P7
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: May 21, 1996
Dept. File No. 95037 TWP
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Rezoning of 7400 Oak Street (Oakherst)
RECOMMENDATION
A. THAT the application by Moodie Consultants Ltd., to rezone
7400 Oak Street (Lots 1-3 of 5 and Rem. Lot 5; Block 16A; D.L.
526; Plan 5858 and Lot 4; Block 16A; D.L. 526; Plan 11318)
from RS-1 to CD-1, to permit 128 dwelling units in multiple
dwellings at 0.90 FSR, be referred to a Public Hearing,
together with:
(i) plans received April 16, 1996 and May 13, 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, 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 D.
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.
C. THAT the Parklane building (950 West 58th Avenue) be
designated as protected heritage property, and added to
Schedule 'A' of the Heritage By-law.
FURTHER THAT the Director of Legal Services be instructed to
prepare the amendment to the Heritage By-laws for
consideration at Public Hearing.
CONSIDERATION
D. THAT, Council instruct the Director of Legal Services to bring
forward a Heritage Revitalization By-law at Public Hearing to
allow for the Development Cost Levy (DCL) By-law variances, as
set out in draft form in Appendix F.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A,
B and C above and CONSIDERATION of D.
COUNCIL POLICY
On May 8, 1989, Council approved community development objectives as the
basis of the City's social housing policy, including:
Encourage the distribution of acceptable housing forms and affordable
shelter costs equally among all residential neighbourhoods of Vancouver.
Council's Heritage Policies and Guidelines state that the City's
long-term goal is to protect through voluntary designation as many
resources on the heritage register as possible.
On July 25, 1995, Council approved the Oakridge/Langara Policy
Statement, which supports rezoning of a number of sites in the area,
including the Oakherst site, for multiple dwelling development.
PURPOSE AND SUMMARY
This report assesses an application to rezone the 1.9 ha (4.7 ac.)
former Oakherst private hospital site at West 59th Avenue and Oak
Street, to permit 58 2-storey townhouses in clusters on the majority of
the site, with 64 units in two 4-storey multiple dwellings near Oak
Street and 6 units in the heritage 'A'-listed Parklane house at 950 West
58th Avenue. Public objectives for the site include retention of
heritage and landscape resources while increasing the diversity and
supply of housing in Oakridge-Langara, particularly of ground oriented
units.
Staff conclude that modifications resulting from the recommended
conditions of approval would achieve a sufficient balance of these
objectives to recommend approval. Council's consideration is sought for
the use of a Heritage Revitalization Agreement to vary the provisions of
the anticipated DCL By-law for this area as it would apply to this site.
An accompanying IN CAMERA report deals with recommendations regarding
Community Amenity Contributions.
MAP
DISCUSSION
Use The Policy Statement concluded that this large assembly offers an
unusual opportunity to provide ground-oriented and low-rise multiple
dwellings, which requires no demolition of one-family development. No
other significant opportunities, such as industrial employment, would be
sacrificed. Potential friction between one-family use and more intense
uses is minimized by the location of this site with one arterial edge,
three institutional adjacencies and full street width separation from
RS-1 development. Houses fronting West 58th Avenue also benefit from
unusually large front setbacks of about 10.7 m (35 ft.) due to greater
lot depths.
It is an objective of the Policy Statement to create opportunities for a
broad range of housing forms. It was hoped that a mix of 2-storey,
3-storey, and stacked townhouses, together with low-rise apartments,
would accommodate a broader range of the community's housing needs. The
Urban Design Panel has also noted these opportunities for this site.
The proposed mix of uses is positive but would have better achieved
housing objectives by including 3-storey or stacked townhouses.
Density The Policy Statement concluded that density objectives of 0.80
to 1.0 FSR for this site could be achieved with a well planned mix of 2-
and 3-storey and stacked townhouses and low-rise apartments. If the
proposed range of built forms is narrowed, a density above 0.8 FSR may
not be achievable.
In this application a density of 0.89 FSR is proposed. However, the
applicant has declined to consider 3-storey or stacked townhouses. This
has reduced options for siting floor space potential with an optimal
site plan which would achieve more open space and tree retention.
Therefore, by employing a narrower range of built forms, the applicant
has reduced the likelihood of achieving the recommended density with an
approvable form of development. Although staff support the proposed
density, this more narrowly defined approach to possible building forms
has resulted in a series of significant concerns with the proposed form
of development, as discussed below.
Landscape Resources This site hosts an unusually high quality and
number of mature specimen trees, which are valued both at a local and
city-wide level. In turn, these trees have been observed to host a
broad spectrum of bird life. Many of the best tree specimens are
associated with the Parklane house, its former tennis court siting,
remnants of former gardens and the "park lane" approach which
historically connected the house to West 59th Avenue at Fremlin Street.
Together, these form an historic landscape association. Staff believe
that the revised plans approach an acceptable balance of development
opportunities with preservation of very significant landscape features.
Conditions of approval recommended in Appendix B would ensure a
supportable compromise.
Heritage The Vancouver Heritage Register evaluated the former Parklane
Hospital at 950 West 58th Avenue as an 'A' on the inventory list.
Although the register does not distinguish between the two structures
which comprised the hospital, there is a comparably detailed description
of the significant features of both the coach house and the principal
building, which contribute to the evaluation as an 'A' category site.
The Senior Heritage Planner and Heritage Advisory Commission conclude
that both structures are of significant heritage value and contribute to
the context of the site and landscape.
Staff conclude that the proposed exterior treatment of the principal
building is appropriate. Staff have suggested that an alternative
rehabilitation plan for 3 units (rather than the proposed 6) would
permit retention of more interior features and could generate more
usable space and revenue. Fewer units would also need fewer surface
parking spaces next to the heritage building.
The relationship of new townhouses to this building is critical. A
minimum setback of 10.7 m (35 ft.) is recommended as a condition of
approval to avoid a congested appearance which would make the heritage
structure appear to be out of place. Staff concede that the loss of the
coach house cannot be avoided, given the economics of this scheme.
Form The Urban Design Panel noted that this site has four distinctly
different contextual settings. This both creates the opportunity for,
and requires a response providing, quite varied forms of development.
The site faces some quite insensitive uses including the community
centre and the fire hall, which provide a suitable context for 4-storey
multiple dwellings. These structures must taper in scale along Oak
Street toward West 58th Avenue and along West 59th Avenue toward Fremlin
Street. To the east, the school presents a third institutional
adjacency, but the scale of new multiple dwellings would have to be
reduced to 2-storeys near West 59th Avenue, approaching RS-1 sites east
of Fremlin Street. The West 58th Avenue frontage requires the most
sensitivity, with many low scale one-family houses on large lots across
West 58th Avenue. However, the heavily treed setting of the Parklane
buildings offers significant visual relief to these neighbours.
The proposed maximum height of townhouses facing West 58th Avenue would
be 9.2 m (30 ft.) which is the maximum height for RS-1 sites. However,
the continuous rooflines proposed would still block more views than
individual houses, and should be broken between units. The proposed
14.6 m (48 ft.) height of the apartment building fronting Oak Street
results from grade changes along the length of the building and the
desire for a sloped roof form. A flat roof would achieve a height of
12.2 m (40 ft.), but is not recommended as it would detract from the
character of the development.
Proposed front setbacks of 6.7 m (22 ft.) are supported west of the
Parklane house with 5.5 m (18 ft.) setbacks for five units near Laurel
Street. Given the large setbacks across 58th Avenue and the visual
benefit of trees retained on this site, greater setbacks are not
warranted and would diminish on-site livability. The character of these
units should complement the heritage building, but need not mimic it,
nor be uniform.
It is also essential that the traditional treed corridor along the "park
lane" be unimpeded by buildings to permit a view corridor toward the
Parklane house and associated trees from West 59th Avenue (greenway) at
Fremlin Street. A minimum width of 24.4 m (80 ft.) is recommended,
although 30.5 m (100 ft.) is desirable.
Both built and paved site coverage are major factors in the extent of
tree retention which can be achieved. Inclusion of 3-storey or stacked
townhouses with underground parking would dramatically
improve site planning flexibility. Floor space potential would not
conflict with tree retention, setbacks from heritage buildings and view
corridors if these options were pursued. Given that the applicant has
chosen to limit the built form to 2-storey townhouses with parking under
each unit, the only avenue to reduce site coverage is to either
eliminate units or unnecessary internal roadways and surface parking as
recommended in Appendix B.
As pointed out by the Urban Design Panel, the quality of the on-site
environment will depend heavily on the detailed treatment of open spaces
and of the road access corridors. Several conditions in Appendix B
address these issues.
West 59th Avenue Greenway The relationship of this development to the
West 59th Avenue greenway must provide a compatible edge which permits
casual public views through to the "park lane", trees and heritage
house. The breadth of such a view corridor must be sufficient that a
pedestrian or cyclist is drawn to the view without feeling they are
intruding by peering into a private site.
Project Economics A Real Estate Services review of the project proforma
concluded that $1.3 million could be allocated to public benefits. That
figure was reduced to $1.1 million when the revised application proposed
two less units. One of those public benefits would be the restoration
of the Parklane house at a net cost of $850,000, when converted to 6
apartments. With this figure deducted from the $1.1 million available
there would be $250,000 left for other public purposes. However, a
minor savings of $50,000 on sewers is now anticipated. Therefore, about
$300,000 would be available to pay a Development Cost Levy (DCL).
At the anticipated rate of $3.25 per buildable square foot, the DCL
payment would be $587,000 at the proposed density of 0.88 FSR.
Therefore, the DCL would exceed the total shown to be available for
public benefits in the proforma by approximately $300,000. If Council
wishes to compensate the applicant for this difference, the DCL By-law
may be varied by approving a Heritage Revitalization Agreement, as
presented for Council's Consideration (item D). Draft variances of the
DCL By-law are contained in Appendix G.
To improve economic return and address housing variety objectives, staff
have encouraged the applicant to include third storeys or stacked units
in the least visible part of the site. However, the applicant declined
to pursue these suggestions for marketing reasons.
CONCLUSION
Planning staff conclude that, with further design development as
reflected in conditions of approval in Appendix B, the proposed rezoning
would offer a desirable balance among civic objectives expressed in the
Oakridge-Langara Policy Statement to increase housing opportunities,
particularly for ground-oriented units,
while protecting heritage and landscape resources. It is recognized
that a significant number of area residents prefer one-family
development under the existing RS-1 zoning. However, staff recommend
approval, noting that existing zoning offers no assurance that any one
of the stated civic objectives would be achieved.
In response to the applicant's comments, staff note that the standard
requirement for a Public Art Contribution was pointed out to the
applicant. However, staff recognize the financial implications of other
public benefits and recommend that no Public Art Contribution be
required in this case.
* * *
APPENDIX A
Page 1 of 2
DRAFT CD-1 BY-LAW PROVISIONS
Use
- Multiple Dwellings containing a maximum of 122 dwelling
units, based on calculation provisions of the RM-4
District Schedule;
- Multiple Conversion Dwelling containing a maximum of 6
dwelling units; and
- Customarily ancillary uses.
Conditions of Use - No listed use will be permitted and no building will be
permitted to be occupied or continued to be occupied
unless the trees identified on the Plan referred to
under Landscaping and Trees are retained in a healthy
condition on the site, except that the Director of
Planning may permit removal or alteration of trees
pursuant to the Private Property Tree By-law.
Density
- Maximum floor space ratio of 0.90 FSR, based on
calculation provisions of the RM-4 District Schedule.
Height
- A maximum of 14.6 m (48 ft.) or 4 storeys west of a
line 145 m (475 ft.) west of Laurel Street; and
- A maximum of 9.2 m (30 ft.) for multiple dwellings east
of a line 145 m (475 ft.) west of Laurel Street.
Setback
- A minimum setback of 5.5 m (18 ft.) from the south
property line;
- A minimum setback of 5.5 m (18 ft.) from the north
property line except that to the west of the Parklane
heritage house (950 West 58th Avenue), a minimum
setback of 6.7 m (22 ft.) is required; and
- A minimum setback of 6 m (20 ft.) from west property
line.
APPENDIX A
Page 2 of 2
Landscaping and Trees
- Before any development permit can be approved for the
site a site plan showing mature landscaping and trees
which will be retained must be submitted to and
approved by the Director of Planning. For the purpose
of this section the plan labelled "7400 OAK STREET PLAN
OF EXISTING TREES TO BE RETAINED", which is attached to
and forms part of this By-law, shall be deemed to be
the site plan referred to in this section and in the
above Conditions of Use. All landscaping and trees
must be maintained in a healthy condition.
Parking
- Per RM-4 standards of the Parking By-law, except that a
minimum of 1.75 spaces per unit are required for
townhouse units and 1.0 spaces per unit for units in a
designated heritage structure.
Acoustics
- Per RM-4N District Schedule.
APPENDIX B
Page 1 of 6
PROPOSED CONDITIONS OF APPROVAL
(a) That the proposed form of development be approved by Council in
principle, generally as prepared by Eng and Wright Partners,
Architects, and stamped "Received City Planning Department, April
16, 1996, and May 13, 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) the maximum width of the West 59th Avenue crossing is to
be 7.3 m (24 ft.) wide at the property line;
(ii) design development to better distinguish individual
apartment buildings and townhouse clusters from each
other by use of materials, colour, detailing of
secondary architectural elements and landscaping, and
introduce greater complexity of roof forms in each
cluster to better articulate massing;
(Individual continuous streetscapes should better
integrate into the existing neighbourhood through more
variety and less homogeneity.)
(iii) elimination of a continuous internal street system by
deleting the portion that connects the easterly and
westerly portions of the development across the West
59th Avenue greenway view slot;
(iv) design development to reduce the internal street width
and maximize open space in consultation with City
Engineering staff;
(v) design development to refine hard and soft landscape
transitions from individual private yards to public
areas, including the West 59th Avenue greenway, the
internal street/pathway system and other semi-private
areas;
(vi) design development to the West 59th Avenue greenway to
clarify hard and soft landscape treatment and features;
APPENDIX B
Page 2 of 6
(vii) design development to the site's southeast corner
townhouse clusters to eliminate visitor parking and
excessive hard surface roadway by reorienting and
consolidating into a single cluster with a 3.7 m (12
ft.) setback along Laurel Street. Townhouse units
adjacent to the Laurel Street crossing will require
re-design to accommodate parking access requirements;
(viii) design development to eliminate, or relocate to the
southeast corner cluster, one townhouse unit presently
located west of the view corridor;
(ix) design development to provide a wider, enhanced vista
towards the heritage structure, as seen from the West
59th Avenue greenway, by increasing the view slot
opening dimension to a minimum of 24.4 m (80 ft.) and
accentuating this view point through enhanced
landscaping;
(x) elimination of all surface visitor parking to reduce
hard surface area and maximize on-site open space and
landscaping;
(xi) design development to the townhouse clusters adjacent to
and directly west of the heritage building to maximise
separation between structures, with townhouses set back
a minimum of 10.7 m (35 ft.) from the heritage
structure;
(xii) design development to clarify internal street special
paving and other landscape enhancement to provide
attractive streetscapes;
(xiii) design development to interior street elevations to
provide better visibility and surveillance from
townhouses at grade and to relieve monotony created by
continuous garage doors;
(xiv) design development to reduce the impact of the southerly
east-west internal street "cut" into existing grade;
(xv) design development to refine Building A's north
elevation to create a better transition in massing,
scale and articulation to the single-family houses;
(xvi) clarification of privacy screen details and locations;
APPENDIX B
Page 3 of 6
(xvii) design development to make front yards and ground level
units highly defensible and encourage surveillance;
(This can be achieved with low fencing and gates at the
property line, having ground level units facing West
59th Avenue and Laurel Street, slightly [1.5 - 3 ft.]
above the sidewalk level.)
(xviii) design development to reduce opportunities for cutting
through the site by non-residents and to reduce
opportunities for mischief and break and enter to ground
level residential units;
(This can be achieved by ensuring residential units face
on-site open spaces.)
(xix) design development to reduce opportunities for theft
from auto;
(This can be achieved by locating exit stairs from
underground parking out of the vision of non-residents,
gating the vehicular entrance and locking the door from
the elevator lobby to the parking [opposite to the
direction of the exit].)
(xx) submission of detailed exterior materials specification;
(xxi) clarification of Fire Department access, paving and
hydrant locations in consultation with the Fire
Prevention Officer;
(xxii) retention and protection of all trees identified to be
retained on the Tree Retention Plan received April 16,
1994;
(xxiii) submission of an arborist's report to assess tree
retention and building location as part of the
development application;
(xxiv) commitment that a ISA certified arborist will be on site
during any excavation within 10 m of a tree identified
to be retained;
(xxv) buildings to be sited in such a way as to ensure that
excavation and disturbance will not occur within a 2 m
radius of trees 47, 48 and 55;
APPENDIX B
Page 4 of 6
(xxvi) all existing trees to be retained must be protected and
cared for as per Schedule D of the Private Property Tree
By-law No. 7347; and
(xxvii) tree protection barriers will need to be shown for all
retained existing trees as per Schedule D of the Private
Property Tree By-law No. 7347 and the Landscape Plan
amended to show "Existing Trees To Be Retained".
(c) That, prior to enactment of the CD-1 By-law, the registered owner
shall:
(i) consolidate Lots 1-3 of 5, and Rem. Lot 5; Block 16A;
D.L. 526; Plan 5858 and Lot 4; Block 16A; D.L. 526; Plan
11318;
(ii) make arrangements to the satisfaction of the City
Engineer and Director of Legal Services for:
1. rerouting of the existing sewer line which passes
through the site. The sewer line can either be
routed around the site on public property, or through
an on-site, relocated 6.0 m wide easement. This work
is to be all at the developer's expenses;
2. upgrading of the water mains which will serve this
development, at the developer's expense;
3. provision of concrete sidewalks on the south side of
West 58th Avenue and the north side of West 59th
Avenue from Oak Street to Laurel Street;
4. provision of greenway streetscape treatment on West
59th Avenue from Oak Street to Laurel Street
including curb and gutter and asphalt pavement to
road centre line, and curb, gutter and asphalt to
road centre line on Laurel Street from West 58th
Avenue to 59th Avenue, at the developer's expense;
5. potential upgrading of the pedestrian signal at West
59th Avenue and Oak Street within 5 years of building
occupancy, at the developer's expense;
APPENDIX B
Page 5 of 6
6. clarification of easement and indemnity agreements
Nos. 100340M, 337126M and 399352M;
7. provision of a traffic consultant's report consisting
of a traffic volume analysis based on previous
hospital use for comparison purposes; and
8. upgrading of the pedestrian activated signal at West
59th Avenue and Oak Street to a bicycle activated
signal;
(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) execute a legal agreement satisfactory to the Director
of Legal Services providing that owners will not
discriminate against families with children in the sale
of their property;
(v) provide a covenant to the satisfaction of the Director
of Legal Services to commit the owner to retaining and
protecting all trees identified on the Tree Retention
Plan received April 16, 1996, including a commitment
that an ISA certified arborist must be retained to
periodically monitor the health and safety of trees on
site, report any damage or neglect to the trees to
Planning Staff immediately, undertake any maintenance or
remedial care as required to ensure the ongoing health
and safety of the retained trees during all phases of
construction and for a minimum of 3 years upon
completion of construction. The recommendations of the
arborist must be undertaken with respect to tree care
and maintenance as well as construction practices;
(vi) provide a covenant to the satisfaction of the Director
of Legal Services to commit the owner to cause any
strata corporation formed as a result of strata titling
of the site to provide a covenant in favour of the City
of Vancouver committing that Strata Corporation to
retaining all trees identified in the Tree Retention
Plan received April 16, 1996;
APPENDIX B
Page 6 of 6
(vii) obtain designation of the principal Parklane building
under Schedule A of the City's Heritage By-law,
including those affixed interior fixtures and features
as determined by the Director of Planning;
(viii) execute an agreement, to be registered against the
property, to the satisfaction of the Director of Legal
Services, in consultation with appropriate Department
Heads, by which the owner agrees to provide temporary
protection for the heritage building before and during
construction on the site and that the occupancy of the
new buildings shall be subject to the completion of
restoration of the heritage building with this agreement
to be discharged when the heritage work is complete; and (ix) execute an agreement, to be registered against the
property, to the satisfaction of the Director of Legal
Services, in consultation with appropriate Department
Heads, by which the owner secures and agrees to
undertake the necessary restorative work to the existing
heritage building, noting that all future repairs and
renovations require a heritage alteration permit, and
that in the event the heritage building is irreparably
damaged, the owner further undertakes to conduct
whatever necessary and reasonable arrangements are
needed to satisfactorily replicate the heritage
building.
APPENDIX C
Page 1 of 1
APPENDIX D
Page 1 of 5
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This 1.9 ha (4.71 ac) site
bounded by Oak and Laurel Streets and West 58th and West 59th Avenues is
comprised of 5 parcels. The site has a frontage of 204.6 m (671.4 ft.)
on West 59th Avenue and a depth of 100.6 m (330 ft.).
The site faces one-family dwellings on RS-1 zoned parcels across West
58th Avenue, across West 59th Avenue east of Fremlin Street and one
flanking RS-1 zoned parcel west of Oak Street at West 58th Avenue. To
the south, this site faces Oak Park and the Marpole-Oakridge Community
Centre, with a fire hall to the west across Oak Street at West 59th
Avenue. To the east is Laurier Elementary School.
Proposed Development Two-storey townhouses would face West 58th and
59th Avenue frontages developed with one-family dwellings. Four-storey
buildings would face Oak Street and the Marpole-Oakridge Community
Centre, but would taper to 3-storeys to reduce scale in approaching
lower buildings both on site and at the corner of Oak Street and West
58th Avenue. The principal Parklane structure is proposed to be
retained and rehabilitated for 6 dwelling units, but the former Coach
House would be demolished. Revised plans (see Appendix C) show a
significant interior open space around and to the south of the house,
which assists in retaining 57% of the best trees on site (53% overall).
Heritage Designation Staff recommend, as a condition of rezoning
approval, that the former Parklane building be designated under the
City's Heritage By-law. As a result of recently enacted provincial
legislation and amendments to the Vancouver Charter, it is now necessary
to hold a Public Hearing for any heritage building proposed to be
designated, irrespective of whether there is a proposed zoning change.
The legislation also requires staff to include the appropriate
assessment of the building in terms of heritage value, compatibility of
conservation with lawful uses, condition and economic viability of the
property, and the need for financial and other support for conservation.
- Heritage Value: Located at the northern, central edge of the
site, the house is the historic home of Charles Gardner Johnson.
Johnson was a shipping agent and the local representative of
Lloyd's of London. The house was built in 1912 in a variation of
the Craftsman style. The house is covered with stucco and
unusual log siding. Period photographs illustrate the beauty of
its original
APPENDIX D
Page 2 of 5
appearance with its log siding, half timbering, stone foundation,
the original open porches facing south over the landscaped
gardens. The interior features wood panelling, ceiling beams,
fireplaces and a central staircase of value.
The building rated an 'A' on the Vancouver Heritage Register for
its architectural value, being a rare example of log-faced
construction. In its restored condition, the building would make
a significant architectural and heritage legacy of this former
rural section of Vancouver. The adjacent coach house is also of
heritage value but staff reluctantly concur that it cannot be
retained without impacting the overall proposal.
- Compatibility of Conservation with Community Planning Objectives:
The retention and restoration of the Parklane building is
consistent with the City's long-term goal to protect as many
resources as possible currently listed on the Vancouver Heritage
Register. There are few listed heritage buildings within the
Oakridge-Langara area, and the Policy Statement encourages both
housing diversity and the preservation of buildings with heritage
character.
- Compatibility of Conservation with Lawful Uses: The use of the
heritage building for residential purposes is lawful under the
proposed CD-1 zoning.
- Condition and Economic Viability of the Property: The house is
in reasonable physical condition and can be retained in situ and
rehabilitated for residential use. Sufficient archival material
exists to determine the restoration of the building.
Heritage Revitalization Agreement (HRA) Section 592 of the Vancouver
Charter makes provisions to vary a DCL By-law through an HRA.
Public Input A notification letter was sent to nearby property owners
on November 29, 1995 and rezoning information signs were posted on the
site on December 5, 1995. Six phone calls were received from residents.
Concerns focused on density, traffic, setbacks and visual impact of
parking in front of the heritage house. Five letters expressing
opposition were received from nearby residents stating traffic, crime,
open space, tree retention, crowding and architectural character as
principal concerns. Twenty-two letters were also received from students
at Laurier Elementary School expressing concern about loss of trees and
bird life on the site.
APPENDIX D
Page 3 of 5
Seven residents came as a group to City Hall to view plans and identify
concerns to Community Planning staff. Concerns expressed include
greater setbacks, particularly along West 58th Avenue, comparable to the
10.7 m (35 ft.) setback of houses across the street; leaving more space
and less parking around the heritage building; traffic impacts from the
schools being compounded by this development; protecting trees and bird
life; and fear that having front doors along West 58th Avenue would
encourage traffic on that street. A significant number of residents
strongly prefer single-family development of this site.
A facilitator engaged by the Community Planning Division also met with
eight residents who noted concerns regarding school capacities, the
design character of the townhouses, potential view blockage, overall
density and quality of the site plan. One resident proposed a 30.5 m
(100 ft.) by 30.5 m (100 ft.) passive park area on the site.
Finally, a public open house on April 25, 1996, was attended by
approximately 15 residents who felt tree retention, building scale,
traffic impacts and school capacities were key concerns.
These issues are addressed in the Discussion Section of the report.
Comments of the City Engineer The City Engineer has no objection to the
proposed rezoning, provided that the applicant complies with conditions
as contained in Appendix B.
School Capacity School Board staff comment as follows:
"School Board staff have been involved in numerous discussions with City
staff during the ongoing Oakridge/Langara studies. It has been noted on
several occasions that the schools in the area, especially Laurier
Elementary and Churchill Secondary, are operating above full capacity.
All things considered, Vancouver School Board staff support the view of
the local residents and oppose rezoning of the Oakherst site for
apartment and townhouse development. If the site is to be redeveloped,
from the interests of the ability of the local schools to accommodate
increased enrolments, Vancouver School Board staff support the
single-family subdivision of the Oakherst site.
There have been no provisions made by the City to address the growing
concerns about overcrowding at certain schools in this area, in
particular, and in the City in general. As noted in the rezoning report
from Moodie Consultants, dated November 14, 1995,
APPENDIX D
Page 4 of 5
Page 8, one of the principles in the Oakridge/Langara Policy Statements
is: "Ensure that public infrastructure and future expansion requirements
are considered when redeveloping private sites and that development
contributes to its share of upgrades...". The Vancouver School Board
staff maintain that schools are a basic part of the public
infrastructure, and that some type of contribution should be provided to
the district resulting from a required expansion of service to meet the
demands created by the redevelopment.
Until there is a better mechanism in place to obtain development cost
charges or community amenity contributions (as schools must be viewed as
either part of the basic infrastructure or a community amenity),
Vancouver School Board staff cannot ignore the possible costs and
consequences associated with a sizable rezoning of a site near a
school(s). Therefore, if redevelopment on the Oakherst site is to
occur, a single-family subdivision within the existing zoning is the
least problematic for the School Board."
[In response to the foregoing, Planning staff note that the VSB is
legally obliged to provide school facilities, not the City; if the VSB
is inadequately funded to meet its obligations it should address this
concern to the Province; and the City has its own objectives to be
addressed, only a portion of which will be met through DCLs.]
Therefore, Vancouver School Board staff do not support the rezoning of
the Oakherst site from RS-1 to a Comprehensive Development.
Urban Design Panel Comment The Urban Design Panel reviewed this
proposal on December 6, 1995 and gave it Non-Support. The Panel
subsequently reviewed the revised scheme on April 24, 1996 and supported
the proposed use, density and form of development, but noted concerns
regarding the following issues:
- similarity of townhouses;
- relentlessness of garages;
- quality of mews at garage entries;
- adequacy of mews surveillance from townhouse units;
- opportunities to add third storey dormers to some units;
- opportunities to improve setbacks from the heritage building and
trees by closing slots between townhouses;
- opening up of view from greenway to trees and heritage building
(eliminate one or two units);
- provision of better linkages from townhouses to apartments;
- reflect angularity of heritage house in some units;
- scale of retaining walls;
- lowering of roof eves to reduce visual scale of apartment
buildings; and
APPENDIX D
Page 5 of 5
- proximity of the northerly apartment building to Oak Street.
The minutes of the Panel's deliberations are attached as Appendix E.
Vancouver Heritage Commission Comment The Commission reviewed the
initial application on December 11, 1995 and could not support the
scheme. On May 6, 1996, the commission reviewed revised plans dated
April 16, 1996 and supported the revised application, though loss of the
coach house remained a concern.
Public Benefit A revised form of the proposed development reflecting
conditions in Appendix B would increase the supply and variety of
housing forms and levels of affordability in the Oakridge-Langara area
while preserving a good representation of the heritage and landscape
resources on the site.
ENVIRONMENTAL IMPLICATIONS
The proposed rezoning neither contributes to nor detracts from the
objective of reducing atmospheric pollution. The resulting development
would likely preserve more trees than would be retained through
subdivision and development under the existing RS-1 zoning.
SOCIAL IMPLICATIONS
This proposal provides housing well suited to residents seeking
alternatives to one-family dwellings, including families, with immediate
access to a park, community centre and overcrowded schools. There are
no implications with respect to the Vancouver Children's Policy or
Statement of Children's Entitlements.
CONSEQUENTIAL AMENDMENT
If the proposed rezoning 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 'D' standards which were established
in 1988 for this site.
DEVELOPMENT COST LEVY
An accompanying report will recommend that Council approve a by-law for
the Oakridge-Langara area requiring payment of $3.25 per buildable
square foot for new development. This by-law would apply to the
proposed development at 7400 Oak Street.
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 G
Parklane Draft for Public Hearing
BY-LAW NO. _______
A By-law to Authorize Council
Entering into a Heritage Revitalization Agreement
with the Owner of Heritage Property
WHEREAS Council has the authority under the Vancouver Charter to
make by-laws affecting and regulating the use of land within the City;
AND WHEREAS a property located within the City with the address
of 950 West 58th Avenue and legally described as Lots 1-3 of 5 and Rem.
Lot 5; Block 16A, Plan 5858, District Lot 526 contains the former
Parklane building listed as a category 'A' building on the Vancouver
Heritage Register;
AND WHEREAS 500242 B.C. LTD. is the registered owner of the
property and has agreed to undertake certain measures to conserve the
building in return for certain zoning relaxations proposed under
Development Application DE________;
AND WHEREAS Council is of the opinion that the building has
sufficient heritage value to justify its conservation;
AND WHEREAS Council agrees that conservation of the building can
be facilitated by varying certain provisions of DCL By-law No. ____.
AND WHEREAS Council and the registered owner of the property have
agreed to certain other terms and conditions;
NOW THEREFORE THE COUNCIL OF THE CITY OF VANCOUVER, in open
meeting assembled, enacts as follows:
1. The Director of Legal Services is hereby authorized to execute on
behalf of the City a heritage revitalization agreement in substantially
the same form as that which is attached to and forms a part of this
By-law.
[attach draft HRA]
APPENDIX H
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 7400 Oak Street
Legal Description Lots 1-3 of 5 and Rem. Lot 5; Block 16A; D.L. 526; Plan 5858 and Lot 4;
Block 16A; D.L. 526; Plan 11318 Applicant J. Moodie, Moodie Consultants Ltd.
Architect G. Eng, Eng and Wright Partners
Property Owner 500242 B.C. Ltd.
Developer B. Lee, Haseman Estates Ltd.
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 1.9 ha (4.71 ac.) - same
DEVELOPMENT STATISTICS
RECOMMENDED
DEVELOPMENT PERMITTED UNDER PROPOSED DEVELOPMENT (if
EXISTING ZONING DEVELOPMENT different than
proposed)
ZONING RS-1 CD-1
USES One Family Dwellings Multiple Dwellings
Multiple Conversion
Dwellings
DWELLING UNITS 20 128
MAX. FLOOR SPACE RATIO 0.60 0.90
MAXIMUM HEIGHT 9.2 m (30 ft.) 14.6 m (48 ft.)
MAX. NO. OF STOREYS 2-1/2 2-4
PARKING SPACES per parking by-law per draft by-law
(Appendix A)
FRONT YARD SETBACK 20% Varied
SIDE YARD SETBACK 10% N/A
REAR YARD SETBACK 45% N/A