P1
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: April 30, 1996
Dept. File No. 96009 TWP
TO: Vancouver City Council
FROM: Director of Land Use & Development
SUBJECT: CD-1 Amendment and Rezoning - 3350 East Hastings Street
(Emergency Operations and Communication Centre)
RECOMMENDATION
A. THAT the application by Brook Development Planning Inc. on
behalf of the City of Vancouver, to:
- amend CD-1 By-law 3656 (Exhibition Park) (Lots 1-14, 32
and W 1/2 Lot 31 of Lot 60, THSL, Plan 330);
- rezone Lots 27-30 and E 1/2 Lot 31 of Lot 60, THSL, Plan
330 from RS-1S to CD-1; and
- include Rupert Street from Hastings to Pender Streets in
the CD-1 District;
to permit development of an emergency operations and
communication centre, associated communications antennae,
community facilities, ancillary offices, and recreation
facilities be referred to a Public Hearing, together with:
(i) draft CD-1 By-law provisions, generally as contained in
Appendix A; and
(ii) the recommendation of the Director of Land Use and
Development to approve, subject to conditions contained
in Appendix B.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary CD-1 By-law for consideration at Public
Hearing.
B. THAT, subject to approval of the rezoning at a Public
Hearing, the Subdivision By-law be amended as set out in
Appendix C; 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 above.
COUNCIL POLICY
There is no specific Council policy applicable to this application.
PURPOSE AND SUMMARY
This report assesses an application to rezone the block bounded by
Hastings Street, the Cassiar Connector, Pender Street and the westerly
boundary of the Rupert Street right of way to permit the City of
Vancouver to develop a 6 503 m2 (70,000 sq. ft.) communications
facility for Vancouver fire and police and RCMP emergency
communications, regional 9-1-1 systems and Vancouver, regional and
Provincial post-disaster emergency operations, with ancillary
communications antennae, offices, recreation facilities and community
facilities.
In order to meet funding deadlines for this facility, it is proposed
that the form of development and associated issues of siting, height,
setbacks, access and parking be presented for Council approval
following a public process at the Development Application stage. Staff
support the proposed use and density subject to conditions to be met
before enactment and conditions to be addressed through a public
process at the Development Application stage.
BACKGROUND
On February 29, 1996 Council approved the following:
THAT Council authorize staff to proceed with the rezoning
application for the site selected for the Emergency Operations and
Communications Centre - Lots 1 to 15 and 26 to 32 inclusive of
Block 60, Town of Hastings Suburban Lands, Plan 330, bounded by
Pender, Rupert, Hastings and Cassiar Streets as indicated in
Appendix "B" of the Policy Report dated February 20, 1996.
AND FURTHER THAT Council instruct the General Manager of Community
Services to assign a priority status for processing the rezoning
application so as to meet the City's commitments under the
agreement for the Infrastructure Grant.
DISCUSSION
Use There are three arguments which support the proposed use of the
site, as follows:
1. There are few other uses for which this site would be well suited.
The site is aesthetically unappealing for one-family or other
residential uses. Increased commercial capacity is not required,
given the existing undeveloped capacity of the C- districts along
Hastings Street. The adjoining park and ride lot to the west
would easily accommodate the minimal current usage of this park
and ride lot. Parking for Hastings Park remains an alternate
use, which Council has previously considered.
2. The peripheral location of the site on a major arterial and a
highway connector, with only one residential adjacency would
minimize the interface with the community. This is also an
institutional use for which ease of public access is not a primary
consideration. Other regional institutional uses such as
churches, work yards, etc. might also be appropriate, but could
have more intense access demands.
3. The site selection criteria indicate that for this specific
institutional use, this site meets the requirements better than
any other available site.
Therefore, from a use point of view, the proposed rezoning would be
appropriate.
This site is not part of the Hastings Park Trust lands.
Density The proposed floor area constitutes a density of 0.65 FSR
which marginally exceeds the density permitted in RS-1S Districts and
is well within the range commonly permitted or approved through
rezonings across a street from an RS-1S District.
Traffic Access to the parking for this facility is expected to be from
Hastings Street with no access from Pender Street. However, further
analysis is required at the Development Application stage to ensure
Hastings Street access is practical and sufficient.
Parking It is proposed that parking requirements would meet City of
Vancouver Parking By-law standards. Further analysis will be required
to establish specific requirements because the detailed floor plans are
not yet available to determine specific functional demands under the
Parking By-law.
Views Since no specific design and height limit is proposed, it is not
possible to determine whether this development would have significant
view impacts upon residents to the south. However, the program for the
centre does not foresee a need for more than two storeys and the
proposed density could readily be achieved in two storeys. Therefore,
it is likely that view impacts could be minimized.
Non-conformity If this rezoning is enacted without the three remaining
one-family dwellings being purchased and demolished by the City prior
to enactment of the rezoning, these would become legal non-conforming
uses.
PROCESS
Based on previous Council direction to investigate sites for
development of an Emergency Operations and Communications Centre,
consultants employed by the City (Facilities Development) have
initiated a program of public consultation which is proposed to
continue into the development application stage. The steps in this
process are summarized in Appendix E.
CONCLUSION
Planning staff conclude that the proposed use and density are
appropriate on this site. However, further information is needed to
assess specific levels of parking, traffic and view impacts which could
detrimentally affect residents across Pender Street to the south.
Conditions are proposed in Appendix B to respond to these concerns.
These conditions should be addressed through a public process at the
Development Application stage.
* * * * *
APPENDIX A
DRAFT CD-1 BY-LAW PROVISIONS
______________________________
Use
- Emergency Operations
Communication and Dispatch Operations
Traffic Management & Control Operations
Communications Equipment Facilities
Community Facilities
Ancillary Recreation Facilities
Ancillary Offices
Ancillary Communications Antennae (including
Microwave)
Ancillary Cafeteria
Density
- Maximum floor space ratio of 0.65 FSR, based on
calculation provisions of the RS-1 District Schedule,
except that floor space with a ceiling height
exceeding 3.7 m would not be calculated twice.
Parking
- Per Parking By-law.
APPENDIX B
Page 1 of 3
PROPOSED CONDITIONS OF APPROVAL
_______________________________
(a) That, prior to approval by Council of the form of development,
the applicant shall, after carrying out a public process to the
satisfaction of the Director of Planning, obtain approval of a
development application by the Development Permit Board, who
shall have particular regard to the following:
(i) demonstrate that options are preserved to achieve a safe
public pedestrian/bicycle connection across Hastings
Street at both Rupert and Cassiar Streets;
(ii) provide an acoustic impact assessment report to the
satisfaction of the Vancouver Health Board Director of
Environmental Health;
(iii) demonstrate that the installation of
transmitters/microwave antennae would comply with Safety
Code 6 of the Federal Government Radio Frequency and
Microwave Exposure standards to ensure that
electromagnetic fields do not endanger health and
safety;
(iv) provide an appropriate transition in massing, scale and
building articulation along the southern edge to respect
the adjacent RS-1S neighbourhood;
(v) provide view analysis to demonstrate how the siting and
massing of the proposed development have minimized
significant mountain view loss for RS-1S development on
the south side of Pender Street.
(vi) provide a landscape plan that achieves screening for
surface parking, exposed equipment and utilities;
(vii) provide non-obtrusive site lighting, including parking
areas, that respects the adjacent RS-1S neighbourhood;
and
(viii) reduce opportunities for theft from auto, bicycle theft,
break and enter and mischief such as graffiti and
skateboarding. Design that reduces fear should also be
considered.
APPENDIX B
Page 2 of 3
(b) That, prior to enactment of the CD-1 By-law, the registered
owner shall:
(i) consolidate lots 1-14 and 30-32 of Lot 60; T.H.S.L.;
Plan 330; and the adjacent portion of Rupert Street;
(ii) also consolidate with Lots 1-14 and 30-32; of Lot 60;
THSL; Plan 330; and the adjacent portion of Rupert
Street; the adjoining Lots 27-29; of Lot 60; THSL; Plan
330; if purchased by the City;
(iii) make arrangements for all electrical and telephone
services to be undergrounded within and adjacent the
site from the closest existing suitable service point;
(iv) dedicate portions of Lots 1, 2 and 9 through 15 for
road, approximately as shown on the site plan attached
to the rezoning application;
(v) provide an access corridor to the Hastings Street
transit tunnel. (Note: Clarification from the Ministry
of Transportation and Highways and B.C. Transit is
required to determine an adequate width for this
corridor.);
(vi) abandon existing sewers in lanes within the proposed
site area; (vii) provide a right-of-way between Hastings and Pender
Streets to accommodate the existing 8" watermain,
electrical lines and power poles on Rupert Street, and
for future water and sewer mains, as well as to ensure
the provision of an adequate right-of-way width for road
purposes, with the cost of any required street works to
be borne by the developer;
(viii) relocate the existing utilities and power poles which
are located in the two lanes. Note: Although the
buildings have been removed from Lots 16 to 25, there is
still a legal obligation to provide service to these
lots until consolidation is completed;
(ix) obtain City Council approval for the closure and
stopping-up of the lane North of Pender Street east of
the lane east of Rupert, the lane east of Rupert from
Hastings to Pender Street, and a portion of Rupert
Street from Hastings to Pender Street;
APPENDIX B
Page 3 of 3
(x) provide a traffic/parking study to determine impacts to
adjacent local and arterial streets, having particular
regard to site access;
(xi) acquire privately owned lots 27, 28 and 29, or provide a
six metre wide laneway to serve the lots; and
(xii) complete acquisition of the portions of lots 25 and 26
not needed for the Cassiar Connector.
APPENDIX C
Page 1 of 3
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This 1.0 ha (2.5 ac) site is
comprised of 20 parcels on the north side of Pender Street and the
south side of Hastings Street in the 3500 block East, from the westerly
boundary of the Rupert Street right of way to the underground Cassiar
Connector. The site is now developed as "Park and Ride" parking except
that three one-family dwellings remain at the easterly end along Pender
Street. The City has made offers to purchase these properties. The
remainder of the site is owned by the City.
This site is adjacent to RS-1S zoned one-family development to the
south across Pender Street. To the west is a full block parking lot
(part of the Exhibition Park CD-1), also used for "Park and Ride" and
serving the CD-1 zoned Hastings Park site to the north across Hastings
Street. To the east of the Cassiar Connector and Cassiar Street is a
C-2C1 zoned commercial district.
Proposed Use This centre would provide the necessary telephone and
other communications and administrative functions for dispatching
emergency services throughout the region, while providing a central
emergency facility in the event of a major disaster. The purpose is
not for storing emergency response vehicles on the site. Ancillary
staff facilities and some community facilities would also be provided.
Public Input A notification letter was sent to nearby property owners
on April 12, 1995 and rezoning information signs were posted on the
site on April 17, 1996. Four phone calls were received from nearby
residents. Concerns focused on anticipated traffic impacts on Pender
Street. No letters expressing opposition were received from nearby
residents. The public consultation process being carried out by the
applicant is outlined in Appendix E.
Comments of the City Engineer The City Engineer has no objection to
the proposed rezoning, provided that the applicant complies with
conditions as shown in Appendix B.
Park Board Comments Two issues have emerged during the ongoing
planning process for Exhibition Park, both of which have been raised
with City Council. The first relates to the proposed reduction of
available surface parking in the area, which could otherwise function
as part of a solution designed to meet the requirements for Racetrack
parking. It is anticipated that with a creative approach to locating
additional parking on existing streets and parking lots, this issue can
be resolved. It has been suggested that better use of Renfrew Street
for event parking purposes, the re-lining of the remainder of the Park
and
APPENDIX C
Page 2 of 3
Ride lot, and the off-peak use of surface parking at the E.O.C.C. site
may all help address this issue.
Secondly, the need for pedestrian and bicycle connections between
Hastings Park and the area to the south is crucial to the success of
the park. A number of connections have been thought of. These include
using the tunnel at Cassiar Street, a connection at Rupert Street, and
a connection at Windermere Street. Given the timeframe for the
E.O.C.C. rezoning process and the timetable for the park design, I
doubt that from the park perspective a conclusion will be reached
within the rezoning timetable. For this reason, we suggest that the
rezoning recognizes the need for a pedestrian/bicycle connection, and
permits a number of options to be implemented at a later date. Both
these matters have already been addressed by City Council in its motion
D passed on February 29, 1996, quoted below.
"THAT if the Emergency Operations and Communications Centre
proceeds on the Rupert/Hastings site, safe pedestrian access to
and from Hastings Park be ensured as a consequence of the
planning of this site, and that the loss of parking at the site
not be made up in any way by a loss of parkland from Hastings
Park."
Public Benefit The proposed zoning would accommodate an up-to-date,
integrated emergency communications centre for day-to-day and major
emergency responses which would be expected to withstand a major
earthquake.
ENVIRONMENTAL IMPLICATIONS
The proposed rezoning neither contributes to nor detracts from the
objective of reducing atmospheric pollution.
SOCIAL IMPLICATIONS
There are no major positive or negative social implications to this
proposal. There are no implications with respect to the Vancouver
Children's Policy or Statement of Children's Entitlements.
CONSEQUENTIAL AMENDMENT
If the proposed amendment is approved at Public Hearing, an amendment
will need to be made to the Subdivision By-law, at the time of
enactment, to delete the category "A"standards which were established
in 1988 for a portion of this site (lots 27 - 31).
APPENDIX C
Page 3 of 3
COMMENTS OF THE APPLICANT
The applicant has been provided with a copy of this report and has
provided the comments attached as Appendix F.
APPENDIX D
Page 1 of 1
SITE SELECTION CRITERIA (Submitted by Applicant)
Approximately twenty sites, both City-owned and privately-owned, were
identified and evaluated on the following criteria:
1. Geotechnical Suitability to sustain a major earthquake
including post disaster requirements.
2. Accessibility Public transit, vehicular accessibility, proximity
to major arteries and air accessibility. The
communication section of the facility will operate
on a 24-hour basis.
3. Communication Land line, telephone, radio, ducting, fibre-optic
cabling, linkage, line of sight to North Shore
Mountains.
4. Hazard/Risk Probability of occurrence for flooding, dangerous
goods, explosions and gas, and available
mitigation measures against such risks.
5. Cost Land cost, network systems, construction cost
premiums, servicing and massing - preferred height
of two storeys maximum.
6. Timing Property acquisition, rezoning and relocation
costs.
Sites which did not meet one or more of the major criteria were
considered unsatisfactory and were eliminated. Five sites were
short-listed: two on Kingsway; the Renfrew/McGill parking lot; the
Renfrew/Hastings site (SE corner) and the Rupert/Hastings site.
Staff concluded that the Renfrew/McGill and Renfrew/Hastings site would
impact on the proposed Hastings Park plan, hence the two sites were
deleted. The remaining three sites were submitted to further
evaluation.
A detailed analysis was undertaken by the E.O.C.C. planning team. The
analysis included: hazard and risk assessment by EmergeX Planning Inc.;
massing studies by Architectura; communications analysis by Teleconsult
Limited; and a seismic overview by Macleod Geotechnical Limited.
While none of the sites was considered to be ideal, the Rupert/Hastings
site was considered the best in terms of its fit with the project
requirements.
APPENDIX E
Page 1 of 1
APPLICANT-FACILITATED PUBLIC CONSULTATION PROCESS
Meetings Conducted:
Date: January 18, 1996
Group: Hastings Community Centre Board (8 attending)
Discussion: Proposed E.O.C.C., Site selection, timing, process
Date: January 31, 1996
Group: Neighbours in Immediate Vicinity of Site (6 attending)
Discussion: Proposed E.O.C.C., site selection, timing, process,
views, traffic management, site operations
Date: February 1, 1996
Group: Hastings Sunrise Community (17 attending)
Discussion: Proposed E.O.C.C., site selection, timing, process,
views, traffic management, site operations
Date: February 19, 1996
Group: Park Board - Planning Committee
Discussion: Proposed E.O.C.C., site selection, timing, process,
site operations
Date: April 9, 1996
Group: Hastings Park Planning Committee (12 attending)
Discussion: Rezoning Application, Development Permit process,
Timing Schedule
Future Meetings:
Date: Late April/Early May, 1996
Group: Hastings Park Planning Committee
Discussion: Design Principles, Preliminary Design and Land-scaping,
Traffic Operations
Date: Early May, 1996
Group: Neighbours in Immediate Vicinity of Site
Discussion: Design Principles, Preliminary Design and Land-scaping,
Traffic Operations
Date: Early May, 1996
Group: Hastings Sunrise Community
Discussion: Design Principles, Preliminary Design and Land-scaping,
Traffic Operations
APPENDIX G
Page 1 of 1
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 3350 Hastings Street
Legal Description Lots 1-14, 27-32 of Lot 60; THSL; Plan 330
Applicant Brook Development Planning Ltd.
Architect Malcolm Elliot, Architectura
Property Owner City of Vancouver; E.A. Wolff; S.M. Khong; C.W. and E.D. Martin
Developer Civic Buildings
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 10 299 m2 (2.5 ac.) 8 640.6 m2 (2.14 ac.)
DEVELOPMENT STATISTICS
RECOMMENDED
DEVELOPMENT PERMITTED UNDER PROPOSED DEVELOPMENT DEVELOPMENT
EXISTING ZONING (if different
than
proposed)
ZONING CD-1/RS-1S CD-1
USES PNE/One Family, Institutional, Public Authority
Public Authority Emergency Communications
MAX. FLOOR SPACE RATIO 0.60* 0.65
(0.75 on net site area)
MAXIMUM HEIGHT 9.2 m (30 ft.)* unspecified
MAX. NO. OF STOREYS 2 1/2* unspecified
PARKING SPACES Parking By-law* Parking By-law
FRONT YARD SETBACK 20%* unspecified
SIDE YARD SETBACK 10%* unspecified
REAR YARD SETBACK 45%* unspecified
(Note: * These regulations apply in RS-1S, not the Exhibition Park CD-1)