POLICY REPORT
URBAN STRUCTURE
Date: March 27, 1996
Dept. File No. 95029 RJ
TO: Vancouver City Council
FROM: Director of Central Area Planning, in consultation with the
Director of City Plans, and the Manager of the Housing Centre
SUBJECT: Proposed Rezoning of 940-960 Station Street
(Trillium Site)
RECOMMENDATION
A. THAT, consistent with the False Creek Flats Preliminary
Concept Plan, the IBI Group, rezoning applicants for 940-960
Station Street, be advised that the previously defined
Trillium site is primarily suited for low-impact, city-serving
and Downtown-related industrial uses and that the following
would also be considered with the primary uses:
- retail, service, and entertainment as minor components
ancillary to the primary uses; and
- artists' live/work studios, consistent with existing City
policies;
B. THAT, in association with the primary uses, Council is
prepared to consider up to 150 units of industrial work/live
as a pilot project;
C. THAT if the site is expanded to include areas on Main Street
or elsewhere outside areas set aside for industry, a range of
other uses may be considered in the expansion area, including
residential, commercial, retail, service, commercial
work/live, and other uses consistent with a mixed-use
community;
D. THAT a comprehensive development rezoning will be considered
for the site, with a form of development which addresses
appropriate built form and urban design concepts, street
pattern, open space and public realm schemes, and amenity
provisions.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS A, B, C and D.
COUNCIL POLICY
- On March 14, 1995, Council approved the Industrial Land Policies
which support retention of the False Creek Flats for mainly
city-serving industry, transport, and service uses.
- On March 28, 1995, Council amended the artist live/work studio
policies in industrial zones, limiting them to rentals in existing
buildings, with a maximum floor space ratio of 1.0, and
time-limited permit approval.
PURPOSE
This report provides a commentary and recommended direction for further
consideration of the Trillium rezoning application on the basis of the
False Creek Flats Preliminary Concept Plan, outlined in a companion
report. In particular, it considers the applicant's initial proposal
for industrial live/work. Also, a brief response is provided on
development ideas put forward more recently by the applicant in
discussions with staff, as summarized in Appendix 'A'.
If the applicant wishes to proceed in line with the proposed False Creek
Flats policies, staff suggest using the cooperative planning process for
major projects to reframe, develop, evaluate, and publicly review the
application. Resources for this process are recommended in the
companion report on the Preliminary Concept Plan.
BACKGROUND
In June 1995, Council decided that review of the Trillium rezoning
should continue as the False Creek Flats overview unfolded, and in
particular, the industrial live/work aspect of the Trillium rezoning
should be considered and reported concurrently with the planning
overview.
Analysis of industrial live/work and work/live is included in a
companion report that has assisted in the preparation of the False Creek
Flats Preliminary Concept Plan and this report on the Trillium rezoning.
DISCUSSION
Site Description
Figure 1. The Trillium Site
The Trillium site is a 6.8 ha (16.8 acre) parcel on the northwest corner
of the Flats. It is mostly vacant, with the exception of two small
buildings on the property recently purchased on Prior Street. The
Strathcona neighbourhood is to the north, separated by food wholesalers
and Prior Street. To the west lies the Main Street area that is focused
on Thornton Park, where the CityGate development is progressing. To the
south, Pacific Central Station has recently been upgraded as a
multi-modal transportation facility with passenger train and bus
services. The use of the new 3.2 ha (7.8 acre) city park on the east
will be determined by a park planning exercise currently underway in
Strathcona.
Soil assessment has been undertaken and a remediation plan has been
approved by the Province. A 12.0 m (40 ft.) right-of-way along the
south of the site permits access from Station Street to the new City
works yard.
Proposed Rezoning
The IBI Group originally applied to rezone the Trillium site from M-1
(light industrial) to a new industrial district, to permit 760
industrial live/work units, and 430,000 sq.ft. of light industrial,
cultural, recreational, retail, and office uses. The application was
subsequently revised to a comprehensive development (CD-1) rezoning with
the same range of uses. Over the last few months, the concept has
evolved and the applicant now wishes to make revisions based on an
expanded site including properties on Prior Street and possibly Main
Street. The new proposal is described as a mixed-use neighbourhood
which will include industry. Movie production will be a major component
along with production shops ancillary to movie production such as:
workshops, storage, general live/work, possibly industrial work/live,
entertainment, some retail, and possibly residential on Main Street.
The applicant has provided some details of the concept in a letter
attached as Appendix 'A'. As the revisions have yet to be submitted, and
the overall package has yet to be clearly defined, staff can only
provide a general assessment of recently suggested uses.
Industrial Use
The Trillium site is ideally located for a variety of low-impact,
Downtown-related industries that would provide a good transition from
the Strathcona neighbourhood and the developing Thornton Park
neighbourhood on Main Street, to the higher impact industrial uses of
the Flats. The site is large enough to provide for a variety of parcel
sizes, catering to both incubator and larger industries. The proximity
to Downtown is attractive for high-tech users such as telecommunication,
printing, and bio-medical operations, as the site provides easy access
for sales, head office, or customer contacts. The location is also
convenient for employees due to its proximity to public transit, as well
as surrounding housing and amenities. The existing and future road
system will provide good access for supplies and customers.
Industrial Work/Live Use
For many of the same reasons that support low-impact and high-tech
industry, the site is also suitable for industrial work/live use.
Industrial live/work was originally proposed, but staff analysis
illustrates that the real need is for industrial work/live. The main
difference between the two, is the assumption that work/live on
industrial land can be justified by the higher impact processes which
are not acceptable in commercial or residential zones and that similar
to other industrial uses, the larger workspaces required can be assisted
by industrial land values.
Industrial work/live is also primarily 'work oriented', with special
space and infrastructure requirements. Locational criteria are put
forward in the companion live/work, work/live report. The Trillium site
meets all of these criteria. As a result, staff support up to 150 units
of industrial work/live on the Trillium site, noting that this
represents a small component of their overall development.
The recommended size is primarily based on the demand identified of
about 300 units of industrial work/live over the next 5 years. Staff
felt that any more than 150 units would be too large of a portion of the
overall demand. At the same time, 150 units is enough for staff to
assess the impacts on adjacent industry, industrial land values, and the
provision of industrial jobs. Even if the impacts are more than
anticipated, the modest amount of units will likely have little impact
on the industrial land base and the value of industrial land. The
project would also be of sufficient size so that the development could
stand on its own and provide a sense of community in itself. It may
also be large enough for the developer to provide for cross-subsidy of
affordable units, recognizing that a large portion of the potential
users have limited incomes.
The units should be located away from the rail uses and any future
traffic corridor to the south, in two or three buildings possibly
located on a new east/west local street, linking Station Street to the
new park.
Building and Unit Characteristics
Staff analysis and focus group studies with potential users have
identified specific requirements for industrial work/live units which
vary significantly from artist live/work studios. Industrial processes
require larger work spaces, usually 180-250 m2 (600-800 sq.ft.), a
portion of which could be reserved for ancillary office space.
Considering the impact of industrial processes, separation of the
residential use is mandatory. This residential space will have to be
tied to the work space, and both spaces should be purchased or rented as
one unit. The distribution of space in each combined unit must be
approximately 66% work and 33% living space, in order to ensure the
primary focus is on 'work' and not 'live'.
Specific work/live building needs include industrial-sized elevators,
hallways, and loading bays. In the work space itself, heavy-duty
electrical, ventilation, and plumbing systems would be necessary, as
well as floors capable of carrying industrial loads. Work spaces and
living spaces could also be partially finished to provide flexibility
for adapting the spaces for specific work uses, as well as to promote
affordability. The separation of these uses, however, would be required
before occupancy. Common space should
be provided for meeting, recreational, or shared work space. Building
code amendments to permit this use are currently being discussed with
Permits and Licenses and would be developed during the detailed process
related to the rezoning.
IBI's Evolving Ideas for the Trillium Site
The IBI Group wishes to revise their rezoning application to focus on
movie production. In addition to studio space in at least three
buildings, the complex would include production workshops and special
effects labs, all of which may be linked to entertainment and proposed
commercial live/work components. Residential uses may even be included
on Main Street. Retail, service, and industrial work/live could also be
part of the revised submission. The proposal is very much a
comprehensive package and Trillium has advised that a large commercial
live/work component is necessary to subsidize the cost of providing
production studios and other industrial uses, which the applicant claims
cannot afford high rents.
- Movie Production: In addition to studios, this would include
related industries, such as workshops for set construction,
storage, studios for special effects, etc. All of these uses can
be approved under the existing M-1 as well as proposed I-2 zoning
and are supported by the Preliminary Concept Plan. Also
supportable are ancillary retail and offices tied to the production
use.
- Workshops and Storage: Buildings are proposed which supply
workshops and storage space to the adjacent communities. These are
supportable under the existing zoning and by the Preliminary
Concept Plan, providing there is no open storage.
- Retail and Service: Apart from when ancillary to industry, these
uses are limited in terms of size and location in industrial zones.
To the extent that the site is expanded to include a portion on
Main Street, the Preliminary Concept Plan would support retail and
service at this location. It may also support such uses on the
western edge of the site, in the context of the Thornton Park
mixed-use neighbourhood.
- Entertainment: Entertainment use related to the production of
movies, for example virtual reality as a spin-off from a special
effects studio, may be supportable. Separate non-related
entertainment (such as the movie theatres which have been
suggested) would not be supported by the Preliminary Concept Plan,
except within the area included in the Thornton Park Neighbourhood.
- Industrial Work/Live: As noted above, the Preliminary Concept Plan
supports this use in modest proportions.
- Residential: Residential as a separate use on industrial land, is
not supported. This is consistent with Council's direction at the
outset of the planning overview. Residential on Main Street is
permitted under the existing zoning and would be considered here,
if the site is expanded to include Main Street frontage.
- Commercial Live/Work: This is viewed as a residential use, which
is well provided for under the existing "homecraft" provisions.
The Preliminary Concept Plan would not support commercial live/work
as a separate use, except in the area along Main Street.
- Commercial Work/Live: This use differs from commercial live/work
in permitting higher impacts such as employees and customers.
While staff are in the process of creating opportunities for this
use in commercial and heritage zones, a modest component of
commercial work/live may be appropriate on the Trillium site,
particularly if work activities are related to on-site industry,
such as the proposed movie production. Before any decisions are
made, this use would require careful analysis in terms of specific
impacts, market demand, and rationale for using this site.
- Artist Live/Work: Low-impact artist live/work is not supported, as
there are plenty of opportunities in the city and in the adjacent
Brewery Creek Area. High-impact artist live/work is permitted in
existing buildings, but only if rental in the industrial zones, and
is supportable if the enlargement of the site incorporates suitable
buildings.
Urban Design
Urban design considerations on this site are independent from the
ultimate mixture of uses but are critical because of the location
adjacent to residential communities. A tailored built form, public
realm, and amenity concept is vital and can not be achieved by simply
applying district zoning schedules to the site. Overall, the
development should have a denser, more urban scale than typical warehouse areas given its proximity to the Downtown and the Thornton
Park neighbourhood on Main Street. In this context, the scale of
development presented in the original submission is generally
appropriate, with mid-rise buildings strongly defining local streets in
the centre of the site and stepping down to Strathcona in the north. In
the east, buildings should be lower as they approach the park and be set
back so as not to intrude on public park use. Streets should be planted
with trees and include
grass boulevards and other quality public realm treatment, especially
adjacent to any work/live developments. Active uses should be
incorporated at street level to provide pedestrian interest and
security. Strong links should be developed between Strathcona and the
new park and False Creek. Where appropriate, these links should
incorporate greenways.
If Main Street frontage is added to the site and a mixed-use concept is
proposed, urban design issues become even more important, as this would
be a key area in the proposed Thornton Park neighbourhood. Heritage
buildings may be involved and must be carefully considered, consistent
with heritage policies.
Public Amenities
The developer is expected to provide public amenities and open spaces in
accordance to the proposed use and increase in intensity of development.
To the extent that there are residents on the site, amenities would have
to be provided to serve their needs. The types and value of amenities
would be determined after an assessment of the expected, on-site
population.
Living units, even if tied to work space, would represent new housing
capacity. A component of non-market housing would normally be pursued
on a large site like Trillium's if new housing capacity is created. A
decision would have to be made as to whether this would be an affordable
component on-site or money to be used elsewhere, for example to upgrade
or replace the SROs on Main Street.
Affordable housing and other public requirements will be explored in
greater detail as part of the completion of the Concept Plan. Provision
of amenities for an increased number of industrial workers also needs to
be considered. While this could be difficult when dealing with more
traditional industries which have limited ability to pay, public
requirements could be negotiated as part of a high-amenity industrial
park, or as part of the mixed-use package Trillium is now proposing.
Next Steps
The rezoning application, either as submitted or as revised, will be
further evaluated concurrent with the development of the final concept
plan. A detailed rezoning report would be prepared as soon as possible,
assuming that the application is consistent with Council direction.
CONCLUSION
In accordance with the False Creek Flats Preliminary Concept Plan,
low-impact industrial use is supported, which could also include a
modest component of industrial work/live. Other revisions which are
currently being proposed by the applicant will be assessed, as discussed
in this report and as part of the preparation of the final concept plan.
If the current submission is not revised, staff will proceed with a
report to Council which will recommend refusal.
* * *