P4
POLICY REPORT
URBAN STRUCTURE
Date: April 30, 1996
Dept. File No. IS
TO: Vancouver City Council
FROM: Director of Land Use & Development, in consultation with the
Director of Central Area Planning and the Manager of the
Housing Centre
SUBJECT: Proposed Rezoning: 1730 West Georgia Street
RECOMMENDATION
THAT the application by Davidson, Yuen and Simpson Architects, to
rezone 1730 West Georgia Street (Lot L, Block 55, District Lot
185, Plan 92) from RM-6 to CD-1, to permit two multiple dwellings
containing a total of 166 dwelling units, be referred to a Public
Hearing, together with:
(i) Plans received February 20 and May 1, 1996:
(ii) Draft CD-1 By-law provisions, generally as contained in
Appendix A; and
(iii) the recommendation of the Directors of Land Use &
Development and Central Area Planning 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.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
- Downtown District Low-Cost Housing Policy and Procedures - January
1995.
- RM-3, RM-5, RM-5A, RM-5B, RM-5C, and RM-6 Multiple Dwelling
Guidelines - October 1989.
- West End Georgia/Alberni Guidelines - September 1989.
SITE AND SURROUNDING ZONING
PURPOSE AND SUMMARY
This report assesses a CD-1 rezoning application to develop 168
dwelling units in two multiple dwellings. 158 market units would be
located in a 23-storey tower on the southwest corner of Georgia and
Bidwell Streets. The additional 10 dwelling units would be in a
three-storey multiple dwelling located on Alberni Street. All 10 of
these units would be for non-market families with five of the units
designed for persons with disabilities. A total of 193 underground
parking spaces are proposed. To offset the cost of providing the
non-market housing, a bonus of 2 230.0 m2 (24,000 sq.ft.) or about 0.5
FSR has been requested and agreed upon. Staff support the proposed
rezoning.
DISCUSSION
Bonus for Non-Market Housing
With the approval of an amendment to the Vancouver Charter in February
1994, Council was given the authority to provide density bonuses in
exchange for affordable housing, special needs housing or amenities and
enter into housing agreements with developers to specify tenure,
access, management, rents and rental increases of affordable housing.
This policy was further articulated in the "Downtown District Low-Cost
Housing Policies and Procedures," adopted by Council in January 1995.
While this site is technically outside the Downtown District, it is on
the Downtown Peninsula and the method recommended to calculate bonused
density in these policies has been applied. Using this method, a
density bonus of 2 230.0 m2 (24,000 sq.ft.) has been calculated for
this application. This bonus was lower than that originally proposed
by the applicant and as a result, 172.0 m2 (1,850 sq.ft.) has been
removed from the market floor area in the tower.
With respect to the proposed non-market family housing, staff are
satisfied that this location is suitable for families. It is close to
amenities including a community centre, a library, parks and schools.
The design itself, all units having ground access, along with private
yard spaces is very suitable for core-need families.
To ensure that the 10 affordable units will be sold to a non-profit
society having no association with the developer, a housing agreement
will be required. The agreement will also ensure that these units are
sold in one block, rented to core-need families for the life of the
project and are allocated a minimum of 11 parking stalls.
Building Form
Generally, the design responds well to the West End Georgia/Alberni
Guidelines. On Georgia Street, the sidewalk treatment, double row of
trees, and green garden court are consistent with guideline
requirements, as is the tower location and height. On Alberni Street,
the three-storey multiple dwelling provides an appropriate height and
scale to define the street. As well, the setbacks and individual unit
entries are consistent with the intent of the guidelines.
The main built form issue is the tower floorplate, and resulting design
of the tower. When originally submitted, all of the requested bonus
density, with the exception of the amount set aside for the non-market
units, was located in the tower. The result was a typical floorplate
of 594.6 m2 (6,427 sq.ft.), substantially above the guideline
recommendation of 511 m2 (5,500 sq.ft.). This floorspace, when coupled
with excluded storage space and balconies, completely filled the
maximum 25.6 m by 25.6 m (84 ft. by 84 ft.) building envelope
recommended in the Georgia/Alberni Guidelines. Due to concerns over
the size of the floorplate and the resulting lack of articulation and
bulk of the building at this very prominent location, the Urban Design
Panel did not support the proposal. They recommended sliming the tower
by relocating mass to the lower townhouse element, and the introduction
of more variation in the tower floorplate.
In response to the notification, three telephone calls have been
received from residents in buildings to the south expressing concerns
about the view blockage created by a larger floorplate. A letter has
also been received from a strata group in the 1800 block Alberni Street
expressing concern about permitting any increase in density.
To address the concerns of the Design Panel, staff, and the public, the
tower has been redesigned. The typical floorplate has been reduced
from the 595.0 m2 (6,427 sq.ft.), to 570.1 m2 (6,138 sq. ft.). The
tower floorplate has also been revised by narrowing the tower width on
Georgia and Alberni Streets and extending it slightly in a northerly
direction. The result is a more varied and interesting building which
responds much better to private views from the south than the original
proposal. These changes have been achieved by removing mass to reflect
the lower density bonus calculated by staff, and relocating floor area
in a new 23rd floor and additional space on the first and second
floors. The new floor has been added by reducing floor to ceiling
heights with no increase to the building height.
CONCLUSION
The ten units of non-market housing which the developer has proposed
represents a clear public benefit. The floor area bonus to off-set the
cost of providing the non-market housing has been verified and agreed
to by both the City and the applicant. Subject to conditions as set
out in Appendix B, including a housing agreement, staff recommend
approval of this rezoning.
* * * * *
APPENDIX A
CD-1 BY-LAW PROVISIONS
USE
A maximum of 168 dwelling units in multiple dwellings, of which 10
dwelling units will be non-market and suitable for families.
DENSITY
A maximum floor area of 12,270 m2 (132,075 sq.ft.), based on the
calculation provisions of the RM-6 District Schedule.
HEIGHT
A maximum height of 64.0 m (210 ft.) measured from the base surface.
PARKING
For market units:
A minimum of 0.9 spaces per unit plus 1 space for each 200 m2 of gross
floor area, except that no more than 2.2 parking spaces per unit need
be provided.
LOADING
One residential loading space is required.
APPENDIX B
PROPOSED CONDITIONS OF APPROVAL
(a) That the proposed form of development be approved by Council in
principle, generally as prepared by Davidson, Yuen, Simpson
Architects, and stamped "Received, City Planning Department,
February 20 and May 1, 1996," provided that the Director of Land
Use & Development 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 Land Use & Development, who shall have particular
regard to the following:
(i) design development to reduce opportunities for break and
enter to ground level uses;
(ii) design development to reduce opportunities for theft
from automobiles;
(iii) design development to improve visibility in the
underground parking;
(iv) design development to reduce opportunities for
graffiti on lower blank exposed walls;
(v) design development to add windows to sides of end
townhouses to improve surveillance;
(vi) design development to realign the tower entrance to
face the street at a distance of no more than 15.0 m.
(c) That, prior to enactment of the CD-1 By-law, the registered owner
shall:
(i) make arrangements for all electrical and telephone
services to be undergrounded within and adjacent to the
site from the closest existing suitable service point;
(ii) make arrangements to the satisfaction of the General
Manager of Engineering Services for the provision of
a sidewalk on the north side of Alberni Street from
Bidwell Street to the west property line of the site;
(iii) enter into a housing agreement to the satisfaction of the
Manager of the Housing Centre to ensure that the 10
non-market units will be sold to a non-profit society
having no association whatsoever with the developer and,
further, to ensure that the 10 units are provided with a
minimum of 11 parking spaces, and are sold in one block,
to be rented to core-need families for the life of the
project; and
(iv) submit a report from an acoustical consultant which
assesses noise mitigating measures, to the
satisfaction of the Environmental Health Officer.
APPENDIX B
PAGE 2 of 2
APPENDIX D
PAGE 1 of 2
ADDITIONAL INFORMATION
Site
This 4 016 m2 (43,230 sq.ft.) vacant site was the former site of the
Motor Vehicle Testing Station and is currently owned by the City of
Vancouver. It is located on the southwest corner of Georgia and
Bidwell Streets with 100.6 m2 (330.0 ft.) frontages on Georgia and
Alberni Streets and a 39.9 m (131.0 ft.) frontage on Bidwell Street.
Further subdivision will not be required as the site has recently been
consolidated.
The soils have been cleared for residential development by the City's
Industrial Waste Officer. The developer, City Club Development
Corporation, has secured an option to purchase on the site.
Proposed Development
A total of 168 dwelling units are proposed in two multiple dwellings.
158 market units are proposed in the 23-storey tower located near the
southwest corner of Georgia and Bidwell Streets. 76 of these units are
one-bedroom, 76 are two-bedroom and 6 are two-bedroom plus den. An
amenity space of 7.5 m2 (940 sq.ft.) is located on the ground floor
adjacent to the lobby.
The remaining 10 dwelling units are located in a three-storey building
fronting on Alberni Street. 5 two-bedroom units on the ground floor
will be fully accessible to the disabled. 5 three-bedroom units will
be located on the second and third floors in a stacked configuration.
These units are proposed as non-market family housing, with all units
having access to ground level.
The design conforms to all recommendations in the West End
Georgia/Alberni Guidelines, with the exception of the proposed tower
floorplate. This issue is fully discussed in the main report.
A total of 193 underground parking spaces are proposed with 210 bicycle
stalls in two secured underground storage rooms.
Public Input A notification letter was sent to nearby property owners on February
19, 1996 and rezoning information signs were posted on the site on
April 4, 1996. To date, three telephone calls have been received from
residents to the south expressing concern over the larger floorplate
and possible impact on private views. One letter has been received
from a strata council in the 1800 block Alberni Street expressing
concern over any increase in density.
APPENDIX D
PAGE 2 of 2
Comments of the Manager of Engineering Services
The Manager of Engineering Services has no objection to the proposed
rezoning, provided that the applicant complies with the conditions as
shown in Appendix B.
Urban Design Panel Comments
The Urban Design Panel reviewed this proposal on March 27, 1996. While
generally supporting the concept of the bonus density for non-market
family housing, the Panel did not support the proposed form of
development.
Concerns related to the size of the typical tower floorplate and the
uninteresting tower form. The Panel recommended reducing the size of
the floorplate to reduce tower bulk and to provide more variety in the
floor plan to give the tower more of a residential appearance.
Finally, the Panel felt more contextual information was required.
The proposal was subsequently redesigned and will be reviewed by the
Panel on May 8, 1996. Comments from this review will be made available
to Council prior to the public hearing, if this application is
referred.
Environmental Implications
The proposed rezoning contributes to the objectives of reducing
atmospheric pollution by providing housing close to the Downtown and
within walking distance of amenities and transit.
Social Implications
The 10 non-market family housing units represent a significant public
benefit. This site is close to schools and amenities and is suitable
for family housing.
Comments of the Applicant
The applicant has been provided a copy of this report and has provided
comments attached as Appendix E.