MC-1/Welwyn Street Planning Policies

SUPPORTS ITEM NO. 1
P&E COMMITTEE AGENDA
APRIL 25, 1996

POLICY REPORT
URBAN STRUCTURE

Date: April 11, 1996
Dept. File No.: HR

TO: Standing Committee on Planning and Environment

FROM: Director of Community Planning, in consultation with
General Manager of Engineering Services
General Manager of Parks and Recreation
Director of Community Services, Social Planning
Manager of Housing Centre
Director of Finance

SUBJECT: MC-1/Welwyn Street Planning Policies

RECOMMENDATION

A. THAT the proposed policies in the attached document entitled
"Cedar Cottage MC-1/Welwyn Street Planning Policies" (Appendix
A), be adopted by Council, as a guide to implementation of B.

B. THAT Council adopt the following implementation actions:

(i) THAT the Director of Community Planning be instructed to
report back with proposed amendments to the existing
MC-1 zoning, including guidelines.

(ii) THAT the Director of Community Planning be instructed to
report back on Development Cost Levies in the area.

(iii) THAT the Manager of the Housing Centre, in consultation
with the Director of Community Planning, be instructed
to develop and implement a process for the development
of a demonstration housing project on the Greater
Vancouver Regional District (GVRD) site, once the site
has been acquired.

(iv) THAT the General Manager of Engineering Services, in
consultation with the Director of Community Planning, be
instructed to undertake the development of a conceptual
design for the proposed streetscape improvements
outlined in the attached Policy document, and approve
$10,000 for consultant services and related expenses for
this purpose, to come from 1996 Contingency Reserve.

(v) THAT the General Manager of Engineering Services, in
consultation with the Director of Community Planning,
and General Manager of Parks and Recreation be
instructed to report back on the funding mechanisms and
timing of implementation of the street tree and sidewalk
restoration on Commercial Street between 18th and 22nd
Avenues described in this report.

(vi) THAT the General Manager of Engineering Services be
instructed to pursue the paving of the lane west of
Commercial Street, between 18th and 20th Avenues,
through a Local Improvement Initiative.

(vii) THAT the General Manager of Engineering Services be
instructed to conduct a review of on-street parking in
the study area, including the consideration of parking
relaxations for change-of-use in existing buildings, and
report back, if necessary, with recommended changes to
the Parking By-law.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A
and B.

COUNCIL POLICY

Industrial Lands Strategy

On July 10, 1990, Council resolved that 270 acres be released from
industrial uses, and that the Director of Planning, in consultation with
the Director of Housing and Properties and the City Engineer, review
land use options and recommend new zoning schedules, including
residential where appropriate. The MC-1 area was included in these
lands.

CityPlan

On June 6, 1995, Council endorsed CityPlan, which provides a number of
directives relating to providing housing variety in neighbourhoods.

SUMMARY

The MC-1/Welwyn Street study area is an industrial "let-go" area where a
mix of light industrial, commercial and residential uses has existed and
evolved for the last 20 years. This long history of mixed-use, and a
community desire to maintain this mix, makes this area different than
other industrial "let-go" areas. The diverse building ages and styles
and mature street trees contribute to the unique character of this area,
which people living and working in the area would like to see protected.
Light industry and services wish to remain in the area, while vacant and
under-utilized sites offer excellent opportunities to add housing
capacity and choice. The vacant Welwyn Street GVRD site which the City
is currently seeking to acquire for a demonstration housing project, is
one of these opportunities.

The planning process involved generating and sharing information and
ideas on separate topics like housing, industry, parks and traffic with
the local community; these were brought together into a draft concept
plan at a two-day design workshop. The attached draft policies were
developed from the concept plan. Throughout the process, staff worked
with a Working Group representing area interests, as well as maintaining
broader community contact through newsletters, open houses, surveys, and
discussions with interest groups.

The proposed policies for the MC-1 area confirm a mixed-use future,
balancing residential, commercial and industrial uses. Mixed-use is
extended into the Stainsbury Triangle located at Victoria Diversion and
Stainsbury Avenue. The policies call for the general density and height
restrictions to remain the same as now. The policies encourage
compatibility between uses, and enhance area livability through design
and improvements to streetscape. They enhance the existing character of
the area, and retain the valued aspects of built form. For the Welwyn
Street area, because there is a mix of community opinion, the policies
include two housing options: a low- to medium-density, multi-family
project and single-family housing. For both options, the new housing
would be designed to include traditional single- family housing features
like front porches, peaked roofs and landscaped front yards.

The report describes steps to implement the policies. Planning staff
will report back with recommended amendments to the zoning, including
design guidelines, and on Development Cost Levies (DCLs). Should the
City acquire the GVRD site on Welwyn Street, Housing Centre staff will
develop a process to pursue a housing demonstration project. There are
also several Engineering initiatives, including a streetscape concept
design, restoring the street trees and sidewalks on Commercial Street,
lane paving, and a parking review. Staff will report back to Council as
and when necessary on these items.

PURPOSE

The purpose of this report is to request Council approval of the
recommended policy directions for the MC-1/Welwyn Street area, and to
outline the planning and public consultation processes that led to them.
In addition, the report discusses recommended implementation actions.

BACKGROUND

The MC-1 area was identified as an industrial "let-go" area in 1990, to
be reviewed for future land use options, including residential. With
respect to the adjacent Welwyn Street site, in mid-1994 the Greater
Vancouver Regional District (GVRD) (who own the site) agreed to defer
its sale to allow for an investigation of residential development
possibilities. In May 1995, Council adopted a work program to plan the
MC-1 area, including investigating options for the Welwyn Street site.
The work program was based on a set of goals and objectives that
confirmed the mixed land use nature of the area, and the desire to
maintain this mix.

The study area's long history of mixed-use, including light industrial,
commercial and residential uses, is unique in Vancouver. In undertaking
the planning study, the key goals were to find ways of keeping the
diverse uses in balance while making the most of the locational
opportunities for development; to better ensure compatibility among
uses; and to improve the "fit" of new development into the existing
sense of place. Community and redevelopment interest in the area made
the planning study particularly timely.

In October 1995, Council directed the Manager of Real Estate Services to
enter into negotiations with the GVRD to acquire the GVRD property on
Welwyn Street. These negotiations are ongoing at present.

DISCUSSION

1. Existing Situation

Figure 1 shows the study area, including the Welwyn Street site. The
parcels on Welwyn Street owned by the GVRD are outlined. The total
study area is approximately 5 ha (12 ac.) in size. The area has
approximately 600 full and part-time jobs, and 60 dwelling units.

Figure 1. Study Area Boundaries and Zoning

(a) MC-1 Area

The MC-1 area currently has a mix of small and large manufacturing,
wholesale, service and office uses, as well as two small retail uses.
The buildings on Commercial Street are diverse in age, style, and
materials. They are located at the front property line, without
setback. The mixture of new and old, the diversity of businesses, the
urban feel of the street, and the mature trees all contribute to an
idiosyncratic character that most residents, tenants and owners value.

On Commercial Street the current zoning allows for a mix of industrial
and commercial uses, alone or in combination with residential. In the
Stainsbury Triangle, the zoning allows only industrial and
commercial--neither residential nor retail are permitted. The maximum
density is 2.5 FSR (achievable only with mixed-use), and a maximum
height of 4 storeys. The GVRD owns a large vacant site on Commercial
Street. The City also owns a works yard in the Stainsbury Triangle
which is proposed to eventually be relocated to the new False Creek
Flats yard.

Although there has been very little development in the area over the
last 20 years (3 new buildings), there are currently 2 approved
Development Permits, both for mixed-use commercial residential
developments.

(b) Welwyn Street

Current land uses in the half block on Welwyn Street include three
single-family houses; the vacant site owned by the GVRD which the City
is currently negotiating to purchase; and the B.C. Tel works yard which
will remain for at least the medium term.

The area is zoned RS-2. Under this zoning, the 7 separate 10 m (33 ft.)
lots on the GVRD site could be developed with 7 single-family houses to
a density of 0.6 FSR. The B.C. Tel site has 110.0 m (361 ft.) of
frontage, and could be developed, conditionally, with multiple
dwellings, to a density of 0.75 FSR.

Welwyn Street has a wide pavement, with curbs but no sidewalks or street
trees. It is unusual in that the houses on the west side of the street
face Maxwell Street and back onto Welwyn, with backyards, garages and
driveways.

The area immediately surrounding the MC-1/Welwyn study area is mainly
single-family, with some commercial to the north on Victoria Diversion.
Clark Park and John Hendry Park with the Trout Lake Community Centre are
located nearby. The 1991 Census for the broader Kensington-Cedar
Cottage local area indicates that the area as a whole has a higher
proportion of low-income households, lone-parent families, and Chinese
speaking residents than the city average.

2. Planning Process and Public Consultation

The planning process included three main phases. In each of these,
consultation occurred through the use of a core working group; checks
with their respective interest groups; and broader community contact
through newsletters, open houses, and surveys.
All newsletters and surveys were translated to Chinese. The working
group includes two area landowners, two area residents, a Beatrice
Street resident, and three residents from the larger area.
Unfortunately, there was no Maxwell Street resident able to participate
in the working group. Surveys and open houses have been used to gain
their opinion as much as possible.

The first phase of the planning process focused on generating and
sharing information and ideas on specific topics, mainly with the
working group. A survey was also conducted of Maxwell Street residents
regarding features they preferred in housing on the Welwyn Street site.
The second phase brought the separate topics together into a draft
concept plan. This was done in a two-day public design workshop held in
the community in late October. The results were displayed the following
week at the Community Centre, and were sent out to the broader area in a
newsletter. A survey in the newsletter sought people's opinions on the
key directions. Two hundred and thirty responses were received from the
2,000 surveys distributed (12% response rate). The third phase
developed these draft policies, together with the working group,
resolving any outstanding issues.

3. Summary of Policy Directions

The detailed policy directions for the MC-1/Welwyn Street area are
contained in the attached "Policies" document Appendix A. The following
is a brief overview of the general directions.

(a) MC-1 Area

All the proposed directions for the MC-1 area have received support from
the survey, the working group and the open houses.

- Commercial Street would continue as a mixed-use area, permitting the
industrial presence to remain as new residential/mixed-use is
developed. Compatibility issues between residential and industrial - 2 -

are addressed. All development would be designed to be
pedestrian-friendly.

- The Stainsbury Triangle would become mixed-use as well, by adding
residential and retail uses which are not permitted now.

- All-residential buildings would be permitted (but not required) on
the Stainsbury Avenue frontage, across from existing single-family
houses.

- Maximum building heights and density would remain unchanged at 4
storeys and 2.5 FSR.

- Guidelines would ensure valued aspects of built form and character
are retained, as well as promoting enhanced compatibility between
uses.

- Streetscape improvements would include modifying the intersections at
Commercial Street and 18th, 20th and 22nd Avenues, with realignments
and corner bulges; a pedestrian-activated signal at the Victoria
Diversion; additional landscaping and lighting; and restoring the
Commercial Street sidewalks while saving the trees. These
improvements would enhance safety and comfort, and complement the
area's character.

(b) Welwyn Street Area

The policies for Welwyn Street carry forward the two options: a
demonstration project for low- to medium-density, ground-oriented family
housing (rowhousing, courtyard or pavilion forms); or single-family
development. The survey of Maxwell Street residents showed a strong
preference for single-family characteristics. The survey of the broader
community was not conclusive with respect to housing form preference.

Assuming the City is successful in buying the GVRD site, the policies
call for the Housing Centre to initiate a process that will involve
design and further community consultation, leading to a rezoning
application. Both housing options being considered satisfy the policies
regarding form and character:

- New housing design would include traditional features such as front
porches, peaked roofs and landscaped front yards, a variety of
housing styles, and the look of individual "house-sized" buildings.

- The Welwyn Street streetscape would be improved by adding trees and
sidewalks. This would change the current industrial image to a more
residential use.

4. Implementation

A number of work program items are proposed to implement the policies.
Each will involve further community consultation. The working group has
expressed interest in remaining involved as this occurs, and staff
support this.

(a) MC-1 Area

If directed by Council, Planning staff will make application to bring
forward to Public Hearing amendments to the existing MC-1 zoning
schedule, in accordance with the provisions in the Policy document. A
set of guidelines will be developed to support the amended zoning
schedule. Staff will also prepare a report on DCLs to be charged for
new construction in this area. Staff anticipate returning to Council
with the referral report later this year.

(b) Welwyn Street GVRD Site

Assuming the City gains ownership of the GVRD Welwyn Street site, a
separate process will be needed to pursue a housing demonstration
project. This process would be developed and implemented by Housing
Centre staff in consultation with Planning. It would be guided by the
directions for Welwyn Street outlined in the policy document.

A separate process will be developed when the site acquisition has been
completed that will include:

- further design development of project options;
- investigation of regulatory issues and new prototype zoning;
- identification of market interest for the development; and
- public consultation involving the MC-1/Welwyn Street working group,
the Maxwell Street residents, and the broader area residents with a
view to gaining consensus if possible.

To move forward on the streetscape improvements described in the
policies, an overall conceptual design for the study area is needed to
integrate the aspects of the public realm into one scheme and develop a
funding strategy. The conceptual design will allow individual aspects
to be undertaken separately. A consultant budget of $10,000 is
requested to complete this work. Staff propose that the streetscape
concept be undertaken by Engineering Services in consultation with
Planning, as well as with input from the working group and the
community.

(d) Commercial Street Trees and Sidewalks Restoration

There are currently 45 mature Linden trees planted on Commercial Street
between 18th and 22nd Avenues. These trees were planted in the 1970s as
part of a Neighbourhood Improvement Program and are now large trees
which contribute significantly to the character of the area. The trees
on the northerly blocks were planted within the paved boulevard, and
have done considerable sidewalk damage. On the southerly blocks, the
trees were planted in a grass boulevard, and the heaving has been much
less dramatic. However, uneven sidewalk surfaces and maintenance have
been an ongoing concern.

The area residents and business owners strongly support retaining the
trees, while addressing the poor sidewalk conditions. Parks,
Engineering and Planning staff have discussed different possibilities.
The proposed solution involves sidewalk removal, root pruning followed
by installation of root barriers, sidewalk replacement and creation of a
green space around the base of each
tree. This solution works within the existing curb/sidewalk
configuration. In addition, by providing local experience with root
barriers and converting paved areas to green space, this solution will
be useful as a demonstration project for other areas of the City where
mature trees are causing sidewalk damage.

Preliminary cost estimates have been prepared by Engineering. The
timing and manner in which the restoration is completed, as well as
funding mechanisms, including Capital Plan and Local Improvement
Initiatives, are being considered. It is recommended that staff
continue to pursue this, and report back to Council.

(e) Lane Paving

The lanes in the MC-1/Welwyn Street study area serve both residential
and industrial/commercial properties. Most of the lanes are narrow, but
have been paved. However, the lane to the west of Commercial Street
between 18th and 20th Avenues is narrow and in poor condition, making
truck access to the businesses particularly difficult.

Although less than half of the lots involved have dedicated land for
lane purposes, it is unlikely than the numerous dedications required can
be achieved in the short to medium term. Staff note that it is
necessary to continue to pursue dedications to improve the lane width
over time. However, a Local Improvement Initiative should be considered
now, recognizing that the resulting lane would be less than the optimal
width. Staff recommend that this be pursued by Engineering Services.

(f) Parking Review

The policies recommend a review of the on-street parking situation in
the area, and the problems existing buildings have meeting parking
requirements when undergoing a change of use. Engineering Services
should undertake this review and report back, as necessary, with any
recommended changes to the Parking By-law.

CITYPLAN IMPLICATIONS

The policies are consistent with CityPlan directions in many ways,
including:

- keeping jobs and services close to where people live;
- proposing public places for meeting and socializing;
- increasing housing variety in an area where one housing type
predominates;
- enhancing neighbourhood character;
- retaining existing trees and proposing to add new trees; and
- designing public spaces for a wider variety of activities.

SOCIAL IMPLICATIONS

Due to the mixed-use nature of the MC-1 and Welwyn Street area, a
limited number of families with school-age children are expected.
However, pre-school age children are a possibility, and the proposed
policies provide for consideration of allocating DCLs to daycare, and
incorporation of family-oriented characteristics in new housing.

ENVIRONMENTAL IMPLICATIONS

In increasing housing variety and maintaining employment opportunities,
the proposed policies contribute to the goals of reducing atmospheric
pollution through "access by proximity."

HUMAN RESOURCES/FINANCIAL IMPLICATIONS

The implementation tasks can be accomplished with existing staff and
approved budgets. The exception is the streetscape concept design, for
which a budget of $10,000 is requested to come from 1996 Contingency
Reserve. A future report on the Welwyn Street site process may identify
other costs, but Council will have an opportunity to review these at
that time.

CONCLUSION

The policies for the MC-1 area confirm a low-rise, mixed-use direction,
with a balance maintained between existing industrial businesses and new
development. Key improvements include directions to build on the unique
form and character of the area; to enhance the livability and
compatibility of the use mix; to extend mixed-use into the Stainsbury
Triangle sub-area; and to make the streets safer and more attractive for
pedestrians both in and around the area. There is broad community
support for these directions.

For the Welwyn Street sub-area, two options--to have a low- to
medium-density, multi-family demonstration project or single-family
houses (as now zoned)--are carried forward, since there is a mix of
opinion in the community. Assuming the City acquires the GVRD Welwyn
Street site, this will be resolved in the next stage, through a process
of discussion of specific housing proposals to be led by the Housing
Centre.

Several implementation initiatives are recommended for Council
endorsement.

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