P1
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: October 17, 1996
Dept. File No. 96001 TWP
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Text Amendment - 555 West 12th Avenue (City Square)
RECOMMENDATION
A. THAT the application by Moodie Consultants, to amend CD-1
By-law No. 6072 for City Square Shopping Centre (Lot 4,
except part in Plan LMP1503, Block 380, District Lot 526, Plan
21466) to permit a broader range of retail, commercial service
and cultural/recreational uses, be referred to a Public
Hearing, together with:
(i) draft CD-1 By-law amendments, generally as contained
in Appendix A; and
(ii) the recommendation of the Director of Land Use and
Development to approve the application.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary CD-1 Amendment By-law for consideration
at Public Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the above.
COUNCIL POLICY
No specific Council Policy affects the proposed text amendment.
PURPOSE AND SUMMARY
This report assesses an application to amend the text of CD-1 By-law No.
6072 to permit a broader range of retail, commercial service and
cultural/recreational uses which may be approved in City Square. No
additional floor space is planned. Staff support the proposed uses but
recommend a limit on the extent of internal re-allocations of floorspace
to uses having high parking requirements. A maximum 10% deficit in
required parking over the current fixed supply is proposed as the
appropriate mechanism to achieve this.
MAP
DISCUSSION
Currently Permitted Uses The mixed use CD-1 District containing City
Square resulted from a rezoning from RT-2 in 1987. The mix of uses
approved at that time, listed in Appendix B, includes a range of office,
retail, service and cultural/recreational uses which is narrower than
most commercial districts, other than C-1 Local Commercial Districts.
This range of uses limits leasing opportunities.
Proposed Additional Uses The applicant initially proposed a number of
additional uses, also listed in Appendix B. Most of these additional
uses are considered desirable complementary commercial functions which
would benefit the community and contribute to the viability of the
shopping centre. Some cover uses which were previously approved under
old use terms which have since changed. As a result, some existing use
terms should be deleted and replaced with current use terms.
In response to staff concerns about potential conflicts with school uses
on site and adjoining residential use, the applicant has withdrawn the
proposed use of billiard hall. Catering establishment and bakery
products manufacturing were also withdrawn due to concern about
potential odors and lack of need for these use terms. Staff reluctantly
support Arcade, but as it is a potentially disruptive use, suggest a
restriction to not include coin operated video games. Staff support
Club use as it provides for non-profit societies which are generally
adult, rather than youth-oriented, and is therefore less likely to
conflict with adjacent residential use.
Parking Re-allocation of existing floor area amongst uses could
increase parking demand. However, current by-law provisions do not
limit the proportion of existing floorspace which could be occupied for
any individual use. Therefore, internal expansion of higher intensity
uses could generate a demand for parking which substantially exceeds the
fixed supply. Only a few extra spaces beyond current development permit
requirements have been provided and the existing stock of commercial
parking spaces cannot be increased since the site is built out.
Therefore, to avoid potential impacts on congested nearby streets, a
limit is proposed on the extent of internal changes of use. Initially
the applicant proposed floor area limits on uses with a high parking
demand. Instead, it is proposed that a maximum 10% relaxation of total
required parking be permitted as the required number of spaces increases
in accordance with normal Parking By-law requirements for these uses.
This approach is parallel to the intent of Parking By-law, Section
4.1.12, which provides for a 10% relaxation in required parking in an
existing building. This recommended approach offers greater flexibility
in leasing commercial space and is supported by both staff and the
applicant.
CONCLUSION
Planning staff conclude that the existing and proposed additional uses,
less several uses as discussed above, and as listed in Appendix A, are
desirable and complementary commercial uses for City Square. This
broader range of uses would potentially offer the public a broader range
of services and contribute to the viability of a commercial centre which
incorporates two important, restored, though modified, heritage
structures. Staff recommend approval, subject to a maximum relaxation
of 10% for increased parking requirements resulting from increased
floorspace allocation to higher intensity uses, rather than floor area
limits for individual uses.
* * * * *
APPENDIX A
CD-1 BY-LAW WITH RECOMMENDED AMENDMENTS
Uses
Currently Permitted Proposed Additional Uses
Child day care facility arcade, not including coin
- Clinic or Office for operated video games
medical, dental or similar - artist studio A
purposes* barber shop or beauty
community centre or salon
neighbourhood house clothing manufacturing
financial institution club
hall jewellery manufacturing
hospital or related agency laboratory
hotel library
liquor store museum or archives
multiple dwellings photofinishing or
office photograhy studio
parking garage photofinishing or
public authority building photo-graphy laboratory
or use printing or publishing
restaurant, not including production studio
a drive-in restaurant repair shop B
retail social service centre
- school* fitness centre
special needs residential furniture or appliance
facility store
theatre grocery or drug store
uses customarily ancillary health care office
to the above health enhancement centre
school - arts or
Note: * to be deleted from self-improvement,
By-law business, vocational or
trade
Parking
- The maximum required would be 10% less than the requisite for the
total of all uses in accordance with the normal requirements for
these uses in the Parking By-law.
Floorspace re-allocation to higher intensity uses would be
permitted until the calculated requirement reaches 710 spaces,
which exceeds the fixed supply by 10% over the original
requirement of 645 spaces. Credit will also be given for any new
spaces created over and above 645.
APPENDIX B
Page 1 of 2
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This 1.5 ha (3.8 ac) site
is part of a 3.1 ha (7.65 ac) block of land on the north side of
West 12th Avenue, west of Cambie Street, which comprises a mixed
use CD-1 District containing City Square Shopping Centre, including
two A -listed (designated) heritage buildings, the former model
and normal school, and lowrise and highrise multiple dwellings.
The site has a frontage of 168.2 m (552 ft.) on West 12th Avenue
and a depth of 91.4 m (300 ft.), though the CD-1 District extends a
further 92.7 m (304 ft.) north to West 10th Avenue.
Amendments as Originally Proposed by Applicant
The purpose of the text amendment is to expand the current list of
uses on the left to include those proposed on the right.
Currently Permitted Uses Proposed Additional Uses
- Child day care facility; - arcade - Clinic or Office for medical, - artist studio A
dental or similar purposes - bakery products
- community centre or manufacturing*
neighbourhood house - barber shop or beauty salon
- financial institution - billiard hall*
- hall - catering establishment*
- hospital or related agency - clothing manufacturing
- hotel - club
- liquor store - fitness centre (maximum
- multiple dwellings 3 252 m2 or 35,000 sq. ft.)
- office - furniture or appliance store
- parking garage (650 m2 or 7,000 sq. ft.)
- public authority building - grocery or drug store (max.
or use 4 181 m2 or 45,000 sq. ft.)
- restaurant, not including a - health care office (maximum
drive-in restaurant 2 880 m2 or 31,000 sq. ft.
- retail including Clinic) - school - health enhancement centre
- special needs residential (max. 929 m2 or 10,000
sq.ft.)
facility - jewellery manufacturing;
theatre - laboratory
- uses customarily ancillary to - library
the above - museum or archives
- photofinishing or photography
studio
- photofinishing or photography
laboratory
- printing or publishing
- production studio
- repair shop B
- school - arts or
self-improvement, business, vocational or trade (maximum
3 252 m2 or 35,000 sq. ft.)
- social service centre.
(*Withdrawn)
(Note: bolding indicates high
intensity use)
APPENDIX B
Page 2 of 2
Public Input A notification letter was sent to nearby property
owners on April 4, 1996 and rezoning information signs were posted
on the site on February 12, 1996. Eight phone calls were received
from residents and two people came to City Hall to view the
application. Concerns focused on potential noise, disruption and
crime associated with cultural/recreational uses. Two letters
expressing opposition were received from nearby strata councils
stating the same principal concerns. Arcade, club and billiard hall were uses of particular concern. Billiard Hall has been withdrawn.
Arcade would be restricted.
Comments of the City Engineer The City Engineer has no objection
to the proposed rezoning, provided that the applicant complies with
parking demand limits proposed in this report.
Public Benefit A broader range of commercial services may
contribute to the viability of the commercial centre which
incorporates two restored, though modified, heritage structures.
ENVIRONMENTAL IMPLICATIONS
The proposed text amendment neither contributes to nor detracts
from the objective of reducing atmospheric pollution.
SOCIAL IMPLICATIONS
There are no major positive or negative social implications to this
proposal. 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 following comments.
City Square has worked diligently to identify the appropriate mix
of uses and tenants that would appeal to the local community.
Despite these efforts, however, the Centre has traditionally had a
consistent and higher than acceptable vacancy rate. The range of
new uses will provide much-needed flexibility in maintaining the
attractiveness and vitality of the Centre.
City Square recognizes that concerns have been raised regarding
several proposed uses. These concerns can be addressed through
effective control and management practices. City Square is
determined to maintain an image appropriate for a quality
office/retail centre.
Specific concern has been raised regarding the proposed arcade
use. It should be noted that the intention is to have a high
tech/virtual reality adventure game, family fun centre or similar
use, rather than a traditional arcade.
City Square recognizes that the parking requirement is the ultimate
determinant of the mix of uses. As the proportion of
parking-intensive uses increases, City Square will have to make the
important decision of whether or not a particular new tenant or
change-of-use could be accommodated. APPENDIX C
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 555 West 12th Avenue
Legal Description Lot 4, except part in Plan LMP1503, Block 380, D.L. 526, Plan Applicant Moodie Consultants
Architect -
Property Owner Bentall Property Management
Developer -
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA ha. (3.8 - same
ac)
DEVELOPMENT STATISTICS
PERMITTED UNDER PROPOSED AMENDMENT RECOMMENDED
EXISTING ZONING AMENDMENT (if
different than
proposed)
ZONING CD-1 CD-1 Amendment
USES See Appendix C See Appendix C as listed
PARKING SPACES 645 645 permit 10% deficit
(710)