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CITY OF VANCOUVER POLICY REPORT
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Date: |
December 3, 2004 | |
Author: |
I. Smith/K. Hiebert | |
Phone No.: |
873-7846/871-6066 | |
RTS No.: |
4635 | |
CC File No.: |
8206 | |
Meeting Date: |
December 14th 2004 |
TO: |
Vancouver City Council |
FROM: |
Southeast False Creek Steering Committee |
SUBJECT: |
Southeast False Creek Official Development Plan |
RECOMMENDATION
A. THAT Council refer the proposed South East False Creek Official Development Plan (ODP) to public hearing; and
FURTHER THAT the Director of Legal Services be instructed to prepare the necessary ODP By-Law for public hearing along with any ancillary by-laws the Director of Legal Services considers necessary;
B. THAT Council acknowledge the contributions of the Southeast False Creek Stewardship Group in the preparation of the Official Development Plan (ODP) and that staff report back on the continued participation of community advisory groups through the sub-area rezonings and development of the new community.
City Manager's Comment
The purpose of this report is to refer the revised Southeast False Creek Official Development Plan to public hearing in the New Year. Since Council instructed staff in July to revise the plan, a new form of development reflecting a low to medium rise option, including reconfigured street and park systems, has been developed. The public benefit package has also been revised with enhanced affordability, additional childcare and a larger community centre.
In July, Council also directed that the value of the City's lands in South East False Creek be reinvested in the project to achieve the reconfigured plan and revised public benefit package, but that the cost of servicing and developing the City's lands be recovered from the revenues generated from the City's lands. Consequently, a financial analysis of the reconfigured plan is required.
The financial analysis will be comprehensive and incorporate all costs including revised estimates for shoreline stabilization, soil remediation, servicing, and the costs of implementing the new public benefit package. The analysis will also address the allocation of costs between the City-owned lands and the private lands to be covered by the proposed SEFC ODP, and the City as a whole. The financial analysis of the costs of implementing the reconfigured plan will be completed by year end and will be made available to Council and the public in mid-January for consideration at the public hearing. This will ensure that Council has all the information it needs to make a balanced decision.
The City Manager RECOMMENDS approval of A and B noting that Council will be provided with full financial analysis prior to the Public Hearing.
COUNCIL POLICY
· In October 1999, Council approved the Policy Statement for Southeast False Creek to guide future planning of the site.
· In July 2004, Council approved amendments to the Southeast False Creek Policy Statement (contained in Appendix A) and established the Southeast False Creek Steering Committee to oversee the project.
PURPOSE
The purpose of this report is to refer the Southeast False Creek Official Development Plan (SEFC OPD) to public hearing.
BACKGROUND
Site Description
SEFC is located on the False Creek waterfront between Cambie Bridge and Main Street, north of 2nd Avenue. The site comprises a total of approximately 32 hectares (80 acres) of land currently zoned M-2 and FC-1. The City of Vancouver owns most of the land north of 1st Avenue and a number of sites between Quebec Street and Main Street. Translink owns a site north of 1st Avenue at the corner of Quebec Street. The remainder between Quebec Street and Main Street, and between 1st and 2nd Avenue is privately owned.
Recent Planning Process
In July 2004, at a public meeting, following comments and concerns raised by the public and advisory groups, Council made a series of choices establishing new directions for the SEFC ODP (see: Appendix B). The primary choices were a different financial approach allowing the current value of the land to be reinvested in the site and to pursue low- and mid-rise forms of development. The intent is that the revenues generated cover all development costs e.g. servicing, remediation, infrastructure costs, etc, but do not necessarily recover the land value or earn a profit for the City's Property Endowment Fund. This new approach and Council's direction permitted the development of a significantly different Official Development Plan, having particular regard to the heights, form, waterfront design and location of heritage buildings. At the same time the size of the community centre, the level of childcare, and housing affordability have been increased.
Figure 1
DISCUSSION
Vision for the SEFC Neighbourhood
The Official Development Plan (ODP) for Southeast False Creek provides a framework within which the environmental, social and economic sustainability objectives, intent, and policies contained in the Southeast False Creek Policy Statement are carried forward and realized in the design of the community.
South East False Creek is envisioned as a predominantly high density residential neighbourhood in which a mix of other uses will result in a community where people live, work, play and learn; a neighbourhood that has been designed to maintain and balance social equity, livability, ecological health, and economic prosperity, so as to support choices to live in a sustainable manner.
It is a community which is intended to move significantly towards sustainable development and in doing so, provide a learning experience which can be applied at a much broader scale. It has been contemplated as a complete community with goods and services within walking distance, and will offer housing linked by transit to nearby jobs.
To do this the SEFC ODP uses and builds on the knowledge gained from the major waterfront redevelopments in Vancouver. In addition to a complete community near jobs in the central area and which focuses on pedestrians and bicycles first and is linked to transit, SEFC will be unique in its commitment to reduce energy consumption and greenhouse gas emissions, reduce water use and waste, promote urban agriculture and green building practices, and move significantly toward social sustainability in an environment of acceptance, inclusiveness, health, safety and education.
The Plan
The Illustrative Plan in the ODP (see: Appendix A) has been developed on principles which embody comments from the public and Council's direction. Design principles and highlights of the plan include:
A. Neighbourhoods and Parks
Parks and public open space organize the community into three distinct neighbourhoods. The neighbourhoods derive their form and development footprint from the historic patterns of the site and adjacent communities. Three waterfront parks, a west, central, and east park space, are featured. In addition, small `pocket' parks have been created in three locations along 1st Avenue to provide residents with easy access to park space throughout SEFC.
While Council gave staff the ability to consider up to a 10% reduction in the 26.4 acres of park previously mandated on the public lands, the new Illustrative Plan includes 25.4 acres on the public lands (a 4% reduction) and an additional .45 acres on the Translink Lands for a total of 25.85 acres, totally a 2% reduction.
B. Low- to Mid-Rise Form
The new plan features a low- to mid-rise concept for height that is sensitive to the context and reinforces the natural form of the False Creek basin. The new plan integrates the private lands carefully into the concept, with generally lower heights on the public lands stepping up to 12 storeys (38 metres or 124 feet) on the private lands between 1st and 2nd Avenue. Slightly higher buildings are also being finalized in four locations on the private lands to frame open space and terminate views. A new vision south of City Gate would see heights quickly stepping down from a tower near Terminal Avenue and generally match the Van City building in height.
In developing a low- to mid-rise form the development footprint and street and pathway pattern has also changed. A finer grain, more pedestrian friendly urban structure has been developed north-south connecting the private and public lands, and east-west by adding mews and shifting the northernmost street closer to the water. In addition to the Salt Building, two other buildings with heritage merit (the `Sawtooth' and Wilkinson Building) are proposed to be retained in their current locations adding interesting variations to the plan.
C. Commercial Centre
The community will focus on a local commercial shopping area centred on Manitoba Street which includes the reuse of the Domtar Salt Building, in its current location, adjacent to the community square. Manitoba Street will extend around the Salt Building in a configuration to be determined at the sub-area zoning stage, and will be pedestrian-oriented. Local serving retail shops will be required at the ground level along both sides of Manitoba Street, including provision for a medium size grocery store and farmer's market, to provide for the shopping needs of the whole community. The community square north of the Salt Building is approximately .2 hectares (.5 acres) and will provide an area for community activities and open air retail.
D. Waterfront
The introduction of a new street (Front Street) close to the water provides an opportunity for retail, restaurants, and community use to contribute to an active and exciting waterfront.
The public waterfront will be engaged with new development and animated through the selection of land uses and design of shoreline features, such as wharfs, boardwalks, and pedestrian bridges that recall the site's historical pattern of boat `slip-ways'.
The community heart will be connected to a cluster of community services via Front Street and the Waterfront walkway/bikeway. A full-size community centre (30,000 sq. ft or 2,787 sq. m) to serve SEFC including a non-motorized recreational boating facility will be located in the vicinity of the waterfront area north of Front Street, with easy access to docks for launching boats. The elementary (K-7) school, along with a daycare and an after-school care facility, will be located within walking distance of the community centre/boating facility. The waterfront park between the community centre and school is proposed as a community `learning' garden to provide garden plots and sustainability lessons for children and adults.
Further investigation of shoreline stabilization issues and costs have resulted in an amended Illustrative Plan that suggests the opportunity for temporary structures, but no permanent habitable structures, within a 30 metre (98 foot) setback from the top of the bank of the shoreline. Staff will report back on a recommended strategy for the shoreline geotechnical (seismic) design as part of the Financial Analysis Report in January 2005.
E. An Integrated Sustainable Transportation Approach
The plan proposes a street system that minimizes the widths of right-of-ways, creates a finer pattern of development, and sets a hierarchy of pedestrian, bicycles and transit before the automobile. Standard residential street rights-of-ways have generally been reduced from 66 feet (20 metres) to 59 feet (18 metres), a 10% reduction, to increase the size of the park and development parcels.
The Illustrative Plan has been informed by a sustainable transportation study that anticipates that 60% of trips in future SEFC will be non-auto, and consequently includes many pedestrian routes into and throughout the park and development areas, from pathways to pedestrian-oriented mews, to sidewalks on tree lined streets.
Cycling is expected to be an important form of transportation for residents and workers in SEFC. Two important east-west bike routes are along the waterfront (the Seawall Walkway/Bikeway) and along 1st Avenue. The extension of the Ontario Street Greenway connects to Mt. Pleasant. On the east, the Central Valley Greenway connects SEFC to East Vancouver, Burnaby, and New Westminster.
In the central portion of the site, walkers and cyclists can choose a slower path on the water's edge that will accommodate many different types of users and activities and be more recreational in nature, or a faster moving waterfront by-pass on the north side of Front Street from Ontario to Columbia.
The right-of-way for 1st Avenue has been reduced by 10% from 88.5 feet (27 metres) in the previous plan to effectively 80 feet or 24.5 metres (including setbacks). 1st Avenue still provides a dedicated right-of-way for the proposed Downtown Streetcar, bike lanes in both directions, a parking lane and two moving lanes. In addition, provisions will be made for accommodating a bus route along 2nd Avenue, transit priority improvements along Main Street, and docks for the False Creek ferry operators along the SEFC waterfront.
The internal street network of SEFC is conceived as local-serving residential streets. Wherever possible, nearby arterials will accommodate vehicular traffic generated to/from SEFC. Sustainable landscaping and stormwater management will be showcased where possible and these design intentions will be expanded later as part of the SEFC Design Guidelines.
F. Housing Affordability
Instead of the 20% non-market and 80% market mix that had been previously contemplated, the new plan now contemplates 1/3 low income, 1/3 middle income, and 1/3 high income for the City Lands. In accordance with existing policy, the 1/3 low income will be distributed and integrated across the City owned lands. For the middle income (affordable housing component) a similar strategy will be employed in the detailed zoning stage. At that time, staff will report back on various options that would include market rental housing, market condominiums with restrictions to ensure long term affordability, or the integration of mixed market projects. Other options could include co-housing with affordability requirements or affordable live/work. The higher income component will also be determined at the time of detailed zoning, but it is generally thought that higher amenity sites next to parks and waterfront will be set aside for these units.
G. Sustainability
A comprehensive approach to sustainability across the site has been incorporated in the new plan. In addition to a complete community design and progressive sustainable transportation approaches, this plan is unique in its approach to re-using heritage buildings, urban agriculture, stormwater management, affordable housing and public amenities to support the social health of the community.
A Green Building Strategy for SEFC, as adopted by Council in July 2004 (see: Appendix C), will also be applied to the SEFC lands with a LEED gold standard for City owned buildings and demonstration of at least LEED silver on the private sites (although per Council policy registration is voluntary at this time), as well as some baseline mandatory environmental criteria for all development sites to reduce energy, greenhouse gas emissions, water use and waste, and promote urban agriculture. Social sustainability criteria in terms of meeting basic needs (e.g. affordable housing), maintaining and enhancing human capacity (e.g. local employment) and maintaining and enhancing social capacity (e.g. places for social interaction) have also informed the plan.
Draft indicators and targets in each of the spheres of sustainability are being developed and will be reported to Council before the Public Hearing. It is important to note that the targets are subject to updating as the project gets built out and as needs and technology permit even more ambitious objectives.
In addition, demonstration projects will be further investigated for implementation on the city-owned lands, as resources are identified for these projects. These demonstration projects will be confirmed at sub-area zoning stages or as funding partners are identified and could include:
· Environmental demonstration projects (greywater recycling, rainwater use indoors, composting toilets, blackwater treatment, and commercial greenhouses in public buildings);
· Olympic Village energy system and expansion capacity to larger energy precinct with the False Creek Flats and False Creek North (geothermal energy supply system, district heating system, sewer line heat recovery and fuel cell applications for emergency back-up systems);
· Special high quality design and artistic demonstration of stormwater management facility;
· On-site hydrogen production for fuel cell applications that minimises green house gas-based energy as an input;
· Solar/photovoltaic demonstration projects.
Plan Statistics
The SEFC ODP By-law will regulate both the public and privately owned land. The total community will include approximately 587,576 sq. m. (6,324,822 sq. ft.) of development of which approximately 519,081 (5,587,524 sq. ft.) will be residential. These are gross density figures, and do not include exclusions. Of the units contemplated on the public lands, 1/3 will be low income (social/non-market housing), 1/3 middle income (affordable market), and 1/3 higher income (market). On the public lands, 35% of the units will be designed to be suitable for families with children. On the private lands, 25% of the units will be designed as suitable for families. At CD-1 zoning, staff will further investigate how best to achieve a compatible housing strategy on the Translink site and privately-owned lands.
In regard to the City-owned lands, the plan has achieved 203,773 sq. m (2,193,386 sq. ft) of residential uses, and 22,725 sq. m (244,608 sq. ft) of combined commercial and flex uses.
A full provision of public amenities will also be supported in the ODP, including parks totalling 10.4 hectares (25.8 acres); a community/boating centre; childcare centres, out of school childcare spaces and family childcare spaces; and a site for a K-7 school.
The Private Lands
The plan for SEFC integrates the adjacent private lands through the street network, ground plane design, and building heights. While the general height maximum for the lands between 1st and 2nd Avenues is lower than previously contemplated, the maximum density allowance of 3.5 FSR that had been discussed with the landowners under previous plan scenarios has been maintained.
In the case of sites eligible for heritage and cultural density bonusing, staff will continue to work with landowners through CD-1 zoning to achieve additional density on specific sites, while maintaining coherence with the overall plan. For sites with heritage value, for example the Opsal Steel site, permitting density to be transferred out of the SEFC area (e.g. amending the Transfer of Density policy) along with other incentives such as tax relief, Development Cost Levy (DCL) relief, and granting opportunities through the Federal Government's "Historic Place Initiative" program, will be examined. The goal will be to craft an incentive strategy for each of these sites, using a variety of methods, while maintaining the viability of the City's program for banking heritage density as well as other City objectives.
In the case of the site currently planning to accommodate the existing Playhouse Theatre Production Centre, additional funding mechanisms for cultural amenities (senior government funding, private sector fund raising, capital plan, CACs etc.) will be explored during the CD-1 stage of planning.
An approach to development form has been established in the plan for the sites south of City Gate between Quebec and Main Street. However, staff note that the final density and heights will be resolved (applying the amenity bonusing policies of the City for development beyond the baseline plan) at sub-area CD-1 zoning stage as part of the negotiation around amenities and as further clarity regarding adjacent land uses and development form is achieved through the False Creek Flats planning process.
CONSULTATION PROCESS
The revised Official Development Plan and Illustrative Plan with supporting material and model were presented to Council's advisory groups, the adjacent communities and to the public generally. They were strongly supported, as outlined below.
A. SEFC Stewardship Group: The Stewardship group expressed strong support for the revised plan and ODP By-law. They noted that many changes, including more affordable housing, a full-sized community facility, increased childcare and a more active waterfront, were strongly advocated by the group when reviewing the previous plan. Their comments are provided in Appendix D and will be supplemented by more detailed comments that will be forwarded to Council prior to public hearing.
B. Heritage Commission: The Heritage Commission supported the revised plan with regard to the retention of the three identified heritage structures on the City's lands and the decision to leave them in or very near their current locations. Suggestions for additional improvement related to: further consideration of bringing water to the Salt building; leaving the Wilkinson Building in its existing location, and considering ways to re-configure the shoreline to recall the `slipways' of the past.
Staff have reviewed these suggestions and undertaken further study of the plan's ability to respond to them. A plan is currently being investigated which would leave the Wilkinson Building in its current location and have the road pass through the building structure. Additional technical work will be undertaken to review the feasibility of this proposal. Work is also being done on park design to recall the historic `slipways'. With respect to water near the Salt Building, the next phase of planning will look at opportunities to use stormwater in close proximity to the building.
C. The Urban Design Panel: The Urban Design Panel gave unanimous support to the revised Illustrative Plan, noting significant improvement to the height and massing, the integration of public and private lands, the redistribution of park spaces, and the active waterfront. It was felt that further design development was required to improve sunlight access into courtyard spaces and into the central "hinge" park.
D. Disabled and Seniors Committee: Strong and unanimous support was given for the revised Illustrative Plan. The inclusion of universal design as a requirement in the ODP to provide high levels of accessibility was also strongly supported and seen as a major step forward in planning for the disabled community. Investigation of accessibility and application to building design, public realm and open spaces will be conducted in consultation with the Advisory Committee on Disability Issues including implications on cost of development at the CD-1 stage of planning.
E. Vancouver City Planning Commission (VCPC): The Vancouver City Planning Commission strongly supported the new plan, noting in particular the improvements made by creating a more active waterfront area, the improvement to the height and massing of the proposal, and the improved public amenity package.
F. The Bicycle Advisory Committee (BAC): The BAC has given support to the plan, notably the changes that have been made to the ODP through an iterative process between staff, the design team, and the BAC members.
As a result, significant bicycle improvements were made to the plan including: provision of 1.5m bike lanes on 1st Avenue, wider bike facilities and a minimizing of potential conflicts along the waterfront route, accommodation of bike lanes or pathways on Ontario Street, separated from pedestrians. The BAC supports the ODP going forward with these revisions but has noted their continued interest in commuter bike facilities on Quebec and no drop off for the school.
Staff note that the current plan is a balance between all modes of transportation. The school drop-off will be looked at in detailed design, and while it is unlikely that the drop-off will be removed, its complete separation from the bike path can be achieved. With regard to Quebec Street, bike lanes are not possible due to the future development of the streetcar and the limitation imposed by existing SkyTrain columns. As a result staff are looking at bicycle improvements in Creekside Park.
G. Public Information Meetings: Two major events were held, one in the concourse of the Vancouver Public Library and one in Mt. Pleasant at the Ukrainian Auditorium. Both were very well attended, each drawing 200 - 250 people. The support for the plan was very strong, particularly for the low to mid-rise form, heights, sustainability measures including the transportation approach, and the active waterfront. The increase in affordable housing was also strongly endorsed. Ninety-four survey forms were filled out with a 73-80% support rate for the plan on all questions posed. Complete results of the survey are included as Appendix E.
FINANCIAL IMPLICATIONS
On July 20, Council instructed staff to amend the ODP and thereby broaden the public amenity package as follows:
_ Change the mix of housing on the City Lands to 1/3 low income, 1/3 middle income, and 1/3 high income;
_ Reduce the form of the development to mid-rise;
_ Develop a more attractive waterfront;
_ Increase the proposed community centre from 10,000 sq. ft. to 30,000 sq. ft. and accommodate a non-motorized boating facility;
_ Change the distribution of the park space to reflect a better balance over the site;
_ Narrow the street rights of way;
_ Leave the heritage buildings in place rather than move them;
_ Increase the childcare to normal development levels.
Council was advised that these changes would have an impact on the financial assumptions that underlie the ODP with additional costs anticipated to be in the range of $47.5 million plus the still-to-be-determined foreshore stabilization and soil remediation costs associated with the revised form of development.
In response, Council instructed staff to invest the return expected on the value of the land owned by the City in SEFC - estimated at $50 million - in the project to assist in achieving the overall public amenity package.
Since July 26, the Illustrative Plan has been revised and work is underway to provide updated estimates of the impacts of the revised plan on development economics for the City-owned lands, and on the costs of preparing the site for development (including significant foreshore and soils requirements) and of providing the revised public amenity package. A full report on the financial issues arising from the revised ODP will be presented to Council in advance of the public hearing.
In revising the financial implications of the redevelopment project, staff have proceeded on the basis that Council's intention is to increase the contribution from the PEF such that its involvement results in a financial break-even position. That is, to the extent the outcome of this project can be accurately projected over 15 years, the project revenues would cover the costs of servicing and preparing the site for development and the Property Endowment Fund will invest the return it would have expected on the land into the public amenity package. This assumption is being built into the financial analysis.
Despite this additional investment, the cost of the public amenity package identified by the community and Council is significantly higher than the contribution expected from the PEF alone. However, the ODP financial plan continues to assume that the private lands would also contribute to the public amenity package anticipated for SEFC. Participation from private land owners within the ODP area would be achieved through the application of Development Cost Levies and Community Amenity Contributions on their developments that would be directed to the public amenity package. Moreover, to the extent that the development offers a wider public benefit, the City could use its more traditional funding sources, including the Capital Plan, City-wide Development Cost Levies (DCLs) and Community Amenity Contributions (CACs), senior government funding and partnerships. Staff are working on a financial strategy that will outline how the revised public amenity package can be achieved or adjusted in response to changing circumstances. This approach will be reported fully in the Financial Report.
ADDITIONAL ACTIONS AND CONSULTANCIES
In July Council also recommended further study in a number of areas.
A. A Public Investment Model. Reinvesting the value of the City's lands into the site is an investment in the community particularly in both social and environmental sustainability. To better reflect the benefits of this reinvestment, Council requested the preparation of an advanced financial model that would recognize additional social and environmental benefits where possible. Work is well underway on this model, which is being done in the format of Multiple Accounts Evaluation. It is the intention of staff to inform Council of the results before the public hearing. It is important to note that this analysis will bring forward another set of measures by which to evaluate the SEFC plan, however it does not easily fold into a cash-flow analysis to achieve Council's objective of `break-even' development on revenues and costs.
B. Targets and Indicators. In reconfirming its commitment to sustainability, Council asked that targets and indicators be developed as a means to measure success. As the indicators and the development of the advanced public investment model are linked, the two tasks have been combined. The consultancy will produce the initial targets and indicators recommended for the ODP on or before the Public Hearing.
C. Interfaith Spiritual Centre. In accordance with Council's recommendations the ODP by-law has been amended to include this use. The exact location(s) will be determined when discussions with the International Olympic Committee are concluded. The proponents behind the Interfaith Spiritual Centre intend to purchase or lease land from the City or Private landowners at market value.
D. Report on Bioremediation. On the instruction of Council a soils consultant is finalizing an assessment as to the applicability of bioremediation on the Southeast False Creek site. This assessment which looks at contamination, phasing, and bioremediation techniques, concluded that this approach had limited application on the SEFC site. The report will be forwarded to Council before the public hearing.
SEFC STEWARDSHIP
Staff note that moving toward sustainability requires community will, understanding and involvement. The SEFC Stewardship Group has played an important role in keeping watch over the SEFC ODP plan and process. Staff support the Stewardship Group's recommendation to continue their work through the CD-1 zoning stages, with the view that it evolves, over time, into a neighbourhood association, as recommended in the SEFC Policy Statement.
CONCLUSION
All of the July Council directions have been incorporated into the Official Development Plan and accompanying Illustrative Plan. The revised plan has been strongly supported by the public, all advisory groups and the Southeast False Creek Stewardship Group. Some potential additional costs have been identified that are dependent on strategies for Council's consideration for shoreline stabilization and soil remediation which will be detailed to Council in a forthcoming Financial Analysis report. The importance of securing a project contingency, without compromising key project goals, will also be discussed.
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Appendix A SEFC ODP Illustrative Plan
Conceptual Plan
