P4
POLICY REPORT
URBAN STRUCTURE
Date: June 12, 1996
Dept. File No. PN
TO: Vancouver City Council
FROM: Director of City Plans, in consultation with
Director of Land Use and Development
SUBJECT: Proposed I-2 Light Industrial Zoning
RECOMMENDATION
A. THAT the Director of Land Use and Development be instructed to
make application to amend the Zoning and Development By-law
to:
(i) create a new I-2 District Schedule generally in
accordance with Appendix A;
(ii) amend other industrial District Schedules, the C-7 and
C-8 Districts Schedule, and other sections of the
Zoning and Development By-law generally in accordance
with Appendix B;
(iii) amend the CD-1 (249) Still Creek By-law generally in
accordance with Appendix C; and
(iv) repeal the CD-1 (6) 1300-1598 S.E. Marine Drive and
CD-1 (166) 1570 Kootenay Street By-laws.
FURTHER THAT the Director of Land Use and Development be
instructed to make application to rezone to I-2, the areas
generally shown as shaded on Figure 1 that are now zoned M-1,
M-2, CD-1 (6) 1300-1598 S.E. Marine Drive, and CD-1 (166) 1570
Kootenay Street.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-laws for consideration at Public
Hearing, including amendments to:
(i) the Parking By-law to 1) apply the regulations
pertaining to the M-1 District to the I-2 District and
2) include "Work Shop" as a service use in Sections
4.2.5.7, 5.2.4, and 6.2.5.1 of the Parking By-law; and
(ii) the Sign By-law to apply regulations pertaining to the
M-1 District to the I-2 District and remove reference
to the CD-1 (6) and CD-1 (166) Districts;
AND FURTHER THAT the applications and by-laws be referred to
Public Hearing.
B. THAT, subject to approval of the rezoning at a Public Hearing,
the Subdivision By-law be amended to apply the regulations
pertaining to the M-1 District to the I-2 District;
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.
C. THAT, if approved at Public Hearing, the by-law be accompanied
at time of enactment by:
(i) an amendment to the Noise Control By-law to include the
I-2 District and remove the CD-1 (6) and CD-1 (166)
Districts from Schedule A: Activity Zone; and
(ii) an amendment to the License By-law to include "Work
Shop" in Schedule A and apply fees as for "Repair
Shop".
D. THAT the Director of Land Use and Development be instructed to
permit, on a trial basis in the Mount Pleasant I-1 Industrial
District, manufacturing uses in buildings existing as of (date
of enactment) without requiring additional parking up to a
limit of four spaces exempted per 15.24 m (50 ft.) of
frontage.
AND FURTHER THAT the General Manager of Engineering Services
be instructed to report back to Council on the impacts of the
parking pilot project after a period of one year to recommend
further course of action.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A,
B, C and D.
COUNCIL POLICY
On March 14, 1995, Council adopted the Industrial Lands Strategy, which
seeks to retain most of the city's existing industrial land base for
industry and service businesses in order to meet the needs of
city-serving, city-oriented, and port/river related industry. Council
also approved a work program for updating industrial district schedules.
On June 6, 1995, Council adopted CityPlan: Directions for Vancouver as a
broad vision for the city. Included in CityPlan, are directions to
increase job diversity, concentrate major job growth in the downtown,
maintain industrial lands, and focus other job growth in neighbourhood
centres. CityPlan directions also include a commitment "to make sure
decisions about increasing retail space in the city support the creation
of neighbourhood centres, strengthen the downtown, and protect
industrial land."
On June 6, 1995, Council endorsed the Livable Region Strategic Plan
objectives to protect the GVRD Green Zone, build Complete Communities,
achieve a compact Metropolitan Region, and increase transportation
choice.
PURPOSE AND SUMMARY
This report recommends a new I-2 light industrial district schedule and
consequential amendments to other industrial district schedules
(see Appendices A, B and C). This report also seeks Council approval to
rezone to I-2 the industrial lands shown as the shaded areas in Figure
1. The areas proposed for rezoning include False Creek Flats, Clark
Drive, Grandview/Boundary, and Marine Drive north of Kent Avenue. The
areas along the Burrard Waterfront and the Fraser River would remain
zoned M-2, for water-dependent and heavy industrial uses.
The proposed I-2 district schedule aims to better meet the needs of
contemporary industry while improving compatibility with nearby
residential districts. The I-2 district schedule differs from the more
traditional M-1 and M-2 district schedules in a number of ways:
- The maximum floor space ratio is increased from 1 FSR to 3 FSR for
utility and communication uses, wholesale uses, and service
industrial uses such as laboratories, cleaning plants, production
studios, and repair shops;
- Software manufacturing is recognized as a manufacturing use;
Map
- Vehicle dealers are no longer limited to 1 000 m2 and are no longer
required to locate on an arterial street and provide repair
services on site;
- The allowable General Office space is increased from 25 percent to
33 1/3 percent of total floor area;
- The outright height of a building is reduced from 30.5 m (100 ft.)
to 18.3 m (60 ft.), with provisions for a conditional increase up
to 30.5 m (100 ft.);
- The maximum floor space ratio is reduced from 5 FSR to 3 FSR for
manufacturing uses, transportation and storage uses, and
Wholesaling - Class A;
- Conditions of use are added to control the storage of potentially
harmful or dangerous goods; and
- A number of heavy industrial uses, such as sawmills and pulp mills,
now permitted in the M-2 district schedule as conditional uses, are
not permitted in the I-2 district schedule.
Some of the above changes are also proposed as amendments to the Mount
Pleasant I-1 and Still Creek CD-1 (249) district schedules. Other
proposals include separate definitions for "Paper Manufacturing" and
"Pulp Manufacturing", and separate definitions for "Work Shop" and
"Works Yard".
In addition to the above initiatives, staff are proposing a one-year
parking pilot project to facilitate change of use in inner-city
industrial areas. For the Mount Pleasant I-1 industrial area, staff are
proposing to permit greater flexibility in parking standards for changes
of use to manufacturing in buildings having uses with lesser parking
requirements (e.g. warehouse). The results of the pilot project will be
used to consider amendments to parking regulations.
BACKGROUND
On March 14, 1995, Council adopted the Industrial Lands Strategy and
approved a work program to update industrial zoning to meet the needs of
contemporary industry. Some industrial zoning changes are proposed in
this report.
Council has also approved a number of industry-related programs which
are now underway:
- A preliminary concept plan for False Creek Flats was approved by
Council on May 28, 1996. The main objective of this plan is to
preserve the Flats for city-serving, Downtown, Port, and
transportation related industry. The plan recommends that the Flats
be included in the proposed I-2 zoning initiative;
- The City transportation planning program is reviewing provisions
for goods movement, including adequacy and impact of designated
truck routes in the city;
- Rezonings are under discussion for the Trillium property in False
Creek Flats and the Mclean property in the Grandview/Boundary area.
Proposals for these areas involve a combination of industrial,
commercial, and industrial work/live uses.
In addition, Council has referred to Public Hearing two industry-related
policy initiatives:
- It is proposed that artist live/work studio developments in
industrial areas be restricted to studios which are rentals in
existing buildings and involve industrial processes or have noise
impacts. This proposal applies to all industrial districts except
the Brewery Creek IC-3 district.
- It is proposed that (1) Wholesale Club be defined in the Zoning and
Development By-law as a retail use and (2) accessory retailing in
conjunction with wholesaling be made a conditional approval use in
industrial districts. Floor area for retail uses is now limited to
1 000 m 2 on any site in industrial districts.
PUBLIC CONSULTATION PROCESS
On February 6, 1996, planning staff released a discussion paper inviting
public comment on a proposed new I-2 industrial district schedule. A
copy of the discussion paper is included in Appendix G (limited
distribution - on file in the City Clerk's Office). The discussion paper
was distributed to 1,400 industrial property owners, 3,000 business
owners, and to various land investors, neighbourhood groups, and unions.
A total of 25 written submissions were received. A copy of all written
submissions is also included in Appendix G (limited distribution - on
file in the City Clerk's Office).
Overall, the comments are supportive of the changes proposed in the
discussion paper. In particular, the proposal to increase provisions for
service industrial uses is widely supported.
A description of issues raised and staff responses are attached as
Appendix F. In summary, concerns with respect to outright and
conditional uses, as well as concerns related to conditions of use, have
largely been addressed through revisions to the proposed I-2 schedule.
Several suggestions for the use of industrial land for non-industrial
uses such as "big box retailing" and a broad range of office uses are
not recommended.
DISCUSSION
The overall objective of the Industrial Lands Strategy is to retain most
of the city's industrial land base for industrial and service uses.
Retaining land for industry also meets a number of objectives approved
in CityPlan and the Livable Region Strategic Plan. It reduces the need
for travel by providing jobs and services close to workers and customers
in the city; contributes to the economic vitality of the city; and
improves the regional jobs-housing balance by maintaining a greater
variety of jobs for city residents.
Another objective of CityPlan is to create neighbourhood centres which
provide shops and neighbourhood-based services close to home. Therefore,
an increase in retail uses is not recommended for industrial districts.
CityPlan also seeks to locate jobs in areas that are well-served by
transit or are close to where people live. Therefore, while the
Industrial Lands Strategy seeks to increase employment in industrial
areas, the majority of job growth, including office jobs, will occur
Downtown and in neighbourhood centres.
In support of the above objectives, this report proposes a number of
initiatives to update industrial zoning in Vancouver and increase
opportunities for modern industry. These initiatives also address many
of the concerns raised during the public process leading to adoption of
the Industrial Lands Strategy. The report makes the following proposals:
1. Expand provisions for service industrial uses;
2. Create new definitions to recognize types of contemporary industry;
3. Increase the amount of office space allowed in industrial
developments;
4. Reduce height and bulk provisions to ensure that new industrial
development is more compatible with nearby residential areas;
5. Replace "heavy" industrial zoning with "light" industrial zoning in
some areas; and
6. Facilitate "change of use" in inner-city industrial areas by
allowing greater flexibility in reducing parking requirements, on a
trial basis, in the Mount Pleasant I-1 industrial district.
There are presently several industrial district schedules covering the
industrial lands in the City, including:
M-2: Heavy industrial uses, water and port-related uses;
M-1: Light industry;
M-1A: Light industry zoning for city-owned land in the south-east
corner of the city;
I-1: Light industry zoning for Mount Pleasant neighbourhood;
IC-1, IC-2: Mix of light industry and commercial;
IC-3 (Brewery Creek): Light industry, commercial, and special
provisions to encourage artist live/work studios.
Still Creek CD-1: Industrial zoning based on M-2, with provisions
for the protection of Still Creek; and
Port CD-1 (east of Victoria Drive): Heavy industry (M-2) with
height restrictions.
To implement the above initiatives and broaden the range of industrial
district schedules, staff are proposing a new I-2 light industrial
schedule. Some of the changes are also proposed as amendments to the
Mount Pleasant I-1 and Still Creek CD-1 district schedules. It is
further proposed that industrial areas no longer required for heavy
industry and located near residential areas, shown as shaded on Figure
1, be rezoned from M-1 and M-2 to I-2. The proposed I-2 district
schedule is attached as Appendix A. Other amendments to the Zoning and
Development By-law are in Appendices B and C.
The City now has 1,700 acres of industrial land zoned mostly M-2. If the
proposed I-2 rezoning is approved, the City will have about 1,000 acres
zoned I-2, 500 acres zoned M-2, and 200 acres zoned I-1, IC-1, IC-2,
IC-3, or M-1A.
There are a number of reasons for proposing a new schedule. Unlike the
"M" zones, which focus on manufacturing, the "I" zones better reflect
the broad range of industrial uses proposed. By contrast, it is proposed
that the Port and Fraser River industrial areas remain zoned M-2, for
water-dependent and heavy industry.
The proposed I-2 district schedule differs from the existing I-1
schedule in one fundamental area. Although both are intended as light
industrial schedules, the I-2 schedule permits outdoor activity as an
outright use whereas the I-1 schedule does not. In this respect, the I-2
schedule is more like the M-1 and M-2 schedules. However, unlike the M-2
schedule, the I-2 schedule controls the storage of hazardous goods and
does not permit certain "heavy" industrial uses. Differences between I-2 and the M-1 and M-2 schedules are shown in Appendixes D and E,
respectively.
The following sections provide details of the recommended by-law
revisions. References to appropriate appendices are also provided.
1. Expand provisions for service industrial uses.
Currently, the total floor space ratio for all service uses is limited
to 1 FSR in industrial areas. This means, for example, that a research
laboratory which now utilizes 1 FSR cannot expand on the same site.
Also, no other service use may locate on the same site if the 1 FSR
limit has been reached.
To expand the definition of industry, staff are proposing to increase
the maximum floor area for uses that are compatible with industry. This
will also help intensify the use of industrial land by encouraging a
greater mix of traditional and contemporary industrial uses on the same
site.
a) Service Industrial Uses
Service industrial uses, such as cleaning plants, laboratories,
production studios, and repair shops, provide services to businesses and
residents in the city. These services are well-suited to an industrial
location because they provide mainly business services, can be
incompatible with commercial and residential areas, or require space
that is not readily available in commercial areas.
Action: Proposed By-law Revisions [Appendix A, Section 4.7.1(a-b)]
It is recommended that the maximum allowable floor area for the
following service uses be increased to 3 FSR in the I-1, I-2, and
Still Creek CD-1 district schedules: Laboratory, Laundry or
Cleaning Plant, Production Studio, Repair Shop - Class A, and Work
Shop.
Other service uses, while suitable for industrial areas, could be
incompatible with industry if permitted the full floor space
provisions. It is recommended that the following service uses,
which have a stronger retail component, each be permitted a maximum
of 1 FSR: Catering Establishment, Motor
Vehicle Repair Shop, Photofinishing or Photography Laboratory, and
Sign Painting Shop. This would allow each use to occupy up to 1 FSR
on the same site, up to a total of 3 FSR.
Staff also propose that all the above service industrial uses be made
outright uses in the I-1 and I-2 district schedules. This will
facilitate applications for a change of use.
b) Other Industrial Uses
A number of industrial uses are now limited to 1 FSR in industrial
districts, i.e. utility and communication uses, and wholesale uses other
than Wholesaling - Class A. Uses such as radiocommunication stations are
similar to production studios and are compatible with industry.
Action: Proposed By-law Revisions [Appendix A, Section 4.7.1(a)]
It is recommended that the maximum allowable floor area for utility
and communication uses, and wholesale uses be increased to 3 FSR in
the I-1, I-2, and Still Creek CD-1 district schedules.
c) Vehicle Dealer
Vehicle Dealer is defined in the By-law as a retail use for the purpose
of selling or renting motor vehicles, boats, or recreational trailers.
Compared to most other retail activity, vehicle dealers are not
compatible with pedestrian-oriented retail.
They do not sell frequently purchased goods and noise/paint fumes
associated with their repair services can be incompatible with
residential and commercial districts.
As a retail use, vehicle dealers are limited to 1 000 m2 of floor space
in industrial districts. Also, vehicle dealers are permitted only on
arterial streets and, to maintain service employment, must have at least
half of their floor space in repair services.
The 1 000 m2 limitation on retail floor area constrains vehicle dealers
and the requirement for service space can be onerous for auto rental
companies or small dealerships. To enhance retail and service activity
on the city's commercial streets, staff recommend removing obstacles for
vehicle dealers to locate in industrial districts.
Action: Proposed By-law Revisions [Appendix A, Section 4.7.1(d)]
It is proposed that vehicle dealers be permitted throughout the
I-1, I-2, and Still Creek CD-1 districts and that vehicle repair
space no longer be required. The Mount Pleasant I-1 industrial
district has smaller lots and higher density development than other
industrial areas. Consequently, staff recommend that the 1 000 m2
size limit remain in the I-1 district schedule and be removed for
the I-2 and Still Creek CD-1 district schedules.
It is proposed that Vehicle Dealer remain as a conditional use to allow
staff to review proposals for outdoor storage and display. It is also
proposed that the maximum floor area for vehicle dealers remain at
1 FSR. With full development rights, a vehicle dealer would place upward
pressure on industrial land prices.
2. Create New Definitions.
a) Paper Manufacturing
Paper manufacturing is now included in the By-law under the definition
for "Paper or Pulp Manufacturing," which is considered a "heavy"
industrial use and is permitted as a conditional use only in the M-2
district schedule.
Action: Proposed By-law Revisions [Appendix B, Page 1]
To allow for clean, small-scale manufacturing of specialty papers,
staff are proposing separate definitions for paper and pulp
manufacturing. Paper manufacturing could then be permitted in I-2
and M-2 districts while pulp manufacturing would continue to be
permitted in the M-2 district. The definition for paper
manufacturing does not distinguish between large and small scale
operations. Consequently, it is recommended that paper
manufacturing be a conditional use to allow staff to review its
suitability for a particular location.
b) Software Manufacturing
Computer software manufacturing has created some difficulties because it
is not defined in the Zoning and Development By-law.
Action: Proposed By-law Revisions [Appendix B, Page 1]
It is recommended that a definition for software manufacturing be
added which includes activities, such as copying and packaging
computer diskettes, that require space for processing, storage, and
loading. Software Manufacturing would then be permitted as an
outright manufacturing use in all industrial districts. On the
other hand, computer programming,
which requires only office space, is now permitted in
industrialdistricts as an accessory office use or as a separate
General Office use. Provisions for office space are discussed below
in section 3.
c) Work Shop
Many businesses require industrial space for activities such as
electrical, security, or audio/visual equipment maintenance and
installation. At present, these uses are accommodated under the
definition for "Works Yard or Works Shop", which is a transportation and
storage use. Because of the potential for noise associated with a "Works
Yard", these are conditional uses.
Action: Proposed By-law Revisions [Appendix B, Page 1]
It is recommended that a separate definition for "Work Shop" be
added as a service use. It is also proposed that "Work Shop" be
permitted outright and that the maximum floor space ratio be 3 FSR
in the I-1, I-2, and Still Creek CD-1 district schedules, as for
service industrial uses above. "Work Shop" would also be permitted
as a service use in all other districts that now permit "Works Yard
or Works Shop."
3. Increase the amount of office space allowed.
The City limits the amount of office space in industrial districts
because there is ample capacity for offices in commercial areas and
commercial areas are better served by transit. Also, by zoning areas
primarily for industry, industrial uses are protected from uses that can
place upward pressure on land prices. However, it is necessary to allow
some office space to meet the needs of industry.
During the public review of the Industrial Lands Strategy, participants
raised two issues regarding office space in industrial areas:
a) Accessory Space: Existing limits on floor area for accessory uses
can restrict business operations; and
b) General Office: The types of office uses and the amount of floor
area that may be allowed are too restrictive.
a) Accessory Space
Businesses frequently require space for accessory uses such as office or
retail. In M-1 and M-2 districts, accessory uses are limited to 33 1/3
percent of the floor area of the principal and accessory uses combined.
The limit in the I-1 district is 25 percent of the floor area. The
Director of Planning may permit a greater amount of floor area for
accessory uses as a conditional approval use.
The Vancouver Industry Survey, conducted by the City in 1993, showed
that businesses in industrial areas use, on average, 16 percent of their
space for office uses and 4 percent for retail uses. This 20 percent
total is close to the limit in the I-1 district schedule. Survey results
also show a trend toward increasing amounts of office space in
industrial developments.
Action: Proposed By-law Revisions [Appendix B, Page 2]
It is recommended that the amount of accessory space permitted in
the I-1 district schedule be increased from 25 percent to 33 1/3
percent of the gross floor area of the principal and accessory uses
combined. This is also the limit proposed for the I-2 district
schedule.
b) General Office
Amount of Floor Area Permitted
Some General Office uses are permitted in industrial districts as a
separate principal use. Examples of permitted general office uses
include building contractors, shipping agents, architects, engineers,
and computer programmers.
The maximum floor area for General Office is 1.0 FSR in the I-1, M-1,
and M-2 districts. In M-1 and M-2 districts, General Office is only
permitted in mixed-use developments and cannot exceed 25 percent of the
total floor area on a site.
Action: Proposed By-law Revision [Appendix A, Section 4.7.1(e)]
For the new I-2 district schedule, with a proposed maximum floor
space ratio of 3 FSR for industrial uses, staff recommend raising
the limit for General Office to 33 1/3 percent of total floor area
on a site. This will permit General Office uses to attain the 1 FSR
limit on an industrial site that is fully-developed to 3 FSR. This
change is also proposed for the Still Creek CD-1 schedule.
Office Uses Not Permitted
The industrial district schedules do not permit the following General
Office uses: accountants, lawyers, or real estate, advertising,
insurance, travel, and ticket agencies. Financial institutions and
health care offices are also not permitted.
The City has received requests to permit the above office uses in
industrial districts. In reviewing these uses, staff are concerned that
their inclusion could potentially change the industrial areas to office
districts. There is now ample provision for these sorts of office uses
in existing commercial districts. Industrial areas have commercial areas
nearby where these services can be found. Consequently, no additional
office uses are proposed for industrial districts.
The restrictions on General Office use have, however, caused some
difficulties in determining which uses are not permitted. For example,
notary publics provide legal services but they are not lawyers.
Action: Proposed By-law Revision [Appendix B, Page 2]
Staff recommend that notary public be added to the list of general
office uses not permitted in industrial districts. This amendment
would apply to the I-2 district and all other industrial districts
that do not permit offices for lawyers.
General Office as a Conditional Use
It is proposed that General Office remain as a conditional approval use.
As an outright approval use, staff would have difficulty administering
the By-law for a change of use to General Office. Cost implications are
involved since the onus would be on staff to search records to determine
whether the allowable floor area was being exceeded.
4. Reduce height and bulk provisions.
Residents living near industrial areas have expressed a desire to lower
the current height and bulk limits for new industrial development. The
M-1 and M-2 district schedules permit a maximum building height of
30.5 m (100 ft.) and a maximum floor space ratio of 5 FSR. In contrast,
nearby multi-family districts have much lower height and bulk limits,
10.7 m (35 ft.) and 1.5 FSR. Nearby commercial districts have limits of
12.2 m (40 ft.) and 3 FSR.
The only uses now permitted up to 5 FSR in M-1 and M-2 districts are
manufacturing uses, transportation and storage uses, and Wholesaling -
Class A. However, these uses rarely exceed 1 FSR in industrial areas.
Contemporary industrial buildings in the city rarely exceed 12.2 m
(40 ft.) and 2 FSR, and new industrial development is usually less than
1 FSR. Therefore, reducing the maximum height and bulk is unlikely to
constrain new industrial development.
The City has some experience with reducing height and bulk in industrial
districts. In 1988, when the Mount Pleasant industrial area was rezoned
from M-1 and M-2 to I-1, the height and bulk limits were reduced to
18.3 m (60 ft.) and 3 FSR. These provisions are working well for the
area. For example, the height limit permits full development with the
higher ceiling heights desired for industrial buildings.
In 1993, a staff review of the City's industrial areas found a
relatively small number of buildings exceeding 18.3 m (60 ft.) and/or
3 FSR. Examples are grain elevators and older, warehouse-type buildings.
Most of these buildings are located near the Burrard Waterfront, an area
proposed to remain zoned M-2, and so would not be affected by changes
proposed for the I-2 district schedule. Of the areas proposed for
rezoning to I-2, one recent development on Terminal Avenue exceeds
18.3 m and 3 FSR. This development consists of two buildings, one of
which is still under construction.
Action: Proposed By-law Revisions [Appendix A, Sections 4.3 & 4.7.1]
To make industrial districts more compatible with residential
areas, staff are proposing an outright building height of 18.3 m
(60 ft.) and an outright building bulk of 3 FSR in the I-2 and
Still Creek CD-1 district schedules. These limits are identical to
those currently found in the I-1 district schedule and are similar
to those in nearby commercial districts.
It is proposed that the I-2 and Still Creek CD-1 district schedules
allow the Director of Planning or Development Permit Board to
permit an increase in the maximum height of a building up to 30.5 m
(100 ft.). This provision would allow for taller buildings where
they are required and where impacts on residential areas are not a
factor. This would also accommodate existing buildings that exceed
18.3 m (60 ft.).
While provisions are proposed to conditionally permit a height
increase up to 30.5 m (100 ft.), no provisions are proposed to
permit an increase in the maximum FSR. Therefore, two buildings
over 3 FSR on Terminal Avenue would become legally non-conforming
and would be permitted to remain.
5. Replace "heavy" industrial zoning with "light" industrial zoning.
A new I-2 light industrial district schedule is being proposed in this
report. To complete the industrial zoning updates, 3 actions are
proposed:
a) Set conditions of use to control the storage of hazardous goods in
I-2 districts;
b) Do not permit certain "heavy" industrial uses in I-2 districts; and
c) Rezone industrial areas, adjacent to residential districts and
which no longer function for "heavy" industry, to I-2.
a) Conditions of Use
Storage of Goods and Materials Conditions of use are included in all industrial district schedules and
are found in most other district schedules. This section proposes that
the new I-2 district schedule have conditions for the storage of
hazardous goods and materials, similar to those in I-1 and M-1
districts.
The intent of the proposed conditions of use is to help make I-2 a
"light" industrial district schedule by reducing the potential for
harmful impacts from industry. In contrast, the M-2 district schedule
can permit the storage of any hazardous good or material.
The proposed conditions of use should not affect transportation and
storage uses such as rail yards or truck terminals. Also, the outdoor
storage of goods such as machinery or lumber should not be affected.
Action: Proposed By-law Revisions [Appendix A, Sections 2.3 & 3.3]
Staff are proposing that the I-2 district schedule permit the
outdoor storage of goods and materials as a conditional use. Since
a storage yard is now a conditional use in M-1 and M-2 districts,
no additional impacts are anticipated due to this condition of use.
As a conditional use, staff can require that suitable fencing be
installed.
Staff are proposing that the bulk storage of the following
hazardous goods be prohibited except in cases where they are being
trans-shipped:
explosives, fireworks, ammunition, matches, or flares;
radioactive material; and
coal tar products or derivatives.
Storage of small quantities of the above goods would, however, be
allowed. For uses other than a gasoline station, the bulk storage
of petroleum or compressed gas would be permitted as a conditional
use. Similar conditions exist in I-1 and M-1 districts.
Staff are also proposing that the bulk storage of other potentially
dangerous or noxious goods be only permitted inside buildings
unless suitably packaged for distribution. Making such storage a
conditional use will permit staff to review changes of use to
ensure that safety requirements are met. A similar condition is now
included in the I-1 district schedule. The proposed goods are
listed in Appendix A, section 3.3.2.
Objectionable Impacts
The City and the Greater Vancouver Regional District have by-laws that
set standards for regulating objectionable impacts of various
activities. Examples of such by-laws are: the Noise By-law, the Sign
By-law, the Parking By-law, the Health By-law, the Fire By-law, the
Building By-law, the Standards of Maintenance By-law, the Untidy
Premises By-law, the GVRD Air Quality Management By-law, and the GVRD
Source Control By-law.
Action: Proposed By-law Revisions [Appendix A, Sections 2.3 & 3.3]
Staff are proposing that a statement be added to the I-2 district
schedule reminding businesses of their responsibility to operate
within the standards established by City and other relevant
by-laws. This statement would be added as a non-regulatory note to
the conditions of use sections.
The following statement is proposed:
"All uses listed in Section 2.2/3.2 of this Schedule shall be
expected to be in accordance with standards established in relevant
by-laws with respect to impacts due to unsightliness, noise, glare,
odour, fumes, smoke, dust, effluent, or health or safety hazard."
b) Heavy Industrial Uses
The M-2 district schedule permits a number of conditional "heavy"
industrial uses which the City is unlikely to approve in inner-city
industrial areas. Consequently, staff are proposing that these "heavy"
industrial uses not be permitted in the I-2 district schedule. With the
exception of junk yards, staff are not aware of any uses, in the areas
proposed for rezoning to I-2, that would no longer be permitted. Staff
intend to "grandfather" any legally conforming uses brought to their
attention prior to enactment of the I-2 rezoning.
Industrial uses such as rail yards and truck terminals would continue to
be permitted in the I-2 district just as they are now in the M-1 and M-2
districts. Appendixes D and E show how the M-1 and M-2 district
schedules, respectively, would be amended in order to become the new I-2
district schedule.
Action: Proposed By-law Revisions [Appendix E, Section 3.2]
Staff are proposing that the following conditional uses not be
permitted in the I-2 district schedule:
Animal Products Processing (e.g. processing of animal hides);
Metal Products Manufacturing - Class A (e.g. raw ore foundry);
Petroleum Products or Coal Products Manufacturing (e.g. oil
refinery);
Pulp Manufacturing (e.g. pulp mill);
Wood Products Manufacturing - Class A (e.g. milling of logs);
Grain Elevator;
Stockyard;
Waste Disposal Facility (recycling depot is allowed);
Bulk Fuel Depot (e.g. selling fuel in bulk quantities); and
Junk Yard or Junk Shop (but not including existing
businesses).
It is also proposed that "Brewing or Distilling," which is
permitted outright in the M-2 schedule, be made a conditional use
in the I-2 district schedule, as is now the case in I-1 and M-1
schedules. No other outright use in the M-1 or M-2 district
schedules is proposed to become conditional.
c) Rezone to I-2
Background studies for the Industrial Lands Strategy included a review
of land use in industrial areas. While most of the city's industrial
lands are still zoned M-2, for heavy industry, heavy industrial uses
remain primarily on the Burrard Waterfront and along the Fraser River.
It is recommended that these areas be retained for "heavy" and
water-dependent industry.
Staff are proposing that industrial areas next to residential areas,
that are no longer appropriate for heavy industry, be rezoned to I-2. As
discussed in the previous section, staff are not aware of any uses other
than junk yards that would be made non-conforming as a result of
rezoning to I-2. Buildings over 18.3 m (60 ft.) and less than 30.5 m
(100 ft.) would still be permitted conditionally. However, two buildings
over 3 FSR on Terminal Avenue would become legally non-conforming.
Action: Areas Proposed for Rezoning to I-2
The following industrial areas are proposed for rezoning from M-1
and M-2 to I-2 (see Figure 1, shaded areas):
Clark Drive;
False Creek Flats;
South East False Creek "let-go" industrial area;
Grandview/Boundary;
Marine Drive, north of Kent Avenue and the CPR right-of-way;
Marine Drive, west of Granville and north of 75th Avenue;
the lands zoned M-1 on Bridgeway Street; and
the lands zoned M-1 on Semlin Drive and Wall Street.
In addition, the CD-1 area located at the north end of the Knight
Street bridge (CD-1 (6) 1300-1598 S.E. Marine Dr.) is proposed for
rezoning to I-2. This area was zoned CD-1 to facilitate land
assembly for bridge access ramps. The area now permits all
industrial uses and would be better served by the I-2 zoning.
Glenayre Electronics, has a CD-1 zone covering their existing
operation [CD-1 (166) 1570 Kootenay Street]. They recently
purchased the adjacent M-2 site (1590 Kootenay Street) in order to
expand their facilities. Their development application for the new
building, which they expect to submit in July, would then be
processed under the existing M-2 zoning. It is proposed that the
two sites be included in the rezoning to I-2 and then consolidated.
Amendments are proposed to the Still Creek CD-1 (249) By-law which
was adapted from the M-2 district schedule and is designed to
protect Still Creek from encroachment. The proposed changes are the
same as those for I-2, including provisions for service industrial
uses, office uses, and height and bulk limits. These amendments are
shown in Appendix C.
The False Creek Flats Preliminary Concept Plan recommends that the
Flats be rezoned from M-1 or M-2 to I-2. The rail and transport
facilities in the area provide an important back-up service to Port
activity on the Burrard Waterfront. Railway, trucking, and storage
uses would still be permitted as they are under M-2 zoning. Also,
the conditions of use proposed above for I-2 should not affect
goods transport. As the Flats continues to be developed for
city-serving industry, further rezoning can occur, if needed.
South East False Creek was approved as a let-go industrial area in
1990, and is about to be planned as a residential community. We
could defer any action on this area pending the outcome of a
planning review. On the other hand, during the planning process,
applications can be made for outright uses to the full height and
floor area permitted in the M-2 district. Consequently, in the
interim, staff recommend rezoning this area to I-2.
The Industrial Lands Strategy proposed new highway-oriented
retail/industrial zoning along the Marine Drive and Grandview
Highway frontages. Rezoning these areas to I-2 will not preclude a
future rezoning to other uses.
Areas to Remain Zoned M-2
Industries such as the port, grain elevators, and saw mills depend on
the water and rail access provided by the areas along the Burrard
Waterfront and the Fraser River. The Powell Street industrial area
contains heavy industry such as metal foundries and provides port backup
activities. Staff recommend that all industrial lands fronting the
Fraser River as far north as Kent Avenue, and all the Port lands and
Port back-up lands extending as far south as the lane north of Hastings
Street remain zoned M-2 and CD-1.
Hastings Street "Let-Go" Industrial Area
It is proposed that the Hastings Street "let-go" industrial area, from
Heatley Street to Semlin Drive, remain zoned M-1 until a planning
program can be completed. Staff have determined that the proposed I-2
zoning is not appropriate for the Hastings Street area because
development under the proposed I-2 zoning could preempt future rezoning
for housing.
6. Facilitate Industrial Development.
During the public consultation process, property owners, business
operators, and developers expressed concerns regarding difficulties in
developing industrial land in Vancouver. This section proposes a parking
study to help facilitate change of use. Other concerns are presented for
Council's information.
a) Parking Study
A change of use in inner-city industrial areas can be difficult. In
particular, when the use changes from storage warehouse to any other
industrial use, such as manufacturing or wholesaling, additional parking
is required. The change of use could create a higher generation of
parking demand in such cases, though the difference varies case by case.
In inner-city industrial areas, it is often difficult to provide
additional on-site parking. As a result, development permits for a
change of use may not be approved and portions of a building can remain
vacant for a period of time.
The parking standard for storage warehouse is one space for each 185 m2
(1,991 sq.ft.) of gross floor area. Parking requirements for
manufacturing, wholesaling, and service industrial uses are about
double, one space for each 93 m 2 (1,001 sq.ft.) of gross floor area. At
present, the Parking By-law exempts two spaces (or 10%, whichever is
greater) of parking for changes of use. However, without further relief
from parking requirements, otherwise desirable changes of use are being
rejected.
Action: Undertake a Parking Pilot Project
As a first step toward facilitating change of use, staff are
proposing a parking pilot project for the Mount Pleasant I-1
district. It is proposed that a change of use to manufacturing uses
be permitted on a trial basis in existing buildings without
requiring additional parking, as long as the increase in the
calculated requirement does not exceed four spaces for every 15.24
m (50 ft.) of site frontage. This would cap potential shortfalls,
theoretically, at about 80 spaces per block. Realistically,
cumulative shortfalls over time would
be much less than this. Mount Pleasant has been selected for the
pilot project because it is well served by public transit and any
parking overflows are unlikely to impact residential areas.
The increased parking exemption can be implemented through an
Administration Bulletin under section 3.2.1 (dealing with
relaxations) of the Parking By-law. Staff will monitor parking
impacts for one year and then report the results of the pilot
project to Council. Depending on the outcome, changes to the
Parking By-law could be recommended following an examination of
parking needs in other industrial areas. If the results indicate
that parking requirements should not be reduced, current parking
standards will be reinstated in the Mount Pleasant industrial area.
Any change of use permitted during the pilot project would not be
required to provide additional parking. However, subsequent changes
of use would be subject to the provisions of the Parking By-law.
b) Change of Use Process
People consulted during the preparation of this report said that the
process of obtaining approval for a change of use is often confusing and
overly time-consuming. Stakeholder groups such as NAIOP (National
Association of Industrial and Office Properties) expressed an interest
in sharing their ideas for improving the development application
process. Their concerns can be considered through the Development and
Building Regulation Review (DBRR) which is underway.
c) Business Advocate
Many of those applying for permits in the city own small businesses, are
infrequent visitors to City Hall, and are not familiar with the Zoning
By-law and other regulations. Consequently, they can become frustrated
with the permit application process.
The City has in the past had a staff person who acted as a "Business
Advocate." The responsibilities of this position included assisting
business operators through the development application process and
ensuring that regulations are applied fairly and consistently. A number
of people have requested that this service be reinstated. This request
will be referred to the Development and Building Regulation Review team.
d) Property Taxes
People commenting on the proposed industrial zoning updates continue to
remind staff that businesses in Vancouver pay a disproportionate share
of city taxes. There are also concerns that industrial tax rates are
higher than commercial tax rates, and that businesses in Vancouver pay
higher property taxes than businesses elsewhere in the Lower Mainland.
e) Comprehensive Industrial Developments
Several landowners expressed concerns that zoning schedules which limit
the amount of office and retail space on a "site" basis do not work well
on very large sites being considered for "urban industrial parks." It is
difficult to cover all possible instances or combinations of uses in an
outright schedule like I-2. For large-site redevelopment, a CD-1
rezoning may be a more appropriate way to customize uses.
CONCLUSION
The changes proposed to be referred to public hearing are intended to
make the industrial schedules work better for contemporary industry. The
effect of these changes will be to:
- Expand the definition of industry to include more service
industrial uses. This will help intensify the use of industrial
land by encouraging a greater mix of industrial and
quasi-industrial uses in the same building. It will also enable
some low-intensity uses, such as vehicle dealers, presently located
in commercial areas, to move into industrial areas and therefore
intensify the use of commercial districts;
- Clarify the provisions for office uses in industrial areas and
ensure that flexibility is applied where appropriate;
- Help ensure that new industrial development is compatible with
adjacent residential districts; and
- Explore solutions to accommodating changes of use in inner city
industrial areas by reducing parking requirements.
* * *
APPENDIX G:
1. Discussion Paper on Updating Industrial Zoning
2. Comments on Proposed Industrial Zoning Changes
(Limited Distribution - on file in the City Clerk's Office)