P4
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: November 1, 1996
Dept. File No. TWP
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Rezoning - 3062-3188 West 41st Avenue
RECOMMENDATION
THAT the application by Neale Staniszkis Doll Adams, Architects, to
rezone 3062-3188 West 41st Avenue (Lots 1, 2, 3, East 1/2 Lot 4,
West 1/2 Lot 4, Lot 5, Plan 1987 and Lot A of 6 and 7, Plan 5869,
all of Blocks 1 to 3, D.L. 321) from RT-2 to CD-1, to permit 58
dwelling units in a 3-storey, plus basement, multiple dwelling at
1.35 FSR, be referred to a Public Hearing, together with:
i) plans received August 15, 1996;
ii) draft CD-1 By-law provisions, generally as contained in
Appendix A; and
iii) the recommendation of the Director of Land Use and Development
to approve, subject to conditions contained in Appendix B.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary CD-1 By-law for consideration at Public
Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
On May 8, 1989, Council approved the following community development
objectives as the basis of the City's social housing policy:
Encourage the distribution of acceptable housing forms and
affordable shelter costs equally among all residential
neighbourhoods of Vancouver.
PURPOSE AND SUMMARY
This report assesses an application to rezone 3062-3188 West 41st Avenue
from RT-2 to CD-1 to permit a 3-storey, plus basement, multiple dwelling
to contain 58 seniors' market dwelling units. Staff agreed to consider
this application prior to Council approval of the City Plan
Neighbourhood Visioning Rezoning Policy. The proposed rezoning would
displace potential for 14 - 20 units in two-family dwellings or up to 30
units if townhouses were permitted by relaxing RT-2 Multiple Dwelling
Guidelines.
Staff believe a reduction in scale of the proposed development is
necessary at the rear, to fit the context of one-family dwellings.
Economic analysis indicates that a density of approximately 1.25 FSR is
viable for multiple dwellings on this site, given average land costs in
the area. At that lower density (rather than the 1.35 FSR proposed),
staff are confident that a multiple dwelling development can be designed
to achieve a compatible physical fit in this context. Therefore, staff
recommend approval at a reduced density of 1.25 FSR, with conditions as
shown in Appendix B.
MAP
DISCUSSION
Use RT-2 zoning would permit one- or two-family dwellings or, in some
circumstances, townhouses on this site. This would result in up to 14
units in duplexes on existing parcels. If subdivided to 12.8 m (42 ft.)
frontages, 20 units could be developed. RT-2 Multiple Dwelling
Guidelines do not support townhouses on RT-2 zoned sites with existing
development exceeding 0.29 FSR. However, given the isolated nature of
this RT-2 area, the Director of Land Use and Development would support
townhouse development on this site, permitting up to 30 ground-oriented
units under existing zoning. Therefore, regional objectives to increase
opportunities for ground-oriented alternatives to one-family dwellings
would be served by the existing zoning.
The proposed rezoning would, by comparison, provide 58 seniors units,
of which 21 units would offer some direct access to grade, including 13
two-storey units. Rear yards available to the two-storey units offer
south-facing enclosed open space, oriented away from West 41st Avenue.
The 8 single-storey units facing West 41st Avenue would have 3 m (10
ft.) north-facing front yards, of limited usefulness, but offering
direct street access. For seniors, this location offers immediate
access to transit with convenience commercial services two blocks to the
west. However, no recreation facilities are within easy walking
distance.
This site adjoins C-1 commercial sites to the east, Kerrisdale
Elementary School across West 41st Avenue to the north and Crofton House
School to the west. Therefore, only the rear of the site is adjacent to
one-family developments, which occupy longer than average 41.2 m (135
ft.) lots. As a result, multiple-family development would have limited
direct interface with lower density residential use. Either townhouse
or a moderately scaled apartment structure would be appropriate.
Density The proposed density of 1.35 FSR exceeds the range of densities
usually supported in rezonings adjacent to one-family dwelling
districts. The adjoining C-1 District permits 1.2 FSR in a 3-storey
structure. Typically, staff support multiple dwelling proposals in
this type of location at 0.75 to 1.2 FSR, depending upon site
characteristics such as size, depth, slope and separation from nearby
RS-zoned sites.
In this case, a 6.1 m (20 ft.) lane, an 8.7 m (28.5 ft.) rear setback of
the proposed multiple dwellings and the extra lot depths (41.1 m/ 135
ft.) of adjacent RS-1 zoned parcels, combine to provide good separation
from the rear of the houses to the south facing West 42nd Avenue.
However, there is a significant slope to the south which results in the
site being higher than the RS-1 parcels and adding to the height and
apparent bulk of the building.
As noted under Form below, staff conclude that the massing of the
building remains too intrusive at the proposed density and recommend a
reduced density of 1.25 FSR.
Form The amended application indicates a well-articulated, 3-storey
form of development fronting West 41st Avenue. The proposed massing,
pitched roofs and finishing of these structures would result in a
positive image along West 41st Avenue. The proposed 3 m (10 ft.)
setback from West 41st Avenue is minimal because the applicant has
endeavoured to maximize the setback from the RS-1 District to the south.
The slope south from West 41st Avenue permits a partial lower storey to
be added at the rear, with grade level access. However, it also makes
the structure taller at the rear, particularly as the westward slope of
the lane exposes the western end of the lower storey in each structure.
The net effect is larger, more intrusive-looking structures facing the
rear of the one-family dwellings. The applicant has reduced this effect
by reducing height, increasing the separation between buildings and
setting upper storey units into the roof-line. Nonetheless, staff
conclude that further reduction in scale and density is necessary to
eliminate the sense of intrusion and overlook. Conditions in Appendix B
address this concern.
Parking and Traffic Neighbours are concerned that this development will
have a detrimental impact on parking and traffic patterns in the area.
The proposed 82 parking spaces falls 14% short of the 95 spaces required
in RM-3 Multiple Dwelling Districts, which is considered an appropriate
standard for this type of housing. However, on the basis of experience
with a similar CD-1 zoned market seniors-oriented project at West 42nd
Avenue and Oak Street, the applicant argues that this kind of
development needs fewer spaces. Planning and Engineering staff believe
pedestrian convenience is not as good for this site and conclude that
parking should be provided at the RM-3 standard.
A traffic impact assessment indicates that this development would not
have a significant impact on either West 41st Avenue traffic volumes or
those on neighbourhood streets. The applicant has relocated the
underground parking access toward Carnarvon Street in response to
neighbours' concerns that it would compound traffic impacts from Crofton
House if located near Balaclava Street. Most shortcutting traffic in
the area is UBC-related.
Engineering staff advise that this project does not require opening of
the full length of the lane south of West 41st Avenue.
CONCLUSION
There is limited public benefit in rezoning this site for a market
seniors multiple dwelling. More market units for seniors in this area
would respond to a local need. However, the type of units permitted
under existing RT-2 zoning would better serve current regional
priorities, because they would offer ground-oriented alternatives to
one-family dwellings. To address this issue, the applicant proposes
that 21 of the 58 units would have some ground level access. Also, with
high land costs in this area, it is unlikely that redevelopment for
townhouses will occur in the forseeable future under existing zoning.
Finally, visual impacts and intrusion could be resolved through design
changes, as recommended in Appendix B, also resulting in a lower
density. Therefore, staff conclude that the proposed development offers
sufficient benefits in the near future to outweigh potential long term
benefits of existing zoning, and recommend approval at a reduced density
of 1.25 FSR.
* * *
APPENDIX A
DRAFT CD-1 BY-LAW PROVISIONS
Use
- Multiple dwelling containing a maximum of 58 dwelling
units, of which at least 21 units must have direct
exterior access from a floor level which is within 0.5
m of finished grade.
Density
- Maximum floor space ratio of 1.25, based on calculation
provisions of the RM-4 District Schedule, except that
one enclosed balcony per unit facing West 41st Avenue
may be excluded from floor space calculations.
Height
- A maximum of 12 m (39.5 ft.).
Setback
- A minimum setback of 8.5 m (28 ft.) from the rear
property line;
- A minimum setback of 2.1 m (7 ft.) from the east
property line;
- A minimum setback of 3 m (10 ft.) from West 41st
Avenue; and
- A minimum setback of 6.1 m (20 ft.) from Balaclava
Street.
Parking
- Per RM-3 standard in the Parking By-law.
Acoustics
- Per RM-4N District Schedule.
APPENDIX B
Page 1 of 3
PROPOSED CONDITIONS OF APPROVAL
(a) THAT the proposed form of development be approved by Council in
principle, generally as prepared by Neale Staniszkis Doll Adams,
Architect; and stamped "Received City Planning Department,
August 15, 1996, provided that the Director of Planning may
allow minor alterations to this form of development when
approving the detailed scheme of development as outlined in (b)
below.
(b) THAT, prior to approval by Council of the form of development,
the applicant shall obtain approval of a development application
by the Director of Planning, who shall have particular regard to
the following design developments:
(i) to reduce the scale of the south face of the buildings to
minimize overlook and improve the scale relationship with
single-family homes across the lane. The design should
be refined to read more substantially as a three storey
building from the south.
This could be accomplished by bringing the eave line down
to the third floor along more of the facade, by reducing
the extent of development on the fourth floor, and by
pulling the face of units on the top floor further into
the mass of the building. It should be noted that the
most conspicuous scale discrepancy occurs at the western
ends of the buildings as the grade drops along the lane.
In particular, the west end of the eastern building
presents the most extreme circumstance. Consideration
should be given to breaking the floor plates at these
points, to enable the building to more closely follow the
existing topography;
(ii) to reduce the perceived length of the development along
West 41st Avenue by breaking the buildings into more
distinct masses, and by providing more substantial
differences in the architectural expression of the four
main masses of building;
(iii) to prevent parking on the proposed laneside walkway by
providing a raised, structured planting area between the
lane and the walk, as well as considering the provision
of lighting along the walk;
(iv) to reduce opportunities for theft in the underground
parking areas;
APPENDIX B
Page 2 of 3
(NOTE: Open exit stairs provide easy access to
underground parking areas when they are visually
accessible to non-residents. These exit stairs should be
relocated within the building envelope, with only the
door exposed, or open exit stairs can be located in the
semi-private open space where they can be watched by
residents. The underground parking appears ungated at
the parking entrance which will become an opportunity for
theft. This should be gated at the street with
consideration to providing electronic communication to
residents. The separate gating of townhouse parking has
shown to improve security from theft in the underground
and is considered positive.)
(v) to reduce fear in underground parking in accordance with
Section 4.12 of the Parking By-law and give consideration
to painting the parking garage white;
(NOTE: The openness and design of the elevator lobbies in
the underground is considered very positive.)
(vi) in concurrence with the Arborist report and the Landscape
proposal, six existing trees are to be relocated;
(NOTE: Particular attention should be placed on the
successful relocation of the 20 inch caliper Redwood, as
noted in the Arborist report as "A beautiful specimen in
superb condition. This specimen is worth serious efforts
to retain or relocate".)
(vii) provide low planting in front of the proposed fence along
West 41st Avenue; and
(viii) to improve defensibility and reduce opportunities for
break and enter and nuisance on residential entrances and
yards on the lane.
(NOTE: Ground level units both facing streets and
semi-private open space have shown to be most susceptible
to break and enter. Opportunities for break and enter
can be reduced by deleting areas of concealment outside
of doors, windows and patios and encouraging surveillance
by other residents and people passing by to these
units. Semi-private
APPENDIX B Page 3 of 3
open space should be secured from access by non-residents
while remaining visually open. Opportunity can also be
reduced by routing exits from the underground directly
outside rather than into the residential lobby (in
coordination with the Fire Department); and
(ix) to endeavour to reduce the maximum height of buildings at
the westerly end of each structure to a maximum height of
11 m (36 ft.).
(c) THAT, prior to enactment of the CD-1 By-law, the registered
owner shall:
(i) consolidate Lots 1, 2, 3 and East 1/2 of Lot 4, West 1/2
of Lot 4, Lot 5, Plan 1987, and Lot A of Lots 6 and 7,
Plan 5869, all of Blocks 1 to 3, DL 321;
(ii) make arrangements to the satisfaction of the General
Manager of Engineering Services for the following:
- the dedication of the north 17 ft. of lots 5 and W
1/2 of lot 4 (plan 1987) and lot A (plan 5869), for
road purposes;
- the dedication of the south 10 ft. of lot 5 (plan
1987), for lane purposes;
- the opening and paving of a portion of the lane
south of West 41st Avenue from Carnarvon Street to
the west to provide improved access to the site
[approximately 76.2 m (250 ft.)]. This requires the
preparation and registration of a lane drainage
agreement;
- the provision of street trees on West 41st Avenue
and on Balaclava where possible;
- all electrical and telephone services to be
underground within, and adjacent the site from the
closest, existing suitable service point; and
(iii) execute an agreement to the satisfaction of the Director
of Legal Services and the Manager of the Housing Centre
restricting sales to a single person at least 55 years of
age and to no more than two people, at least one of whom
is at least 55 years of age, to be registered in priority
over all charges which may defeat or delay the agreement.
APPENDIX C
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This .5 ha (1.2 acre) RT-2
zoned site is comprised of 7 parcels on the south side of West 41st
Avenue. The site has a frontage of 127.9 m (419.5 ft.) and a depth of
36 m (118 ft.) with partial lane access from both ends of the site. It
has a north-to-south slope varying from 1.7 m (5.5 ft.) along Balaclava
Street to 3.7 m (12 ft.) at the east end of the site. There is also an
east-to-west slope of 3 m (10 ft.) along 41st Avenue.
The site adjoins the most westerly of three C-1 zoned sites at West 41st
Avenue and Carnarvon Street. To the west of Balaclava Street is the
Crofton House School. North across West 41st Avenue is Kerrisdale
Elementary School. To the south are 41 m (135 ft.)-long RS-1 zoned
parcels of varying width developed with one-family dwellings.
Proposed Development Two 3-storey structures would be connected at-grade
by a 189 m2 (2,035 sq. ft.) amenity facility and below-grade by
underground parking for 82 vehicles. At the rear of the underground
parking, a lower residential storey would be added to main floor units,
allowing grade-level access into the rear yard. Main floor units
fronting West 41st Avenue would also have grade-level access with
individual entries from the street. A pitched roof with a maximum
height of 12 m (39.5 ft.) is proposed.
Public Benefit This rezoning could result in 28-44 additional dwelling
units over what could be built under existing RT-2 zoning in a location
with reasonable proximity to amenities, commercial services and
employment. However, only 21 of these units would be ground-oriented
and would displace 30 potential ground-oriented units if townhouse
development was to be permitted by relaxing guidelines under existing
zoning.
Environmental Implications Nearby access to transit and commercial
services may reduce dependence on use of automobiles.
Social Implications This development may allow some senior residents of
surrounding one-family neighbourhoods to remain in this community when
they no longer wish to maintain a one-family residence. There are no
implications with respect to the Vancouver Children's Policy or
Statement of Children's Entitlement.
APPENDIX D
COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES, AND THE APPLICANT
Public Input A notification letter was sent to nearby property owners
on April 12, 1996 and rezoning information signs were posted on the site
on April 15, 1996. The applicant held an open house on May 23,1996,
attended by approximately 80 west side and former west side residents,
and a public meeting for immediate neighbours on June 12,1996. Planning
staff attended the latter.
All on-site owners have given written support for the proposed rezoning.
Planning staff have received 92 letters of support, of which 2 were from
residents within two blocks of the site, 20 were from residents of the
Kerrisdale community at large, 16 were from businesses in the area and
54 were from people living beyond the general area. Of 26
questionnaires submitted by the applicant from the open house, 22
favoured the proposal. These responses generally focussed on the need
for local apartment opportunities for west side residents no longer
wishing or able to maintain a one-family dwelling. Two letters also
indicated general support, but wished to see the underground parking
access relocated to the east end of the site, which has been done.
Staff also received 21 letters of opposition, primarily from residents
of the 3000 and 3100 blocks west 42nd Avenue, stating the following
principal concerns (in approximate priority order) which are addressed
in the report:
* precedent for other 41st Avenue sites;
* size of increment in density;
* inadequate parking;
* traffic impacts/pedestrian safety;
* overlook/intrusion in rear yards on 42nd Avenue;
* opposition to lane completion;
* increased crime;
* overcrowding of Kerrisdale School; and
* unaffordable units.
Comments of the City Engineer The City Engineer has no objection to the
proposed rezoning, provided that the applicant complies with RM-3
parking requirements and conditions as shown in Appendix B.
Urban Design Panel Comment The Urban Design Panel reviewed this
proposal on April 24, 1996 and supported the proposed use, but stated
serious concerns about the initial density and form of development, as
described in Appendix E. On balance, the Panel supports the rezoning.
Seniors' Advisory Committee Comments The Seniors' Advisory Committee
reviewed this application most recently on October 26, 1996 and provided
comments as shown in Appendix F.
Comments of the Applicant The applicant has been provided a copy of
this report and has provided the comments attached as Appendix G.
APPENDIX I
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 3062-3188 West 41st Avenue
Legal Description Lots 1, 2, 3, East 1/2 Lot 4, West 1/2 Lot 4, Lot 5,
Plan 1987 and Lot A of 6 and 7, Plan 5869, all of Blocks
1 to 3, D.L.321.
Applicant Tom Staniszkis
Architect Neale Staniszkis Doll Adams Architects
Property Owners Spanza, R. & G. Lessmann, Greene, Chan, Higgins,
Johnston, McGregor, Guthrie
Developer Michael Geller
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA .5 ha (1.2 ac) 321.4 m2(3,460 sq. .46 ha (49,467 sq.
ft.) ft.)
DEVELOPMENT STATISTICS
DEVELOPMENT PROPOSED RECOMMENDED
PERMITTED UNDER DEVELOPMENT DEVELOPMENT (if
EXISTING ZONING different than
proposed)
ZONING RT-2 CD-1
USES 2-Family Townhouse Multiple Dwellings
DWELLING UNITS 14 - 30 58
MAX. FLOOR SPACE 0.60 - 0.75 1.35 1.25
RATIO
MAXIMUM HEIGHT 9.2 m (30 ft.) 12 m (39.5 ft.)
MAX. NO. OF STOREYS 2-storey 3 1/2 storeys
PARKING SPACES per By-law 82 per RM-3 = 95
FRONT YARD SETBACK 7.2 m (23.6 ft.) 3 m (10 ft.)
EXTERIOR SIDE YARD 2.7 m (12 ft.) 6.1 m (20 ft.)
SETBACK (Balaclava)
REAR YARD SETBACK 10.7 m (35 ft.) 8.5 m (28 ft.)