Coastal Health Authority's Independent Living BC (ILBC) program. The purpose of the ILBC program is to fill the gap between independent living and care facilities that provide nursing care. This intermediate seniors housing option is intended to reduce the need for more expensive institutional care.

The new housing would augment the seniors rental apartments and two seniors care facilities along Harrison Drive. This unique grouping of seniors housing and care homes has been identified by the Vancouver Health Board as offering a "Campus of Care" where the range of facilities will allow seniors to age in place and amenities to be shared between facilities.

The building and its dwelling units (77 one-bedroom and 5 one-bedroom handicapped accessible units) would be designed in accordance with the BC Housing Independent Living BC Guidelines.

Density: The current CD-1 permits a maximum floor space ratio of 0.70 which applies to the total development across both the Icelandic and Finnish properties. As independent developments, the density of the existing Icelandic home is about 0.50 FSR, while the development on the Finnish property is 0.78 FSR.

The proposed FSR for the Icelandic site is 1.45. Staff support the proposed increase in density which is necessary for this type of use which requires extra floor area to provide dining and other support services and must include a minimum number of dwelling units (about 80) for the operation to be viable. The proposed density is consistent with the density typically required for this type of use.

Form of Development: The proposed building is sited in a U-shaped configuration with two four-storey wings parallel to the east and west property lines and a three-storey link with a transparent fourth storey bridge between the two wings. Due the slope of the site, only the upper two storeys of the building appear above Harrison Drive. The proposed building form is consistent with the Victoria-Fraserview Killarney vision direction which supports low-rise forms of housing for seniors.

The Urban Design Panel was supportive of the increased density if the building form could further address view and massing concerns through design development (as noted in Appendix C). Views are also a major issue to the neighbours to the north.

The existing CD-1 By-law permits a maximum building height to a datum elevation of 74.5 m (245 ft.) based on elevations shown on a topographic map from 1990. Based on the City of Vancouver datum currently used to determine building grades, the existing CD-1 By-law permits a maximum height to a datum elevation of 46.65 m (153 ft.). This method of measuring height was applied to consider the extreme slope of the site and the existing maximum height is based on the height required for the Finnish Canadian Home in 1990. The proposed Icelandic development would require an increase to a datum elevation of 50.15 m (165 ft.) based on the current City of Vancouver datum.

However, the height increase that occurs along the Harrison Drive frontage is most important because it has the greatest impact on the residential neighbours. Property north of Harrison Drive continues to slope up providing residents with panoramic views to the south which include the Fraser River, Richmond and beyond. Neighbours, especially along Harrison Drive and Burquitlam Drive, are concerned about view loss and decreased property value. Presently, less than one storey of the existing Icelandic home is visible above Harrison Drive. The height of development on both the German Canadian and Finnish Canadian sites also does not obstruct views, and if the German Canadian went ahead with the additional development permitted by the CD-1 By-law, the height would not increase. To address neighbours' concerns, the proposal has been redesigned to reduce the building height from three to two storeys above Harrison Drive; however, at least six properties along Harrison Drive will still lose most of their views, with the older 1-storey bungalows being most affected. See illustration on Page 6 of Appendix E.

The Urban Design Panel noted that any new development that occurs on this and neighbouring sites is likely to cause some view loss. Staff also recognize the economic and design challenges of maintaining the current height, therefore we have sought a compromise between retaining views and maximizing the site's development potential.

Parking: The existing Icelandic care home provides 11 surface parking spaces for the 64-bed facility. Thirty-four parking spaces are proposed for the new 82-unit development and the proposed parking exceeds the City's standard for affordable Seniors Supported or Assisted Housing (1 space per 4 units or 21 parking spaces). The additional parking is intended to alleviate the current parking congestion on Harrison Drive. In addition to the seniors housing facilities along Harrison Drive, there is also a Translink bus loop which contributes to the area's parking pressures. Although neighbours are concerned about traffic and parking along Harrison Drive, they would be willing to consider less parking on-site if the height of the development could be reduced. However, due to the slope of the site it is unlikely that a reduction in parking would help lower the overall building height. Engineering staff are satisfied with the amount of parking proposed and recommend that the exemption and relaxation provisions of the Parking By-law be available to development on this site.

Community Amenity Contributions [CAC]: On January 28, 1999, Council approved an Interim City-wide CAC Policy which applied to private rezoning applications (with some exceptions), to provide funds for the additional community facilities needed for new residents. Normally, CACs are based upon the increase in permitted density on a site.

However, under the Development Cost Levy By-law and the City's CAC policy, social housing is exempt from both, "where at least 30% of the units are to be occupied by persons receiving government paid assistance (i.e., SAFER or other funds), where a covenant restricts the use to such housing, and where the owner, if a non-profit organization, is eligible for a government shelter subsidy". This project will qualify for CAC and DCL exemptions as it would be subject to a housing agreement and the requirements for ILBC funding.

Consequential Amendments: The CD-1 zoning is shared by sites owned by two different groups - the Icelandic Care Home Höfn Society and Finnish Canadian Rest Home Association. When these sites were rezoned to CD-1 in the early 1960s, they shared the same density and height. If the current application is approved, they would have different density and height. On this basis staff recommend that each group's site be regulated under separate CD-1 By-laws. Essentially, a new CD-1 By-law would be created for the Icelandic site, and the existing CD-1 By-law would be amended to delete the Icelandic site. The regulations for the Finnish Canadian site would remain the same in the amended By-law, except the density would be changed to reflect the existing development on their property. (See Appendix B)

CONCLUSION

Staff support the use, density and form of development proposed in this application, subject to conditions to improve the proposal's neighbourliness and design. The proposal will expand the availability of affordable rental seniors assisted housing units in this area of the city and contribute to a "campus of care" along Harrison Drive.

The Director of Current Planning recommends that the application be referred to Public Hearing and be approved, subject to the proposed conditions presented in Appendix C.

The Director of Current Planning also recommends consequential amendments that would result in a new CD-1 By-law for the subject site and the current CD-1 By-law amended to cover only the Finnish Canadian site to the east.


* * * * *

DRAFT CD-1 BY-LAW PROVISIONS
(2020 Harrison Drive)

Note: A CD-1 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

DRAFT AMENDMENTS TO CD-1 BY-LAW NO. 3914
(2130-2288 Harrison Drive)

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

Section 1 to 5
· update various clauses.

Section 3 Floor Space Ratio
· in clause 3.1, increase the floor space ratio from 0.70 to 0.78 .

Schedule A
· delete the map entitled RZ M.105.

Schedule D
· amend the location of the heavy black line to delete the four westerly parcels (lots 8-11), being 2020 Harrison Drive.

PROPOSED CONDITIONS OF APPROVAL

Note: Recommended approval conditions will be prepared generally in accordance with the draft conditions listed below, subject to change and refinement prior to finalization of the agenda for the Public Hearing.

FORM OF DEVELOPMENT

(a) That the proposed form of development be approved by Council in principle, generally as prepared by Henriquez Partners Architects, and stamped "Received City Planning Department", October 13, 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.

(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:

Where the Director of Legal Services deems appropriate, the preceding agreements are to be drawn, not only as personal covenants of the property owner, but also as Covenants pursuant to Section 219 of the Land Title Act.

Such agreements are to be registered in the appropriate Land Title Office, with priority over such other liens, charges and encumbrances effecting the subject site, as is considered advisable by the Director of Legal Services, and otherwise to the satisfaction of the Director of Legal Services prior to enactment of the by-law; provided, however, the Director of Legal Services may, in her sole discretion and on terms she considers advisable, accept tendering of the preceding agreements for registration in the appropriate Land Title Office, to the satisfaction of the Director of Legal Services, prior to enactment of the by-law.

The preceding agreements shall provide security to the City including indemnities, warranties, equitable charges, letters of credit and withholding of permits, as deemed necessary by and in a form satisfactory to the Director of Legal Services.

The timing of all required payments shall be determined by the appropriate City official having responsibility for each particular agreement, who may consult other City officials and City Council.

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This 4 627.9 m² (49,816 sq. ft.) site is comprised of 4 lots with a total frontage of 81.2 m (266.5 ft.) and an average depth of 69.4 m (227.8 ft.). The site is located on Harrison Drive just east of Victoria Drive and in an area which slopes quite significantly from north to south down towards the Fraser River. The site has a 11.0 m (36 ft.) decrease in elevation from north to south. To the north, across Harrison Drive, are single-family(RS-1) homes with views to the south. Across Marine Drive, to the south, are single-family (RS-1B) homes and several townhouse developments (CD-1). Marine Drive creates a wide barrier between the site and residents to the south. Immediately to the east is the Finnish Canadian care home and seniors rental housing which shares the same CD-1 zoning as the subject property. To the west is the German Canadian care home, with its own CD-1 designation. Also to the west, along Harrison Drive and in front of the German Canadian care home, is a Translink bus loop.

Proposed Development: The application proposes 82 units of Seniors Supportive and Assisted Housing which includes meals and other support services (i.e., housekeeping) required by the residents. There are 77 one-bedroom units and 5 one-bedroom handicapped accessible units. All suites are designed to accommodate seniors with limited mobility and all rooms have clearances for wheelchair access. In addition, there are laundry and assisted bathing facilities on some floors. On the main floor is a large dining room which opens onto the outdoor patio to the south. The second floor also has a multipurpose room, offices and support rooms for full-time and part-time staff.

Vehicular access to the site is from Harrison Drive on the west side of the site. A driveway parallel to Harrison Drive allows for a drop off space at the front entry and takes building-related traffic off the street. A ramp continues down the western edge of the site to an enclosed 34 stall parkade. The proposed parking exceeds the rate of 1 space per 4 dwelling units. The parking provides 21 resident spaces plus 5 visitor spaces and 8 staff spaces. The increased parking provision is intended to help alleviate the current parking and traffic congestion on Harrison Drive which is due to the three care homes and a Translink bus loop.

Public Input: On June 23, 2004, a notification letter was sent to 293 nearby property owners and a rezoning information sign was posted on the site. Twenty phone calls were received from residents who opposed the proposal and approximately half a dozen people came to City Hall to view plans. Fifteen letters and e-mails were received with one expressing support for the project and fourteen in opposition. A petition signed by 71 local residents (primarily living on Harrison, Burquitlam, Fraserview and Victoria Drives) was also sent in opposition to the proposal. Residents' principal concerns were about the potential loss of views, reduced property values, and increased parking and traffic impacts on Harrison Drive. Some residents felt that the site was not a good location for seniors housing and that the proposed development could be precedent-setting for futureredevelopment on the other seniors' housing sites along Harrison Drive.

There were also 216 form letters sent in by members of the Icelandic Canadian community supporting the proposal.

A public information meeting was held on August 25, 2004 and attended by about 50 people. The meeting confirmed the key issues for the neighbourhood: views and property values, traffic and parking, and future development.

· There was concern among property owners that their property would lose value if the rezoning proceeds because of view impacts from the proposed development. The neighbourhood currently has panoramic views of the Fraser River and beyond and their property values reflect this view amenity.

· The proposed development for the Icelandic property is higher than the buildings on the German-Canadian or Finnish property, so there was concern that if the Icelandic project proceeds, the two neighbouring properties would also want to increase in size resulting in further reduction of views and property values.

· Harrison Drive is already faced with parking and traffic problems because it is shared by local residents, commuters using the bus loop, staff and visitors to the three seniors' facilities and related service vehicles. There was concern that increasing the density on the Icelandic property would lead to further congestion.

In addition, some residents questioned the site's suitability for seniors' housing, the compatibility of the proposal in terms of height and scale with the surrounding neighbourhood, and the limited level of neighbourhood consultation on the proposal before the rezoning application was submitted to the City.

In response to the comments heard at that meeting, the architect revised the plans and reduced the building height by one storey. A second public meeting, held on November 9, 2004, was attended by approximately 30 people who were given comment forms to express their opinions about the revised proposal. Opinions were mixed on whether the project had improved and whether the use was appropriate. The proposed height was generally considered not acceptable and most responses indicated that the proposal would only be acceptable if views of the Fraser River and beyond were protected. The majority of responses indicated a willingness to accept less parking spaces if the height could be reduced. Most felt that the development should have a residential appearance in terms of building shape, quality of materials and landscaping.

The proposal was also presented on two separate occasions to the Victoria Fraserview Killarney (VFK) CityPlan Committee. The Committee members were generally supportive,however, few, if any, of the members live in the immediate area.

Project's Response to VFK Community Vision: When measured against the VFK Community Vision Directions, this proposal, on balance, measures up to Vision Directions on Seniors' Housing (location and form), but it falls short on the Vision Direction for Public Views, as there will be some view loss along Harrison Drive. While residents support seniors housing in VFK, they are also concerned about the protection of views - including views to points south - Fraser River, Mount Baker, etc.

Applicable Vision Directions include:

21.1 Seniors' Housing
· Some small developments designed for seniors should be considered near parks, shopping, and transit to allow seniors to stay in the community as their housing needs change.

21.2 Types of Seniors' Housing
· The form of seniors housing which should be considered includes small scale seniors' homes and low-rise apartments.

31.6 Public Views
· Views to the North Shore mountains; the Cascades and Mount Baker; and the Fraser River from public places, like parks and streets should be protected.

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 C.

Seniors' Advisory Committee Comments: All comments of the Committee have been passed on to the applicant and those which may be dealt with at the rezoning stage have been incorporated in Conditions of Approval (Appendix C).

Comments of the Director of the Housing Centre: "This project is funded under the Province's Independent Living BC (ILBC) housing program, and will provide 82 units of rent-geared-to-income housing for frail seniors with support services. The ILBC program is a partnership involving the sponsor group, the Icelandic Care Home Höfn Society, Vancouver Coastal Health Authority and BC Housing. Accordingly, the project will be exempt from both DCLs and CACs. Along with the Finnish and German Canadian Care homes to the east and west of the site, the three facilities will serve as a campus of care, where true aging in place can occur.

The Director of the Housing Centre supports this rezoning application as it will serve to replace an out-dated and code deficient facility, providing for the ongoing care of seniors in the south part of the city."

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on October 13, 2004 and supported the proposed use and were willing to consider the proposed density with a building form that addresses view and massing concerns. There was general support for the direction at this early stage for the building form and character. The Panel offered the following comments:

"The Panel agreed that this is a very challenging site. The proposed use was unanimously supported.

The majority of Panel members thought the proposed density could be accommodated on the site, but would be much easier with a lower density.

While the Panel ultimately voted in favour of the submitted option E* it was thought to be very much a compromise solution, and not a particularly good one. It was suggested it might impact more people than a taller solution. A comment was made that it is unfortunate the development potential of the adjacent German Canadian Care Home site was not illustrated for comparison purposes and to provide a realistic demonstration of the future of the neighbourhood. It was also noted that the neighbourhood has to expect that there will be some view loss with any development that occurs on this and neighbouring sites. As well, the site's location adjacent to a major arterial route should be acknowledged given it does provide a buffer between Marine Drive and the residential neighbourhood to the north.

The scale on Marine Drive was thought to be appropriate, noting that at whatever height the rhythm and scale on Marine Drive should be residential.

One Panel member thought Option E* was further compromised by the bridge element. Greater transparency would improve it and allow some views through.

From an urban form point of view most Panel members tended to favour Option C* as a massing option, although acknowledged it would not be supported by the neighbours. One Panel member offered there may not be a solution that will not cause some negative impact and be opposed. It was also suggested there may be even more options that have not yet been explored. The Panel certainly thought Option C* had more potential in terms of livability and neighbourliness.

The Panel thought commentary on the architectural expression was premature at this stage.

One Panel member found the 60 ft. separation between the buildings to be unacceptable, particularly given it could set a precedent for neighbouring development. As well, all sides of the scheme should be residential in character, not just the Harrison Drive frontage.".

* Note: During the rezoning process, the applicant proposed alternative massing options:

.
Environmental Implications: Nearby access to transit and the possible provision of a communal bus for resident outings may reduce dependence on use of automobiles.

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

Financial Implications: The project will qualify for CAC and DCL exemptions. Otherwise, there are no financial implications with respect to budget, fees or staffing.

Comments of the Applicant: The applicant has been provided with a copy of this report and has provided the following response:

"Thank you for sending a copy of your Policy Report for our comments. This has been a long and exciting process. We are pleased by the solution that we have come up with together. Your support in this endeavour has been critical to the final design process. There are only 3 conditions which we feel require amendment within Appendix `C' and are noted below.

Background: We would like to clarify that the facility held 64 residents in 2004 and that it has been reduced to 46 as of January 3rd through a process of moving residents as otherbeds in Vancouver become available. The date for the closure of the building has been extended to June 30th, 2005.

Appendix `C'
Form of Development

Section b)

(i) "design development to the building's site orientation relative to Harrison Drive so that it better fits the prevailing development building pattern and improves private view amenities"

(iv) "design development to the exterior courtyard improving sun access and providing a more gradual and meaningful transition through the courtyard down to the lower level along Southeast marine Drive"

(vi) "consideration of eliminating the connecting bridge between the east and west wings, to improve views through the site"

LINK TO APPENDIX E

 

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

2020 Harrison Drive

Legal Description

Lots 8-11, Block 23, DL Fraserview, Plan 8574

Applicant/Architect

Henriquez Partners Architects

Property Owner/Developer

Icelandic Care Home Höfn Society

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

4 627.9 m²
(49,816 sq. ft.)

  

4 627.9 m²
(49,816 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT (if different than proposed)

ZONING

CD-1

CD-1

  

USES

Multiple Dwelling
Special Needs Residential Facility

Seniors Supportive and Assisted Housing

  

MAX. FLOOR SPACE RATIO

0.7

1.45

  

MAXIMUM HEIGHT

datum elevation of 46.65 m (153 ft.)*

datum elevation of
50.15 m (165 ft.)

  

MAX. NO. OF STOREYS

  

4 storeys (2 storeys above Harrison Drive)

  

PARKING SPACES

11 spaces

34 spaces

  

Comments or questions? Send us e-mail at info@city.vancouver.bc.ca
© 2002 City of Vancouver