LATE DISTRIBUTION P5
FOR COUNCIL JUNE 25, 1996
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: June 12, 1996
Dept. File No. 95013 TWP
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Rezoning of 705 West Broadway (Holiday Inn)
RECOMMENDATION
THAT the application by C. Brook Development Planning Inc., to
rezone 705 West Broadway (Lot A, Block 338, D.L. 526, Plan 11309)
from C-3A to CD-1, to permit a multiple dwelling and community
space on the Holiday Inn parking lot, in addition to the existing
hotel currently exceeding the maximum C-3A density of 3.0 FSR, be
referred to a Public Hearing, together with:
(i) plans received April 28, 1995;
(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, including a consequential amendment to the Sign By-law to
establish regulations for this CD-1 in accordance with Schedule "B"
(C-3A).
CONSIDERATION
THAT a $875,000 payment in lieu of community space be made by the
applicant to the Park Board instead of providing on-site community
space, condition (c)(v) be deleted and the maximum density on Site
B be reduced to 2.35 FSR.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
CITY MANAGER'S COMMENTS
Noting the Park Board and staff concerns about unprogrammed
recreation space, the City Manager suggests that Council should be
concerned about future pressure to provide services in the
facility, or alternatively, that the community space will
effectively become a rental assembly area.
Accordingly, the City Manager RECOMMENDS approval of the
alternative submitted for consideration.
COUNCIL POLICY
On June 22, 1995, Council approved the following resolution:
THAT in considering a rezoning application for 705 West Broadway to
accommodate the existing hotel and additional development, Planning
staff should give a high priority to the combined public benefits
of West 8th Avenue residential development and a public amenity,
and disregard the increased non-conformity of the hotel.
PURPOSE AND SUMMARY
A report on the density aspect of this application was considered by
Council on June 22, 1995. In that report staff sought direction from
Council on whether the normal City floor space bonusing evaluation
should be applied to the proposed increase in FSR on this site. Council
concluded it should not apply and directed staff to set aside the
density issue, which is summarized below. Therefore, this report
assesses the CD-1 rezoning application to add a 4-storey multiple
dwelling and a community meeting/recreation facility on the parking lot
of the Holiday Inn, in terms of the desirability of the uses and built
form proposed.
DISCUSSION
Use The range of commercial uses proposed for the hotel site reflects
uses available in the C-3A District and would be appropriate to retain
in the CD-1 By-law. For the parking lot site a mix of multiple
dwelling, office, and a variety of commercial, cultural and recreational
uses (including community centre) are proposed.
The proposed multiple dwelling use is consistent with other sites along
West 8th Avenue in this and the adjoining blocks. A community
recreation and meeting space is comparable to conditional uses, such as
community centre, which are typical of residential districts. These
uses are usually supported if traffic, parking, noise and privacy
impacts on adjacent sites can be minimized. However, staff do not
support inclusion of office or commercial uses or commercial types of
cultural and recreational uses on the parking lot site as there is no
identified need to expand opportunities for these uses in this area;
this site is already over its permitted floor space for commercial use
under C-3A and there may be conflicts with residential development to
the north. Staff also note that Community Centre use is associated with
Neighbourhood House in the Zoning and Development By-law and would offer
greater flexibility for use of that space.
Community Facilities A Community Space Needs Survey of the Fairview
Slopes (on file with City Clerk) conducted by a consultant to the
applicant, in consultation with Planning and Park Board staff, obtained
a statistically reliable sample (Ò5%, 95% of times) of 414 written
responses, which support the following conclusions:
(i) among a range of possible community service choices, recreation
and cultural services and libraries need most improvement;
(ii) three nearly equal barriers to leisure time activities were
noted as
- lack of information about availability (28%),
- lack of nearby facilities (26%), and
- lack of time or interest (25%).
Lack of information was the key issue for residents under 25 and
those in the area for less than 3 years. Lack of nearby
facilities was more important for other age groups and long-time
residents. Money was a barrier for 15% of residents;
(iii) respondents wishing to try new leisure activities (60%) were
evenly split on whether activities are close enough (34%) or too
far away (33%);
(iv) there is substantial unmet demand among adults for
recreation/sports and adult education and, to a lesser extent,
fitness and social activities;
(v) 74% of residents believe there is a need for more leisure
opportunities in the area;
(vi) 80% believe West 8th Avenue and Heather Street is a good
location for a community facility;
(vii) a communication strategy is needed to inform the many new
residents of any new facilities;
(viii) the greatest overall demand for space is for either
multi-purpose activity space (62%) or a library (59%).
The Vancouver Public Library Board does not support a new branch library
in this location and the Park Board does not wish to operate a 565 m2
(6,082 sq. ft.) satellite community centre as was originally proposed by
the applicant. Rather, the applicant now proposes to provide a 232.3 m2
(2,500 sq. ft.) community multi-purpose space with a $500,000 annuity to
provide annual operating funds. However, the annual interest generated
from the annuity would be insufficient to provide for staff programming.
Without staff programming, the centre would rely on volunteer
co-ordination. The public benefit of this could be very limited if
community effort is not sustained over time. In the long run, the owner
could benefit more from the space than the community if it is rented out
as assembly space. The Park Board staff do not oppose this proposal,
but state that a cash-in-lieu payment of $875,000 to the Park Board
would be preferable. These funds would be used to upgrade existing
community facilities, the closest of which would be False Creek
Community Centre.
Density As Council has set aside the density issue in the interest of
hearing a proposal to replace the unattractive parking lot with housing
and provide a local community space, staff have disregarded the question
of increased non-conformity, and present the following summary for
information.
The Holiday Inn was approved in 1972 with a density currently calculated
at 3.36 FSR on the site extending from West 8th Avenue to West Broadway.
The northerly portion of the site fronting West 8th Avenue is developed
with surface parking that is surplus to the needs of the hotel. At the
time, the C-3 zoning on the West Broadway frontage permitted a maximum
FSR of 5.0 FSR, and the C-2 zoning of the West 8th Avenue frontage
permitted 3.0 FSR. The
hotel achieved its current density by utilizing development potential
from both parts of the site. The C-2 and C-3 Districts became C-3A in
1975. The most significant change was a reduction in permitted FSR in
C-3A to a maximum of 3.0. This made the existing hotel development
legally non-conforming.
If the site could be subdivided to create northerly and southerly
parcels without providing the normal 6.0 m (20 ft.) east-west lane, the
rezoning proposal would result in the parking lot site developed to a
density of 2.5 FSR while the portion of the site fronting West Broadway
would have a density of 5.97 FSR, which would dramatically increase the
existing non-conformity. Therefore, subdivision approval would be
highly unlikely without rezoning.
A similar nearby site at 777 West Broadway and 2440 Willow Street was
rezoned from C-3A to CD-1 in 1986, permitting a transfer of density from
the Willow Street portion to the Broadway portion. While increasing the
density on the West Broadway frontage to 4.85 FSR, the 1.14 FSR
permitted for a 4-storey multiple dwelling adjacent to West 8th Avenue
resulted in a combined density of 3.0 FSR, equivalent to the maximum
density permitted under C-3A. This compares with a proposed combined
density of 4.5 FSR for the subject rezoning.
Form Although a residential development is preferable from an urban
design perspective to a surface parking lot on this site, four key form
issues arise:
1. The five-level scale of the stepped four-storey multiple
dwelling exceeds the generally two-storey scale (7.6 m or 25
ft.) of townhouses fronting the north side of West 8th Avenue.
To eliminate the visual impact of the parking lot, two-storey
townhouses would be adequate. However, the C-3A district along
the south side of West 8th Avenue permits four or more storeys
and several nearby sites are developed to 4- and 5-storeys. The
fifth level would also be set back significantly from the West
8th Avenue facade as a stepped 4th storey.
2. The proposed location of most on-site open space is immediately
north of the tower of the hotel, limiting its usability as a
result of shadow. It would be preferable if open space could be
concentrated closer to either Heather Street or the mid-block
north-south lane for more sunlight access.
3. Planning and Park Board staff support the Urban Design Panel's
comment that the visibility of the community space for people
coming to events by private vehicle or by transit would be
significantly improved if the community space entry is located
on Heather Street near West 8th Avenue, rather than mid-block on
West 8th Avenue, adjoining the north-south lane. For market
reasons the applicant prefers the lane location and has not been
willing to develop a Heather Street concept. The Fairview
Slopes Residents Association also prefers the lane location (as
submitted) to avoid contact with casino patrons and "street
people" from West Broadway. Wheelchair access is also a
concern, but may be achieved in either location.
Access to underground parking for the hotel, multiple dwelling
and community space would be from Heather Street. A front entry
to the community space at the lane mid-block on West 8th Avenue,
could create confusion about finding the parking entry. This
could encourage community space users to park on West 8th
Avenue.
4. The West Broadway pedestrian environment would benefit
substantially from eliminating the porte-cochere which is now
used by buses and taxis. One sidewalk crossing could also be
eliminated. A very unattractive blank front wall could be
broken up with commercial frontage of interest to pedestrians.
However, Engineering staff oppose deletion of the current hotel
porte-cochere as there is inadequate sidewalk width to provide a
lay-by, and future transit systems on Broadway preclude long
term use of the curb lane for hotel buses or taxis.
Consequently, and despite the pedestrian insensitivity of the
current hotel configuration along Broadway, staff conclude that
the porte-cochere will have to remain.
Parking The existing 62 surface parking spaces are fully utilized
during weekdays and two-thirds full during evenings. These vehicles
would be displaced, but hotel demand can be accommodated in the existing
114 underground and 178 above-grade spaces in the hotel. As the hotel
proposes to utilize the community space when not in use by the
community, parking must be provided for that space at the standard
applicable for a hall, as shown in Appendix A.
CONCLUSION
Planning staff conclude that a stepped 4-storey multiple dwelling and
community space at a maximum density of 2.5 FSR on the Holiday Inn
parking lot would benefit the area from an urban design perspective,
provide desirable residential accommodation and allow the community to
initiate recreational, cultural and social activities closer to home.
Recreation benefits may be very limited without staff programming.
Relocation of the community facility to the Heather Street frontage
should be further explored. Staff, therefore, recommend approval
subject to conditions in Appendix B, but present the Park Board
recommendation of a direct payment to the Park Board in lieu of the
proposed community space (with Site B density reduced to 2.35 FSR) for
Council's consideration.
* * *
APPENDIX A
DRAFT CD-1 BY-LAW PROVISIONS
______________________________
Use
- Site A:
Hotel,
Retail Store,
General Office,
Restaurant,
Hall (including Casino),
Swimming Pool,
Theatre,
Barber Shop or Beauty Salon,
Common Use Amenity Areas,
Parking Garage, and
Accessory Uses;
- Site B:
Multiple dwelling,
Community Centre or Neighbourhood House,
Hall (not including Casino), and
Accessory uses.
Density
- Site A:
A maximum density of 6.0 FSR based on calculation
provisions of the C-3A District Schedule;
- Site B:
A maximum density of 2.35 FSR for residential uses,
based on calculation provisions of the FM-1 District
Schedule, and
A maximum density of 0.15 FSR for community centre or
hall uses, based on calculation provisions of the FM-1
District Schedule.
Height
- A maximum of 50 m (164 ft.) on Site A. - A maximum of 18 m (59 ft.) or 4 storeys on Site B.
Parking
- Per Parking By-law (FM-1 standards), except that a minimum of
280 parking spaces must be retained for the hotel and one
space for each 9.3 m2 of floor area in the community space,
which will be jointly used as a Community
Centre/Neighbourhood House and a Hall.
APPENDIX B
Page 1 of 2
PROPOSED CONDITIONS OF APPROVAL
(a) THAT the proposed form of development be approved by Council in
principle, generally as prepared by Davidson Yuen Simpson,
Architects, and stamped "Received City Planning Department, April
28, 1995," 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) provision of detailed design of parking layout to determine
acceptable geometric of connections to lower residential
parking level;
(ii) clarification of retention of all existing hotel parking
(current development permit indicates a requirement of 280
spaces);
(iii) presentation of a full site planning exploration of options
to locate the proposed community space with the preferred
principal access from Heather Street near West 8th Avenue;
(iv) design development to entry areas of townhouses to better
define private spaces (sightlines to be maintained); and
(v) redistribution of open space to take greater advantage of
sunlight access.
(c) THAT, prior to enactment of the CD-1 By-law, the registered owner
shall:
(i) obtain approval and registration of a subdivision plan for
the dedication of a 10' x 10' corner cut-off at the western
side of the site, for lane purposes;
(ii) make arrangements to the satisfaction of the City Engineer
for provision of street trees adjacent the site;
APPENDIX B
Page 2 of 2
(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; and
(v) register an option to lease (with the form of lease
attached) by which the Owner of Site B at his own cost must
construct, fit, finish and equip at least 2,500 sq. ft. of
indoor space including a kitchen and washrooms and lease
same together with required parking to the City for 2000
years at nominal rent. If the property is subdivided by
strata plan, the leased area shall be common property. The
Owner shall pay the City $500,000 the annual interest from
which will be used to defray the costs of operating the
space. The agreement shall be drawn to the satisfaction of
the Directors of Social Planning, and Legal Services and be
registered in priority over all charges which may defeat or
delay these rights.
The Owner has proposed this community space in collaboration
with the Fairview Slopes Residents Association which feels
it can put the space to uses for the benefit of the
community. Use of this space by the Association shall be
the subject of a separate report to Council.
APPENDIX C
Eight (8) pages of plans.
APPENDIX D
Page 1 of 2
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This .49 ha (1.2 ac) site is
comprised of one parcel extending from the south side of West 8th Avenue
to the north side of West Broadway. The site has a frontage of 61 m
(200 ft.) on West Broadway, a 70 m (230 ft.) frontage on West 8th Avenue
and a flankage of 76.2 m (249 ft.) along Heather Street.
Proposed Development The owner has applied for a CD-1 rezoning to
permit development of the surface parking area with a stepped
four-storey multiple dwelling to a density of 2.5 FSR on a new parcel to
be created through subdivision, and retention of the existing hotel at
5.97 FSR on the residual parcel (also to be created through
subdivision). This multiple dwelling would have two-storey townhouse
type units at-grade along West 8th Avenue. The combined density on the
whole site would be 4.5 FSR.
Three benefits are proposed. Firstly, the parking lot would be replaced
by a development which would improve the West 8th Avenue streetscape.
Secondly, a 232 m2 (2,500 sq. ft.) community space would be dedicated to
the City to be leased to the Fairview Slopes Residents Association and
made available for neighbourhood use. The applicant also proposes a
lay-by along Broadway to accommodate buses and taxis, permitting the
porte-cochere along the Broadway frontage to be replaced by commercial
premises (not supported by Engineering staff).
Public Input A notification letter was sent to nearby property owners
on June 30, 1995 and rezoning information signs were posted on the site
on June 5, 1995. Six phone calls were received from residents and three
people came to City Hall to discuss the plans. Concerns focused on the
adequacy of handicapped access and potential friction with casino
patrons and West Broadway "street people". No letters expressing
opposition were received from nearby residents. The Fairview Slopes
Residents Association strongly supports the proposed rezoning and is
opposed to a payment-in-lieu to the Park Board.
These issues are addressed in the report under the heading of Form.
Comments of the City Engineer The City Engineer has no objection to the
proposed rezoning, provided that a lay-by is not approved and the
applicant complies with conditions as shown in Appendix B.
APPENDIX D
Page 2 of 2
Park Board Staff Comments A 565 m2 satellite community centre is not
supported because it could not be operationally efficient. A 232 m2
free-standing local community facility, without Park Board involvement,
would not be opposed, though it may provide limited benefits, since the
$500,000 annuity would provide $30,000 -$35,000 per year to cover
utilities, maintenance, repairs, janitorial service and building
supervision but not programming or advertising. Consequently, Park
Board staff recommend that the $375,000 construction cost and $500,000
annuity instead be contributed to the Park Board to be used to upgrade
existing community facilities, including the False Creek Community
Centre to benefit a broader community. This matter will be brought to
the attention of the Park Board prior to Council's consideration of this
report.
Urban Design Panel Comment The Urban Design Panel reviewed this
proposal on September 13, 1995 and supports the proposed use, density
and form of development noting some concerns about the form of
development, particularly with respect to the location of the proposed
community space. (See Minutes, Appendix E)
Public Benefit This rezoning would result in provision of a local
community space requiring no public funding and an improved 8th Avenue
streetscape through elimination of the surface parking area.
ENVIRONMENTAL IMPLICATIONS
Nearby access to transit and commercial services may reduce dependence
of new residents on use of automobiles. Fairview Slopes residents could
reduce travel time and vehicle use for access to community events and
some recreational activities.
SOCIAL IMPLICATIONS
Accommodating local community functions and some recreational activities
closer to homes of Fairview Slopes residents offers a social benefit
which may contribute to the sense of community in that area. There are
no implications with respect to the Vancouver Children's Policy or
Statement of Children's Entitlements.
COMMENTS OF THE APPLICANT
The applicant has been provided with a copy of this report and has
provided the comments attached as Appendix F (or has provided the
following comments).
Appendix E
Urban Design Panel Minutes of September 13, 1995.
APPENDIX F
APPLICANT'S COMMENTS - Letter dated June 17, 1996 from Brook Development
Planning Inc.
APPENDIX G
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 705 West Broadway
Legal Description Lot A; Block 338; D.L. 526; Plan 11309
Applicant C. Brook
Architect D. Stout (Davidson Yuen Simpson Architects)
Property Owner Beaconsfield Holdings Ltd.
Developer Beaconsfield Holdings Ltd.
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 4 970 m2 (53,400 sq. ft.) - 4 965 m2 (53,350 sq. ft.)
DEVELOPMENT STATISTICS
RECOMMENDED
DEVELOPMENT PERMITTED PROPOSED DEVELOPMENT DEVELOPMENT (if
UNDER EXISTING ZONING different than
proposed)
ZONING C-3A CD-1
USES: Site A (Broadway) Commercial, Multiple Site A: Hotel/Retail Store/ Site A: Same
Dwelling General Office/Restaurant/
Casino/Swimming Pool/Theatre/
Barber Shop or Beauty Salon/
Common Use Amenity Areas/
Parking Garage/Accessory Uses
Site B (8th Avenue) Commercial, Multiple Site B: Multiple Dwelling/ Site B: Multiple
Dwelling Cultural and Recreational Dwelling/
Uses/School - Arts or Community Centre
Self-Improvement/School - Hall
Business/General Office/ Accessory Uses
Common Use Amenity Areas/
Parking Garage/Accessory Uses
MAX. FLOOR SPACE RATIO 3.0/3.0 6.0/2.5
MAXIMUM HEIGHT 50 m (30-120 ft.) 50 m (164 ft.)/
18 m ( 59 ft.)
MAX. NO. OF STOREYS 3 - 12 4
PARKING SPACES 292 (280 required) Per FM-1 (Parking
By-law)