SUPPORTS ITEM NO. 2
P & E COMMITTEE AGENDA
MAY 9, 1996
POLICY REPORT
URBAN STRUCTURE
Date: April 19, 1996
Dept. File No. GY
TO: Standing Committee on Planning & Environment
FROM: Director of Central Area Planning, in consultation with the
Director of Social Planning, Manager of Real Estate Services,
Manager of Housing Centre, Director of Permits & Licenses,
General Manager of Parks & Recreation, Director of Finance,
City Engineer and the Chief Constable
SUBJECT: Downtown South Planning Program - Progress Report
INFORMATION
The Director of Central Area Planning and the General Manager of
Community Services submit this report for INFORMATION.
COUNCIL POLICY
Council adopted the Downtown South Community Plan in February 1991, and
amended the Downtown South zoning to implement the plan in July 1991.
The objective was to create a residential community which addresses the
social, health and housing needs of existing and new residents.
SUMMARY
Since the July 1993 status report, Council has received reports on some
of the most pressing land use and social issues facing Downtown South.
Implementation of the community plan is continuing, as follows.
Community Development: The Redevelopment Impacts Committee continues to
meet and discuss issues affecting the neighbourhood. Other community
development initiatives include establishment of a business
improvement association, a street youth employment program, the Liquor
Licensing Task Force, the Downtown Integrated Services Team, and the
Downtown Granville Tenants Association.
Development Trends: Since 1991, the total amount of built housing has
grown from 2,700 to 4,300 units, which is somewhat ahead of original
forecasts. A further 754 units are now under construction, and 1,537
units have been applied for or are approved. Approximately 8,500 units
containing 11,000 people are expected when the area builds out over a
25-year period.
Granville Street: Consultants are preparing a business strategy for
Granville Street, and consultants will soon be hired to prepare a
concept plan, facade guidelines and a window display improvement
program. There is growing interest in new or upgraded development on
Granville Street, especially in the Theatre Row area.
Land Use and Urban Design: Zoning and guidelines have been enacted to
more closely regulate and restrict adult retail stores and arcades.
Implementation of the streetscape is proceeding, and a review of the
design guidelines to better control tower massing is nearing
completion. Heritage agreements have been secured or are pending on
three important heritage buildings. The liquor licensing review will be
reported to Council this spring.
Community Amenities: The Gathering Place, Community Health Centre and
Community Police Office all opened within the last year. Nearly
one-half of the land needed for a centrally located park at Richards
and Davie has been acquired, and key acquisitions to secure the balance
of the site are being pursued. Staff are exploring possible park sites
in the north half of the neighbourhood.
Social Policy and Low Income Housing: Since January 1991 there has been
a small increase in the total number of low income housing units in
Downtown South, from 1,694 to 1,759 units. A seniors housing project is
under construction, and a site for low income singles housing has
recently been purchased.
The principal work items for 1996 are to complete the liquor licensing
review and the Granville Street Revitalization Program. Staff are
beginning to gear down planning activity in the area through 1996 in
order to free up resources for other urgent work, although some
on-going staff commitment is expected.
PURPOSE
Council has directed staff to provide a progress report on the Downtown
South program. One previous status report was received by Council in
July 1993. This report provides an overview of progress since that
time, and outlines the key planning issues in 1996.
BACKGROUND
In July 1993 Council received reports on Granville Street
revitalization, liquor licensing, housing strategies, adult retail and
arcades. Since then, Council has received the following key reports:
Oct. 5, 1993 Amendments to Arcade Regulations
Nov. 1, 1993 Parks Acquisition Strategy (In Camera)
Nov. 4, 1993 Downtown South Streetscape
Oct. 20, 1993 Adult Retail and Entertainment Stores
(follow up report May 18, 1995)
March 16, 1995 Request to Province for Granville Street
Revitalization Funds
May 26, 1995 Community Police Office
July 20, 1995 Liquor Licensing Workshop
These reports have addressed some of the most pressing land-use and
social issues in Downtown South, with the overall goal of creating a
safe, livable, complete community. The success of the program to date
has been the result of a high degree of co-operation and commitment to
the neighbourhood vision, shared by residents, merchants, property
owners, Council and staff, as well as other government agencies.
DISCUSSION
Community Development
As the population of Downtown South grows, it will be increasingly
important to maintain and foster a cooperative approach to
neighbourhood planning, closely involving merchants, property owners,
new and existing residents, and others with a "stake" in Downtown
South's future. Staff remain committed to this principle.
Consistent with this, the community based Redevelopment Impacts
Committee, which has an active membership of about 30, regularly meets
to review and discuss issues affecting the neighbourhood. The
committee will continue to meet through 1996. Staff are working with
Granville Street merchants who are in the process of establishing a
business improvement area (BIA), and continue to support the efforts of
the Downtown Granville Tenants Association.
Staff are also assisting with initiatives specifically targeted to
Downtown South's street youth, as discussed later in this report, and
are involved with the Liquor Licensing Task Force, the Downtown
Integrated Service Team, and the Area Services Team.
Development Trends
When the community plan for Downtown South was approved in 1991, the
estimated population was 2,800 people living in 2,700 market and
non-market units. Based on the new zoning, it is expected that there
will be about 11,000 people living in 8,500 units over a 25-year
build-out. To date, about 1,600 new units have been issued occupancy
permits, which is somewhat ahead of original growth projections (see
Figure 1 below).
Figure 1. Population and Units
1991 1993 1995(est) 2015(est)
Population 2,800 3,450 4,850 11,000
Units 2,700 3,200 4,300 8,500
An additional 754 units are currently under construction, and 1,537
units have been applied for through the rezoning and development permit
processes. Even if only half of the currently proposed projects
proceed to completion, this would represent nearly 70% of the projected
unit count for the neighbourhood. Appendix A includes a map and list
detailing Downtown South development activity since 1991.
Granville Street Revitalization
On March 16, 1995 Council applied to the Downtown Revitalization
Program of the Ministry of Municipal Affairs for matching grants to
prepare a revitalization strategy, concept plan and facade guidelines
for the 800-1300 Blocks of Granville Street. The Provincial
contribution of $30,000 was approved in June 1995. When combined with
the City's contribution, up to $85,000 is available for this work,
which also includes a City-sponsored window display improvement
program.
Consultants have been hired and work is well underway to prepare a
business revitalization strategy for this portion of Granville. The
proposed BIA for the area complements this work. Consultants will soon
be hired to prepare a design concept and facade guidelines, and staff
are gearing up to hire a consultant to undertake the window display
improvement program. All of these studies involve a high degree of
input and participation by the affected businesses and property owners,
as well as area residents.
Other significant recent activity on Granville includes:
- re-opening of the Vogue Theatre;
- renovation of the Commodore Ballroom building;
- agreement between the City and the owner of the Roxy Cabaret to
allow a small expansion of seats within the cabaret, consistent
with an understanding reached prior to the liquor licensing
moratorium, in exchange for the upgrading and soundproofing of the
Siesta Hotel above, and a housing agreement to retain these low
rent units for at least 10 years;
- opening of several new restaurants, a renovated pub, and
considerable interest in new or expanded cabarets, all in the
Theatre Row area;
- development enquiries are received on a regular basis throughout
the street; and
- approval of a residential development at 1266 Granville and
rezoning approval for residential development at 1313 Granville
(both of these have yet to proceed).
While the pace of development and investment on Granville Street has
been modest, there are indications that private sector interest in the
street is growing, especially in the Theatre Row area. Staff will
continue to work with the Granville Street community to sustain and
foster this interest.
Land Use and Urban Design
Limiting Adult Retail and Arcades
Zoning regulations and guidelines have been enacted to ensure that no
additional adult retail stores can open on Granville Street in Downtown
South. The adopted guidelines prohibit further clustering of these uses
elsewhere in the city, and ensure that they are adequately removed from
schools, neighbourhood houses and parks. New adult retail uses cannot
occur in conjunction with arcades, and they must close between 1:00 and
6:00 a.m.
Consistent with Council's vision for Granville Street, new arcades are
restricted to the entertainment area in the 800-900 Blocks, as well as
the 1000 Block under certain conditions. Guidelines encourage more
attractive window displays that allow for easy monitoring of the
premises from the sidewalk.
Streetscape Design Concept
In November 1993, Council approved the Downtown South streetscape
design concept, which requires new developments off-Granville to
provide special sidewalk and boulevard treatments, tree grates and
surrounds, decorative pedestrian lighting and special street furniture.
The streetscape treatment has been implemented on three projects to
date. Refinement of the implementation process is being pursued with
each new project.
Design Guidelines Review
The Downtown South Guidelines are being amended to better control tower
massing, and to ensure that new towers are located and designed to
minimize view and shadowing impacts. Other amendments will address
vehicular access, safety and security issues and the design and
treatment of rear yards. These amendments are scheduled to be before
Council this spring.
Heritage Retention
Heritage designation has recently been enacted for the building at 901
Homer Street, which is part of The Pinnacle development. Heritage
agreements are pending for the former Dominion Motors building at 901
Seymour and the Canadian Linen building at 1200 Richards. Recent
heritage and related work on Granville Street includes upgrading the
Commodore Ballroom's facade and retail frontages, allowing for special
events licenses in the newly refurbished Vogue Theatre, and upgrading
the interior of the Siesta Hotel.
Liquor Licensing
Conclusions and recommendations on liquor licensing policy in Downtown
South and Yaletown are now being finalized and are expected to be
before Council this spring. These recommendations have been formulated
through staff and Task Force work, and address the central issue of
conflicts associated with existing licensed facilities located in the
emerging residential neighbourhood. Opportunities and options for
fostering the entertainment district on Granville Street will be
discussed in the report. Part of the overall liquor licensing strategy
will include private sector initiatives such as Bar Watch, in which
area cabarets and bars have agreed to work together to better deal with
security issues and be more responsive to the concerns of nearby
residents.
Community Amenities
The Gathering Place
The Gathering Place at 609 Helmcken Street officially opened on
December 6, 1995. The facility currently serves over 800 people per
day, and provides meeting rooms, library and reading rooms, arts and
crafts, fitness training, laundry and cafeteria services. Modelled on
the Carnegie and Evelyn Saller Centres, The Gathering Place provides
unique programs for both existing and new Downtown South residents, and
is very busy.
Health Centre and Mental Health Drop-in
The Downtown South Community Health Centre at 1065 Seymour Street
officially opened on September 5, 1995 and already is serving over
1,100 people per month. The doctors, community health nurses, and
other health service providers offer drop-in primary, secondary,
preventative and continuing care services to lower income residents in
Downtown South and surrounding areas.
The Coast Mental Health Drop-in Centre at 948 Richards Street opened in
August 1993. It is operated by the Coast Foundation and is funded by
Greater Vancouver Mental Health Services. City staff participated on
the committee that originally developed this service, which provides
social and recreational programs, as well as advocacy and counselling
for people who are disabled by mental illness.
In addition to these facilities, the Neighbourhood Helper Program,
based in the New Continental, provides community outreach services for
low income adults over 45 years old.
Community Police Office
The Granville-Downtown South Community Police Office at 916 Granville
Street officially opened on October 18, 1995. The space for the office
has been provided rent free for 18 months by the owner of the adjacent
Vogue Theatre, and a start up grant was approved by Council to help get
the office open. Area merchants and organizations made generous
contributions of time and money to help renovate and furnish the
office. The Downtown Vancouver Association in particular has been
instrumental in securing business support for the office. The office
staff of 40 volunteers and one full time Police constable are very
busy, fielding about 75 enquiries, complaints and referrals per day.
Current hours are 11:00 a.m. - 8:00 p.m., seven days per week. The office has been well received in the neighbourhood. The volunteers
and Police staff prepare reports, they deal with safety and security
issues, they provide advice and referrals, they resolve complaints and
assist many passers-by, especially tourists, who need directions or
other information.
Parks
Council has approved a park acquisition strategy for Downtown South.
Consistent with this, in October 1992 and June 1993 the City acquired
nearly one-half of the land needed for a centrally located park in the
1100 Block of Richards and Seymour (at Davie). Since then, staff have
been pursuing acquisition of key properties that would secure the
balance of this site and allow for timely park development. Staff are
also exploring purchase and development scenarios with owners of
potential park sites north of Nelson Street.
Social Policy
Low Income Housing
The Downtown South housing strategies have been successful in
maintaining and improving the housing stock for low income people.
From an initial stock of 1,694 low income units (SRO and non-market) in
January 1991, the total has increased to 1,759 units as of December
1994. This 65-unit increase is made up of a loss of 132 SRO rooms,
mainly through fires and subsequent demolitions, and an increase of 218
non-market units, half of which are in the New Continental. Appendix B
contains a list of the low-income housing stock in Downtown South, and
highlights losses and gains since 1991. The 1996 survey of low income
housing will update these figures.
In addition, a 90-unit seniors housing project is under construction on
the City-owned site at 983 Homer (at Nelson). A site at 1205 Seymour
Street has recently been purchased for development with 75 apartments
for low-income singles, once social housing funding is available.
Street Youth Initiatives
Two initiatives are underway to add to the range of services available
to the area's young people who lack a permanent home, or who otherwise
require support services.
Staff are assisting social service agencies in their efforts to
relocate the existing services in the 1200 Block of Richards, and
possibly consolidate them with a proposed youth resource centre.
A three month study and one month pilot project for a street youth "job
bank" in the Granville Street area was undertaken from November 1995 to
March 1996. The sponsors were the City of Vancouver, the Downtown
Vancouver Association, City Corps, Family Services and the Downtown
Granville Tenants Association. Results of the study and pilot project
will be presented to Council later this summer.
As of April, Family Services has assumed responsibility for running the
job bank, which may eventually be incorporated into a new youth
resource centre in the Downtown South area. The job bank is staffed by
two youth counsellors, and funding has been secured for one year from
the Provincial Government, Van City, the Downtown Vancouver and Robson
Street BIA's, B.C. Gas, and the Face the World Foundation. If
successful, the program will provide ongoing, short-term employment
opportunities for young people looking to earn some money and add to
their skills and experience.
FUTURE WORK
Staff are beginning to gear down planning activity and resources
through 1996, in order to free up resources for other urgent work.
Nonetheless, some staff commitment is expected in Downtown South for
the foreseeable future, and important initiatives will be undertaken in
1996.
The two principal work items for this year are to report on, implement
and monitor recommendations arising from the liquor licensing review,
and to complete the Granville Street Revitalization Program.
A review of progress towards the creation of the required parks in
Downtown South will also be completed and fed into the 1997-1999
Capital Planning Process. Short-term objectives are to fully secure
the park site on Richards and Seymour, and to purchase a site in the
northern half of the neighbourhood. Park development on the Richards
site is also a priority, since Downtown South's population will
continue to expand without the benefit of an existing neighbourhood
park.
Additional work items include:
- continue to implement the City's low income housing policy,
through retention of existing units and development of new units
as the opportunities arise;
- complete the revisions to the Downtown South Guidelines;
- report back on adult film viewer policy;
- provide ongoing assistance with neighbourhood problem solving;
- review rezoning and development applications to ensure conformity
with the Downtown South plan;
- continue to support development proposals which include the
retention of heritage buildings; and
- provide BIA support services for the Granville Street area.
ENVIRONMENTAL IMPLICATIONS
Creating a diverse and complete residential community in the downtown
responds to principles of sustainable development and will encourage
people to use alternative forms of transportation, consistent with
recommendations in the Clouds of Change report.
SOCIAL IMPLICATIONS
Key objectives of the Downtown South planning program are to ensure
that the social, health and housing needs of existing and new residents
are addressed as the neighbourhood grows.
FINANCIAL IMPLICATIONS
Funding for the Granville Street revitalization studies has been
approved, with the City contributing $55,000 and the Province
contributing $30,000. Funding for park land acquisition and
development will be addressed through the 1997-1999 Capital Planning
Process.
CONCLUSIONS
In 1991, a multi-faceted program was initiated to create a livable
residential community in Downtown South. Since then, new residential
development generally consistent with original projections has taken
place. Staff continue to assist with neighbourhood problem solving and
work is progressing on implementing the community plan. Key work
program items in 1996 are the completion and implementation of the
liquor licensing review, completion of the Granville Street
Revitalization Program, continued implementation of Council's
one-to-one replacement policy for low-income housing, and further
implementation of the park acquisition strategy.
* * * * *
APPENDIX B
Listing of Low-Income Housing Stock in Downtown South as of December 31, 1994,
& Changes Between January 1, 1991, and December 31, 1994
ADDRESS NAME STATUS UNITS CHANGE, 1991-94
SRO HOTELS AND ROOMING HOUSES
423 Davie Demolished 0 -5
803 Drake 11
936 Granville Siesta Hotel Partial Closure 65 -7
1018 Granville Glenaird Hotel 72
1025 Granville Royal Hotel 90
1046 Granville Regal Hotel 80
1060 Granville Vogue Hotel 78
1125 Granville Hotel Clifton 73
1161 Granville St. Helen's Hotel 93
1176 Granville Hotel California 132
1212 Granville Ambassador Hotel 42
1221 Granville Austin Hotel 120
1261 Granville Granville Hotel 101
1300 Granville Yale Hotel 42
1336 Granville Cecil Hotel 80
862 Homer Homer House Demolished 0 -50
1119 Hornby Murray Hotel 85
1235 Hornby Bon Accord Demolished 0 -70
806 Richards Plaza Hotel 32
909 Richards Roseberry House 5
1203 Seymour Canadian Hotel 26
335 Smithe 8
337 Smithe Homer Apartments 5 ___________________________________
TOTAL 1,240 -132
NON-MARKET HOUSING
901 Granville Gresham Hotel Re-opened 40 40
1090 Granville Helmcken House Opened 32 32
1390 Granville Old Continental Re-opened* 86 36
508 Helmcken Jubilee House 87
540 Helmcken Brookland Court 78
1260 Howe B'nai B'rith Manor 65
1067 Seymour New Continental Opened 110 110 _____________________________________
TOTAL 498 +218
SPECIAL NEEDS RESIDENTIAL FACILITIES
1390 Granville Old Continental Re-opened* 21 -21 _____________________________________
GRAND TOTAL 1,759 +65
* Re-opened after closure and renovations, with more non-market units and less SNRF
units.