P4
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: March 27, 1996
Dept. File No. 95026 LC
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: Proposed Rezoning of 4492-4500 Arbutus Street
RECOMMENDATIONS
A. THAT the application by Hamilton Wensley Architects to rezone
the site at 4492-4500 Arbutus Street [Lots 1, 39, and 40,
Block 88, DL 526, Plan 11644] from RS-1 to CD-1, to permit
addition of a special needs residential facility - congregate
housing (33 sleeping units) on a site that also includes a
church and a community centre, be referred to a Public
Hearing, together with:
(i) plans received March 1, 1996;
(ii) draft CD-1 By-law provisions, generally as contained in
Appendix A; and
(iii) the recommendation of the Director of Land Use and
Development to approve the application, subject to
conditions contained in Appendix B.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-law for consideration at the Hearing.
B. THAT, subject to the approval of the rezoning at a Public
Hearing, the Subdivision By-law be amended to delete the site
from the maps forming part of Table 1 of Schedule A; and
FURTHER THAT the Director of Legal Services be instructed to
bring forward the amendment to the Subdivision By-law at the
time of enactment of the Zoning By-law.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
Relevant Council policies for this site include:
- the Special Needs Residential Facility Guidelines (adopted
September 27, 1983) which are intended to ensure that a special
needs residential facility is compatible with the surrounding
neighbourhood.
PURPOSE AND SUMMARY
This report assesses an application to rezone the site at 4492-4500
Arbutus Street from RS-1 to CD-1, to allow the addition of a 3-storey
special needs residential facility (SNRF) - congregate housing,
providing 33 sleeping units for seniors, to a site which also includes
St. George's Greek Orthodox Church and the Hellenic Community Centre.
Fifty-nine underground parking spaces are proposed to replace existing
surface parking that will be lost through redevelopment, and to provide
parking for the residents of the congregate housing and additional
parking for the church and community centre. Access to the underground
parking is proposed from Arbutus Street. Twenty-five surface parking
spaces would remain, with access from 30th Avenue. The special needs
residential facility would be developed and managed by the Hellenic
Community of Vancouver.
Staff support this application because the congregate housing would
increase the range of housing opportunities in this area, as well as
provide a buffer between the neighbouring RS-1 properties and the church
and community centre. In response to staff concerns about the impact of
this development on the adjacent house to the north, the applicant has
reduced the density and undertaken additional design development to
alleviate privacy and livability issues.
Staff recommend that the application be referred to a Public Hearing,
with a recommendation that it be approved subject to conditions.
DISCUSSION
Density: The portion of the site that would be occupied by the SNRF,
labelled as sub-area A on the above map, includes Lot 1 and 856 m2
(9,217 sq. ft.) of Lot 40 and has a frontage of 37.8 m (124 ft.). The
density originally proposed for sub-area A was 1.18 floor space ratio
(FSR) which would have been a significant increase from the 0.60 FSR
permitted in the RS-1 District. The applicant has reduced this density
to 0.95 FSR, in response to staff's request to see a more gradual
transition in density between the site and the adjacent RS-1 property.
Staff's objectives were to reduce the impact on neighbouring houses,
particularly the loss of privacy and livability that could result for
the house immediately north of the site, and to ensure that an adequate
amount of open space would be provided for use by the SNRF's residents.
The proposal's revised density for sub-area A, while still high, is more
compatible with the area and is a reasonable response to staff's
concerns.
Form of Development: The original proposal provided a 1.5 m (5 ft.)
setback between the SNRF and the property to the north. Although the
proposed development stepped back from the northern property line, staff
considered the massing and scale excessive.
The revised design has addressed these concerns by increasing the north
setback to 3.0 m (9 ft 10 in.) and limiting the building to 2-storeys
within a distance of 6.1 m (20 ft.) from the north property line. Staff
feel the revised proposal responds appropriately to the neighbouring
RS-1 property.
Relationship with Neighbourhood: When the neighbourhood was notified of
the proposed rezoning, many of the comments focused on the poor
relationship that existed between the Hellenic Centre and its
neighbours. Residents complained about the parking, traffic, noise and
litter generated by the site and its users. In response to these
concerns, members of the Hellenic Community have agreed to work together
with neighbourhood residents to remedy some of the problems associated
with activities at the community centre.
The proposed development should alleviate some of the noise and visual
impacts by providing a buffer between the church and community centre
and the houses to the north. The proposal also works toward reducing
the traffic and parking impacts:
- It alters the flow of traffic on and off the site. Separate access
is proposed to two distinct parking areas. Currently, traffic can
enter and exit the site from both 30th Avenue and Arbutus Street.
The proposed development would limit access to the underground
parking from Arbutus Street and access to the remaining surface
parking from 30th Avenue. Delivery vehicles would only be able to
enter and exit from 30th Avenue. The proposal has specifically
avoided using the lane for access purposes in response to
neighbours concerns about increasing traffic impacts.
- It provides a small net increase in required off-street parking.
Sixty parking spaces presently exist on the site. The SNRF would
require 21 spaces over and above the present 60 for a total of 81
spaces. However, the application proposes 84 parking spaces which
would provide a net increase of 3 spaces.
Staff are uncertain that the increased parking spaces and altered access
will improve the neighbourhood's current problem with overflow parking
on adjacent streets but do not expect that the new development will
worsen the situation.
CONCLUSION
Planning staff support the addition of the use (SNRF - Congregate
Housing) to this site. The application offers the public benefit of
increasing the range of housing options that are available in the
neighbourhood. Furthermore, by proposing increased parking, and
agreeing to ongoing neighbourhood discussions, the applicant and the
Hellenic Community are attempting to reduce the current impacts of the
church and community centre on the adjacent area. The proposed SNRF
building has undergone a density reduction and design modifications to
make it more compatible with the adjacent RS-1 area, although further
design refinements (Appendix B) are recommended by staff.
Staff recommend that the application be referred to a Public Hearing
with a recommendation from the Director of Land Use and Development that
it be approved, subject to draft CD-1 By-law provisions generally as
shown in Appendix A, and to proposed conditions of approval as listed in
Appendix B.
* * *
APPENDIX A
Page 1 of 1
DRAFT CD-1 BY-LAW PROVISIONS
4492-4500 Arbutus Street
Uses
Special Needs Residential Facility - Congregate
Housing.
Church.
Community Centre.
Accessory Uses customarily ancillary to the
above uses.
Floor Space Ratio
The maximum floor space ratio will be 0.95 for sub-area A (Special
Needs Residential Facility - Congregate Housing) and 0.67 for
sub-area B (church and community centre), generally based on the
calculation provisions of the RM-4N District Schedule. (Note: a
map showing sub-areas forms part of the CD-1 Bylaw).
Height
The maximum height will be 9.2 m (30 ft.) for the Special Needs
Residential Facility - Congregate Housing.
Setback
The minimum setback of a building from the north property boundary
is 3.0 m (9 ft. 10 in.).
Off-street Parking, Loading and Bicycle Parking
A minimum of 84 off-street parking spaces and 1 loading space must
be provided, developed and maintained in accordance with the
applicable provisions of the Parking By-law (21 spaces for special
needs residential facility and 63 spaces for church and community
centre use). Bicycle spaces must be provided in accordance with the
applicable provisions of the Parking By-law.
Acoustics
As per the RM-4N District Schedule.
APPENDIX B
Page 1 of 3
PROPOSED CONDITIONS OF APPROVAL
(a) That the proposed form of development be approved by Council in
principle, generally as prepared by Hamilton Wensley Architects,
and stamped "Received City of Planning Department, March 1, 1996",
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:
(i) design development to provide details for the common
outdoor amenity area adjacent to the recreation and
dining spaces on the ground floor. Design development
to the associated landscaping to provide a more subtle
transition to the open front yard condition to the north and
along Arbutus Street;
(ii) design development to reduce the visual impact of the
proposed ramp surface and opening as viewed from Arbutus
Street;
(iii) design development to clarify characteristics and
functional features specifically designed for seniors' use,
including aspects of adaptability, accessibility, individual
storage, elevator size and proposed appliances;
(iv) design development to better integrate proposed landscaping
with existing landscaping adjacent to the church as viewed
from Arbutus Street;
(v) clarification of proposed materials, features and detailing
that references the existing church;
(vi) design development to reduce opportunities for break and
enter to ground level units;
APPENDIX B
Page 2 of 3
(Note to Applicant: This can be achieved by having units raised
slightly above the pathway or street level with open landscaping.
Consideration should be given to improving security to these
units.)
(vii) design development to reduce opportunities for
"cutting-through".
(Note to Applicant: This can be achieved by providing a
gate at the north side yard.)
(c) That prior to enactment of the CD-1 By-law, and
at no cost to the City, the registered owner shall:
(i) register at the Land Titles Office a consolidation of
Lot 39, Lot 40 and Lot 1 or a subdivision to create a
parcel for the proposed development, to the
satisfaction of the Approving Officer;
(ii) make suitable arrangements, to the satisfaction of the
General Manager of Engineering Services, for the
provision of a sidewalk on the east side of Arbutus
Street, from approximately 18.4 m (60 ft.) north of
Valley Drive, north to the main entrance to the
proposed development;
(iii) make suitable arrangements, to the satisfaction of
the General Manager of Engineering Services, for
undergrounding of all new electrical and telephone
services within and adjacent the site from the closest
existing suitable service point;
(iv) provide an undertaking, to the satisfaction of the
Director of Land Use and Development, that the
Hellenic Community of Vancouver shall convene a
meeting in each calendar year for the purpose of
organizing a residents' council at the proposed
development;
(v) execute a legal agreement satisfactory to the Director
of Legal Services and the Manager of the Housing
Centre, to ensure that the project is operated on a
rental basis by a non-profit reporting society
registered in the Province of British Columbia;
(vi) execute a legal agreement, to the satisfaction of the
Director of Legal Services and the Manager of the
Housing Centre, providing that the owner of the rental
special needs residential facility shall not
strata-title any of the units.
APPENDIX B
Page 3 of 3
(d) That the above agreements are to be registered in the Land
Title Office and such agreements shall be registered in
priority over all financial charges and all other charges
which may defeat or delay enforcement of the agreement in
the opinion of the Director of Legal Services.
APPENDIX C
Page 1 of 2
SITE, SURROUNDING AREA, PROPOSED DEVELOPMENT AND NON-MAJOR
ELEMENTS
Site: The site includes three legal parcels with a total area
of 6 968.2 m
2 (75,007 sq.ft.) located on the north side of Valley
Drive between Arbutus Street and 30th Avenue. The site presently
contains the St. George's Greek Orthodox Church, the Hellenic
Community Centre and a parking lot on the two southerly parcels,
and a one-family dwelling on the northerly parcel. The church and
community centre are both owned and operated by the Hellenic
Community of Vancouver. The community centre serves local needs
as well as the Hellenic community and is frequently rented on
weekends for private, catered functions, such as wedding
receptions and other social activities. The Hellenic Community
has been renting out the one-family dwelling since acquiring the
property in 1994.
Surrounding Area: Development surrounding the site generally
consists of 1- and 2-storey buildings. To the north and east of
the site is an RS-1 One-Family Dwelling District of primarily
1-storey one-family dwellings. South of the site is Quilchena
Park and Arbutus Gardens, a CD-1 zoned site with 2-storey
multiple dwellings providing rental accommodation. To the west of
the site, across Arbutus Street, are two CD-1 zoned sites. The
site at the northwest corner of Valley Drive and Arbutus Street
is occupied by a 2-storey care facility and the site to its north
is developed with 2-storey townhouses followed by the Arbutus
Village Shopping Centre. The CD-1 site at the southwest corner is
developed with a gasoline service station and several shops.
Proposed Development: The application proposes the retention of
the existing church and community centre, demolition of the
one-family dwelling, and construction of a 3-storey special needs
residential facility - congregate housing on the portion of the
site presently occupied by the one-family dwelling and some of
the surface parking. The congregate housing would provide 33
sleeping units for seniors, with shared kitchen and dining areas.
The Hellenic Community of Vancouver would own and operate the
congregate housing which would be available to members of the
Hellenic community as well as the community at large.
The proposal includes 59 underground parking spaces of which 21
spaces are for the SNRF and 38 spaces are for the use of people
attending the church or community centre. Most of the 38
underground spaces replace existing surface parking that would be
lost when the residential building is constructed. The applicant
also intends to reconfigure the remaining surface parking (25
spaces).
APPENDIX C
Page 2 of 2
Land Use: Staff support the proposed SNRF, as it would
contribute to the range of housing opportunities available in
this area of the city. The use is appropriate at this location
which is adjacent to transit, a local park and various services
offered by the church and community centre. Also nearby is the
Arbutus Shopping Centre which provides a wide range of commercial
services.
SNRF Guidelines: The proposed facility is consistent with the
Special Needs Residential Facility Guidelines which seek to
ensure that special needs residential facilities are compatible
with the surrounding neighbourhood. The Guidelines also recommend
that in a predominantly residential area there should be at least
200 m (656 ft.) between SNRFs, although a congregate housing
facility is normally excepted from this criteria.
Landscape Resources: The large footprint required for the
underground parking has restricted the amount and size of
planting that is proposed and has limited the possibility of
preserving some of the existing landscaping. However, the
reduction in building density and the increased setback along the
north property line in the revised proposal has allowed for
additional landscaping which would help provide a buffer between
the SNRF and the one-family dwelling to the north.
Social Implications: The proposed rezoning would make a positive
contribution to this community by providing an alternative form
of accommodation for seniors in a well-serviced location. There
are no implications with respect to the Vancouver Children's
Policy or Statement of Children's Entitlements.
APPENDIX D
Page 1 of 4
COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES, AND THE APPLICANT
Public Input On September 18, 1995, staff mailed a notification
letter to 108 surrounding property owners. An information sign
was installed on the site on September 19, 1995. A few residents
and nearby property owners have telephoned (6 calls) or written
(6 letters) staff with questions and concerns about the
application. A petition with over 50 signatures was also
received. Although, some concerns were raised about the
redevelopment of the site and the impact it will have on parking
in the area, the majority of the complaints were about the
current relationship between the Hellenic Centre and the
neighbourhood. The neighbourhood is particularly concerned about:
- late night noise from activities held at the community
centre and the departing patrons;
- litter (e.g. beer bottles) on the streets and lanes;
- overflow parking that blocks the streets; and
- frequent visits by delivery and garbage removal vehicles.
On November 21, 1995, the applicant held a public information
meeting. Notices were distributed to 108 neighbouring property
owners and the adjacent rental apartments. Approximately 25 local
residents attended the meeting. Although the major areas of
concern were similar to those listed above, some of the
neighbours felt that the proposed SNRF would negatively impact
the single-family dwelling to the north and would further
contribute to the area's traffic and parking problems. At the
information meeting members of the Hellenic Community and the
local neighbourhood agreed to work together to remedy some of the
problems associated with activities at the community centre.
General Manager of Engineering Services Comments Engineering
Services has no objection to the proposed rezoning and has
provided the following comments:
"1) Consolidation of Lot 39, Lot 40 and Lot 1 are required.*
2) Parking is to be provided as per Section 4.2.3.7 of the
Vancouver Parking By-law.
3) Bicycle parking as per the Vancouver Parking By-law.
APPENDIX D
Page 2 of 4
4) Arrangements to the satisfaction of the General Manager of
Engineering Services for provision of sidewalk on the east
side of Arbutus, from approximately 18.3 m (60 ft.) north of
Valley Drive, north to the main entrance to the proposed
development.
5) Any new electrical or telephone services are to be
undergrounded from the closest suitable existing pole."
* The Law Department suggests including the option of
subdividing the portion of the site that would be occupied
by the SNRF, to allow flexibility for the project's
potential funding requirements. The Manager of Engineering
Services agrees with this change.
Housing Centre Comments "We support the request for rezoning
from RS-1 to CD-1 zoning subject to:
1. A statement from the proponent, the Hellenic Community of
Vancouver, about what type of housing (special needs?) is
proposed, who will operate it, and who will live there.
2. Prior to enactment of the rezoning, a housing agreement is
to be registered on property title which ensures that the
project is operated on a rental basis by a non-profit
reporting society registered in the Province of British
Columbia, to the satisfaction of the Manager of the Housing
Centre and the Director of Legal Services.
3. Prior to enactment of the rezoning, a 215 covenant is to be
registered on property title which prohibits stratification
of the property, to the satisfaction of the Manager of the
Housing Centre and the Director of Legal Services."
Police Department Comments "This proposed development is located
in a medium to low crime impact environment. Crimes to consider
are theft from auto, bicycle theft, nuisance in underground
parking and ground level break and enter to residential units.
With the higher seniors population in the area and proposed for
this development, special consideration should be given to
reducing places that create fear."
The Police Department has also proposed design development to
incorporate crime prevention through environmental design (CPTED)
principles. [refer to Appendix B - Proposed conditions of
Approval items (b) (vi) and (vii)].
Urban Design Panel On September 27, 1995, the Urban Design Panel
reviewed the proposed rezoning and offered the following
comments:
APPENDIX D
Page 3 of 4
"The Panel supported this rezoning application. There was general
support for the overall architectural character of the project,
but some concerns about the proposed bulk and density.
It was felt that a different option should be explored for the
access to the parking area which in turn might help to solve some
of the other problems to do with relationships between buildings.
There was mixed response to the bridge connection. Those Panel
members who did not endorse it felt a softer way could be found
to connect the buildings. It was recognized to be a very
difficult design problem in terms of the number of elements
involved.
Several Panel members felt that the problems with the scheme were
exacerbated by the amount of density that is trying to be
achieved on the site. Not only does it prohibit achieving a
softer solution to the scheme but it also limits the amount of
usable on-site open space provided for the residents.
Concerns were expressed about the side yard and the open space
provided on the north. More usable open space in the back was
recommended; perhaps some walking paths or something so that it
is not just a visual resource. A Panel member also suggested
eliminating the three parking stalls at the back in order to
provide more landscaping to provide more buffer for the
neighbours. With respect to the single-family neighbour to the
northeast, the Panel appreciated the effort made to respect its
proximity but felt the relationship could be improved further by
reducing the amount of density on the site."
Committee on Seniors On September 28, 1995, the Housing
Sub-committee of the Special Advisory Committee on Seniors
reviewed the proposed rezoning and made the following comments:
"Although supportive of this project, concern was expressed with
the lack of kitchen facilities, especially a kitchen sink*. The
sub-committee requested to see more detailed plans before the
Development Permit is granted."
On September 29, 1995 the Committee on Seniors received this
report and resolved:
"That the report of the Housing Sub-committee be approved and the
comments and recommendations be forwarded to staff and Council."
* The sub-committee is referring to the lack of
kitchen sinks in the individual units.
APPENDIX D
Page 4 of 4
Applicant's Comments "The Hellenic Community and their
architects have gone to great pains to meet with the neighbours
affected by the proposed development, not only to discuss the
impact of the development from a point of view of built form and
traffic, but also to discuss the impact of existing buildings at
the various times when the facility has proven almost more
popular than was envisaged in the beginning.
As a result of the two information meetings, and with particular
reference to the neighbours most affected by the development, the
architects have worked closely with staff to meet these concerns,
and have made many changes to improve the amenities, traffic
conditions, sight angles, etc.
As a result, we feel that we have done our best and offer the
enclosed application in the spirit of that cooperation."
APPENDIX F
Page 1 of 1
APPLICANT AND PROPERTY OWNER INFORMATION
APPLICATION BY Hamilton Wensley Architects
PLANS BY Hamilton Wensley Architects
PROPERTY OWNER Hellenic Community of Vancouver
DEVELOPER Hellenic Community of Vancouver
SITE INFORMATION AND STATISTICS
STREET ADDRESS 4492-4500 Arbutus Street
LEGAL DESCRIPTION Lots 1, 39, 40 Blk 88, DL 526, Pl 11644
SITE AREA 6 968 m2 (75,007 sq.ft.)
WIDTH irregular
DEPTH irregular
DEVELOPMENT STATISTICS
DEVELOPMENT PERMITTED PROPOSED RECOMMENDED
UNDER EXISTING RS-1 ZONING DEVELOPMENT DEVELOPMENT
(if different than (if different than
permitted) proposed)
MAX. FLOOR SPACE 0.60 0.67 church and community
RATIO centre/0.95 SNRF
MAXIMUM SITE 40% buildings
COVERAGE 30% parking
MAXIMUM HEIGHT 9.2 m (30 ft.) 9.2 m (30 ft.) SNRF
FRONT YARD SETBACK 20% of depth of site 7.6 m (25 ft.)
[approx. 7.3 m (24 ft.)]
REAR YARD SETBACK 45% depth of site [approx. 5.9 m (19 ft. 6 in.)
16.5 m (54 ft.)]
SIDE YARD SETBACK >10% and <20% of width of 3.0 m (9 ft. 10 in.) on
site along north side north side
REQUIRED PARKING 1/70 m2 for 21 spaces SNRF at
SNRF-congre-gate housing; 1/70 m2 and 63 spaces
60 spaces approved with church/community centre
development permit for
church and community centre