P3
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: June 30, 1995
Dept. File No. JB
TO: Vancouver City Council
FROM: Associate Director of Planning - Land Use & Development
SUBJECT: Proposed Rezoning of 1202-92 West Georgia Street
RECOMMENDATION
A. THAT the application by James K. M. Cheng Architects Inc. to
rezone 1202-92 West Georgia Street (Lots 1 to 7, Block 31,
D.L. 185, Plan 92) from DD Downtown District to CD-1
Comprehensive Development District be referred to a Public
Hearing, together with:
i) revised plans received June 20, 1995;
ii) draft by-law provisions generally as contained in
Appendix A; and
iii) the recommendation of the Associate Director of Planning
to approve the application, subject to conditions of
approval contained in Appendix B;
B. THAT a by-law to designate the Abbott House building (720
Jervis Street) as protected heritage property, and add it to
Schedule "A" of the Heritage By-law, be referred to a Public
Hearing; and
C. FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-laws for consideration at the Public
Hearing, including an amendment to Schedule "A" of the
Heritage By-law.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A,
B and C.
COUNCIL POLICY
Relevant Council policies for the site include:
- Central Area Plan, adopted December 3, 1991;
- Triangle West Streetscape Concept Plan, adopted July 21, 1994;
- Heritage Policies and Guidelines, reaffirmed April 18, 1991;
- View Protection Guidelines, adopted December 12, 1989, amended
December 11, 1990;
- Public Art Policies and Guidelines, adopted June 23, 1994 and
November 22, 1994; and
- Community Amenity Contribution Policy, adopted July 10, 1990,
confirmed March 7, 1991.
PURPOSE AND SUMMARY
This report assesses an application to permit construction of a
residential development comprising a total of 493 dwelling units. It
involves the retention and restoration of a two and one-half storey
listed heritage Class 'A' building (Abbott House) at the westerly end of
the site, to contain five dwelling units, and the re-creation of an
adjacent circa 1900 period garden. The balance of the site accommodates
two high-rise (35 storeys) towers with 471 dwelling units, together with
17 ground-oriented, three and one-half storey townhouse units fronting
on to Alberni Street. Proposed are 621 underground parking spaces and
two loading spaces.
Staff have received five enquiries about the proposal. The main concerns
expressed are possible loss of private views and the increasing number
of high-rise towers either being built, or approved, in the downtown.
While some view loss is anticipated, staff note that, on balance, the
proposed form of development achieves a compatible fit with the
surrounding context.
In evaluating this application, major issues have been the amount of
bonus density that could be accommodated on-site and whether or not to
temporarily move and store the heritage building off-site during
construction of the underground parking area.
Because of the need to maintain a high standard of livability in
Triangle West, Planning staff believe that the site can only
successfully accommodate up to about 6.30 FSR. Real Estate Services and
Facilities Development staff have estimated a heritage density bonus of
0.56 FSR (3 156 m› or 33,974 sq. ft.), comprising 0.30 FSR to be used
on-site and the balance of 0.26 FSR to be banked and transferred, at
some future date, if an appropriate recipient site(s) can be found
somewhere in the Central Area. A large portion of this bonus has
resulted from a staff position that the heritage building remain on-site
during the construction period.
While the site qualifies for a maximum density of 6.56 FSR, the CD-1
rezoning submission and proposed form of development reflect an on-site
density of 6.30 FSR. Staff recommend approval of the rezoning subject
to further design modifications and refinements to the preliminary
landscape plan, which can be successfully achieved at the development
application stage. For additional information on the site, surrounding
development and the proposed development, refer to Appendix C - page 1.
DISCUSSION
Retail Use: The existing Downtown Official Development Plan (DODP)
requires the west side of Bute Street, between Alberni and West Georgia
Streets, to provide continuous ground floor retail, retail-commercial or
service uses. The desire to have required retail at this location is
related to the Central Area Plan's goal to focus retail where it will
reinforce existing and desired retail districts and pedestrian routes,
and be compatible with adjacent uses.
The applicant proposes a totally residential project without any ground
floor retail use on Bute Street. In this case, staff can support the
proposed adjustment to the retail policy. The current retail
requirement on the site is somewhat anomalous because it is flanked to
the north and south by sites (Pacific Palisades and Banff Apartments)
which have no ground floor retail use.
Consequently, the retail shopping link to Robson Street is somewhat
tenuous and there is some uncertainty as to how successful retail use
might be at the easterly edge of the subject site. Addi-tionally,
setbacks associated with the streetscape design concept for the west
side of Bute Street could limit the viability of some retail and service
uses at this location. Staff note that the deletion of the retail
requirement from the subject site would not diminish opportunities on
the east side of Bute Street to strengthen the continuous pedestrian-
oriented retail loop in that block.Density: The site is in a sub-area
of the DODP that permits a maximum density of 4.0 FSR for non-
residential use. As an incentive to encourage the construction of some
housing in the downtown, the ODP provides for a commercial bonus of up
to 1.0 FSR in exchange for up to 1.0 FSR for residential use. Over the
years, this bonus and housing substitution formula has been less than
successful in encouraging residential development in the Central Area.
Only small amounts of housing have occurred under these provisions of
the DODP. Consequently, the Central Area Plan, which supports the
creation of highly livable neighbourhoods close to the Central Business
District (CBD), favours housing in Triangle West.
Staff support the proposed on-site density of 6.30 FSR, which includes
about half of the heritage density bonus representing 0.30 FSR or (1
689 m›/18,181 sq. ft.). This CD-1 rezoning represents an opportunity to
increase housing in the downtown, further strengthen the emerging
Triangle West neighbourhood by adding people and activities, and reduce
the need for individuals to commute to and from the Central Area.
Residential densities of up to approximately 6.0 FSR have been achieved
on other large sites in the vicinity of the subject site, through CD-1
rezonings, subject to compatible forms of development.
Staff recommend that the balance of the unused density bonus (0.26 FSR
or 1 467.2 m›/15,793 sq. ft.) be banked for possible future sale and
transfer to one or more recipient site(s) within the Central Area, in
accordance with existing Council policy. A condition of rezoning
approval is further recommended in the form of a no development
covenant, limiting development on the site to a maximum density of 6.30
FSR. Council may recall similar situations in the recent past, notably
the former B.C. Hydro building and the Vancouver Public Library where
unused density was banked for future use, provided an appropriate
recipient site could be secured.
Financial Evaluation of the Heritage Density Bonus: Real Estate
Services and Facilities Development staff have estimated a heritage
density bonus of 0.56 FSR. This bonus is generated by two items:
(1) heritage retention and restoration impacts, estimated to be
approximately $670,000; and
(2) costs resulting from the building remaining on-site while the
new construction is underway, at approximately $974,000.
Item (2) would extend the overall construction schedule by four weeks
and require excavation of one extra parking level which creates
additional geotechnical issues at this particular site. Therefore, the
total cost related to heritage preservation is $1,644,000.
The amount of bonus density is a function of the estimated buildable
land value at the location where the density is to be used. This bonus
was calculated using a land value of $60.00 per buildable sq. ft. for
the density to be used on-site and at a considerably lower rate of
$35.00 per buildable sq. ft. for density which would be transferred off-
site [at some future date to an uncertain recipient site(s)]. Since
there is presently about 37 160 m›/400,000 sq. ft. of "banked" density
available on other sites, there is considerable risk that only the on-
site bonus of 1 689 m›/18, 181 sq. ft. (or 54% of the total bonus) will
actually be realized.
Council should be aware that the developer had proposed to temporarily
relocate and store the heritage building off-site during construction.
This option generated a cost of approximately $445,000 which is much
lower than the $974,000 cost for on-site retention during construction.
Planning staff do not support temporary off-site relocation, due to the
increased risk of damage and vandalism concerns. If the off-site option
had been acceptable, the heritage bonus would have been in the order
of 1 752.1 m› (18,860 sq. ft.) instead of the 3 156.2 m› (33,974 sq.
ft.) recommended in this report.
Height and Views: The existing DODP permits a maximum outright height
of 91.4 m (300 ft.) which may be increased to 137.2 m (450 ft.), subject
to the satisfaction of various livability criteria. However, because
the site is affected by a Council-adopted view cone, height is limited
to 103.8 m (340.6 ft.), noting that street end views of the north shore
are preserved.
Staff support the proposed tower heights, measured to the top of the
parapet [west tower - 100.6 m (329.9 ft.); east tower - 98.3 m (322.4
ft.)] on the basis that some of the heritage density bonus has been
transferred to the high-rise towers resulting in two to three extra
storeys, and that the resultant form of development does not impinge
into the view cone nor adversely affect adjacent properties.
The applicant submitted a view analysis assessing view impacts from the
Blue Horizon Hotel on nearby Robson Street. The analysis, done at
different building floors, indicates a degree of view loss from this
neighbouring building that staff conclude is acceptable, given that the
heritage house is to remain in its original location and the need to
maintain a reasonable distance between the house and the proposed
westerly tower.
Tower Separation: Tower separation criteria for high density
residential buildings varies, however it is generally about 24.4 m (80
ft.). This development proposes a significantly wider tower separation
of about 58.7 m (192.5 ft.) to facilitate view opportunities through the
site and create a balanced built form within the surrounding tower
context.
CONCLUSION
This residential proposal is consistent with the Council-adopted Central
Area Plan which encourages housing as the preferred land use within
Triangle West, adjacent to the downtown core. Public views are
preserved, an existing Class 'A' heritage building is to be renovated
and designated together with the re-creation of an adjoining circa 1900
period garden. Additionally, the site will provide significant,
landscaped semi-private open space adjacent to West Georgia Street,
together with the implementation of public realm streetscape treatment
on Bute, Jervis and Alberni Streets in accordance with the Council-
adopted Triangle West Streetscape Concept Plan. Townhouses along
Alberni Street offer an alternative housing form to further augment
neighbourhood diversity.
Planning staff support the proposed rezoning of 1202-92 West Georgia
Street from DD to CD-1 for a high-density residential project, and
recommend that the application be referred to a Public Hearing, subject
to the proposed conditions of approval presented in Appendix B.
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