P2 POLICY REPORT DEVELOPMENT AND BUILDING Date: November 21, 1996 Dept. File No.: RW TO: Vancouver City Council FROM: Director of Land Use and Development SUBJECT: Amended CD-1 for 620 West 45th Avenue (Former Police Station Site) RECOMMENDATION THAT the application by Architectura to amend the text of the existing CD-1 By-law No. 4131 for 620 West 45th Avenue (Lot A of Lot C, Block 1008, D.L. 526, Plan 10293) be referred to a Public Hearing, together with: (i) draft CD-1 by-law provisions generally as contained in Appendix A; (ii) draft conditions of approval contained in Appendix B; (iii) plans received January 22, 1996; and (iv) the recommendation of the Director of Land Use and Development to approve the application, as outlined in this report. FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law for consideration at the Public Hearing. GENERAL MANAGER'S COMMENT The General Manager of Community Services RECOMMENDS approval of the foregoing. COUNCIL POLICY Council has considered the following initiatives related to the Oakridge Langara study area, with dates of approval noted: - Oakridge Langara Policy Statement, approved July 25, 1995; - Oakridge Langara Public Benefit Strategy, approved June 13, 1996; - Oakridge Langara Traffic Management Plan, approved June 13, 1996; and - Development Cost Levy By-law, adopted September 25, 1996. PURPOSE AND SUMMARY This report analyses an application by Architectura to amend the text of the existing CD-1 By-law No. 4131 to allow for redevelopment of the site at 620 West 45th Avenue with four multiple dwellings containing a total of 95 dwelling units. The application is consistent with the Oakridge Langara Policy Statement and staff recommend that the application be referred to Public Hearing and be approved. DISCUSSION Density and Height The proposed density and height comply with the Oakridge Langara Policy Statement, including an optional 20% increase in FSR for the "provision of City-desired public benefits". Further details are provided in Appendix C. Public Benefits The site is situated within the Oakridge Langara Development Cost Levy (DCL) district and would be subject to a contribution of $34.98 per square metre ($3.25 per square foot) of development. The Public Benefit Strategy for Oakridge Langara, approved by Council in June, 1996, defined an array of community amenities which require attention, notably parks, housing and street improvements. While there is expressed community interest in both a crime prevention office (CPO) and "a neighbourhood meeting space", a facilities inventory conducted in early 1996 leading to the Public Benefit Strategy indicates a wealth of existing public and private facilities with a wide range of meeting spaces for use by the community. While crime does exist in the area, Oakridge continues to have one of the lower crime rates in the city. A Police Department drop-in has had low attendance. Recent community initiatives aimed at developing a CPO have been unsuccessful due to a lack of response within the community. Staff therefore conclude that funds in addition to the DCLs should be spent on other higher priority benefits, including park acquisition and development and housing. A separate "in camera" report will outline the extent of additional contributions expected from this site and recommended expenditures. Housing According to adopted Oakridge Langara policies, developments containing more than 100 dwelling units are to provide 20% of the units for non-market housing (primarily core-need). Twenty-five percent of all new housing should be suitable for households with families. The subject site is identified in the Policy Statement as one which could be considered to provide for non-market housing. However, the Policy Statement also provides for payment-in-lieu if a non-market housing project is unavailable on-site and an acceptable non-market housing project is available off-site to which these monies can be directed. The project size has been reduced from 99 to 95 dwelling units. While the unit count is within a "practical range" of the Policy Statement stipulation related to projects of over 100 units, Planning and Housing Centre staff are satisfied with the applicant's agreement to the alternate pay-in-lieu approach, and a nearby site may be available to achieve the non-market housing objective (Peretz School on Ash Street). Schools School Board staff have expressed significant concerns (see Appendix E) about the specific and cumulative effect of rezoning approvals in Oakridge Langara, particularly relating to enrolment at Churchill Secondary School, without any compensating contributions towards addressing the situation. Preliminary analysis by Planning Department staff indicates that the overall impact on school population as a result of rezoning initiatives may be as low as a 9% increase, based on past trends, or as high as 40% should trends change. Planning staff believe that City and School Board staff should monitor each application and population trends in Oakridge Langara, with the analysis forming the basis for further discussion and recommendations to City Council and the School Board. Existing On-Site Landscaping A considerable number of mature trees exist on the site. Staff are recommending, through conditions established in Appendix B, that the site plan be altered to preserve certain trees, and/or that the applicant agree to re-locate trees, either along peripheral edges of the site, to the related City boulevard (in concert with other walking improvements) and/or to the adjoining Tisdall Park, for which a concept park plan has been developed. The applicant has agreed with this approach. Tisdall Park In order to demonstrate to surrounding residents that rezonings will directly lead to improvements in the area, staff have worked with the community to produce a design to upgrade Tisdall Park, immediately abutting the site to the south. Pathways, planting and possible daylighting of an historic creek bed have been discussed. The overall creek daylighting is being investigated by Engineering Services as a water control mechanism during heavy rainfall, as some homes in the area have experienced flooding. The applicant has agreed to fund design costs for this work, with these costs to be subtracted from public benefit contributions. Traffic Calming It is anticipated that redevelopment in the vicinity of West 45th Avenue and Ash Street will lead to more traffic on both streets. A traffic management planning process has already been presented to Council, to ensure that traffic is calmed as much as possible. Some measures are to be paid with DCL funds ear-marked for walking improvements around Tisdall Park, with designs acknowledging the combined purpose of slowing traffic as well. It is also considered appropriate that each site contribute directly to traffic calming measures, as they will directly contribute additional traffic to the area. This is a normal requirement for rezonings of this scale. Total costs for traffic calming measures in response to rezoning initiatives in the vicinity of West 45th Avenue and Ash Street is anticipated to be $70,000.00. The pro-rated cost for 620 West 45th Avenue is $38,000.00 CONCLUSION The rezoning application for 620 West 45th Avenue complies with the Oakridge Langara Policy Statement in all aspects. Staff recommend that the application be referred to Public Hearing and be approved, subject to the draft by-law in Appendix A, and the conditions of approval contained in Appendix B. * * * DRAFT CD-1 BY-LAW PARAMETERS FOR 620 WEST 45TH AVENUE (FORMER POLICE STATION SITE) Uses: Multiple Dwellings, with a total maximum of 95 dwelling units, including a minimum of 25% of the total number of units suitably designed for families with children. Condition of Use: No listed use will be permitted and no building will be permitted to be occupied, or continued to be occupied, unless the trees identified on the Plan referred to under the section entitled Landscaping and Trees of this By-law are retained in a healthy condition on the site, except that the Director of Planning may permit removal or relocation of trees pursuant to the Private Property Tree By-law. FSR: 1.45 Height: 15.25 m over the easterly 51.3 m of the site; 12.2 m over the remaining portion of the site. Parking: Parking for residential uses is to be provided as per the RM-4 standards of the Parking By-law. Landscaping and Trees: Before any development permit can be approved for the site, a site plan showing mature trees and landscaping which will be retained in place or relocated on the same site and/or to Tisdall Park, must be submitted to and approved by the Director of Planning. For the purpose of this section the plan labelled "Tree and Landscaping Retention/Relocation Plan", which is to accompany this By-law, shall be deemed to be the site plan referred to in this section and in the above Condition of Use. All landscaping and trees must be maintained in a healthy condition. PROPOSED CONDITIONS OF APPROVAL FOR 620 WEST 45TH AVENUE 1. THAT the proposed form of development be approved by Council in principle, generally as prepared by Architectura (Waisman Dewar Grout Carter, Architects) and stamped "Received City of Vancouver Planning Department - January 22, 1996". 2. THAT, prior to the final approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning. In considering development applications the Board will have regard for the following considerations: (Engineering) a) clarification of the proposed "Emergency Vehicle Access" is required; b) maximum parking ramp grade is to be 10% in the first 6.0 m (20 ft.) and 12.5% thereafter; c) a 2.7 m (9 ft.) by 2.7 m (9 ft.) corner cut-off is required at the right angle turn of the parking ramp; d) three 1.5 m (5 ft.) by 2.4 m (8 ft.) garbage pads are required for garbage storage and an additional 1.5 m (5 ft.) by 2.4 m (8 ft.) is required for recycling. e) provision of street trees to the satisfaction of the General Manager of Engineering Services and the Vancouver Park Board (the Street Trees Division and City Arborist). (Crime Prevention Through Environmental Design [CPTED]) f) design development to reduce opportunities for theft in the underground parking area; g) design development to reduce opportunities for break and enter; h) design development to reduce fear for residents and for vulnerable populations in the neighbourhood, such as seniors; (Fire) i) design development to meet principle entrance requirements of the Fire Department that may include connecting buildings together; (Tree and Landscape Preservation and Relocation) j) prepare a "Tree/Landscape Retention/Relocation Plan" in consultation with the City's Senior Landscape Architect; Note to Applicant: A survey plan is necessary to confirm the exact location of existing trees relative to the proposed development. k) retain and protect all trees and landscaping identified to be retained or relocated on the "Tree/Landscaping Retention/Relocation Plan"; l) site buildings in such a way as to ensure that excavation and disturbance will not occur in accordance with guidelines entitled "Tree Retention on Sites"; m) submit an arborist's report to assess retention and building location as part of the development application; n) all existing trees to be retained must be protected and cared for as per Schedule D of the Private Property Tree By-law No. 7347; and o) tree protection barriers will need to be shown for all retained existing trees as per Schedule D of the Private Property Tree By-law No. 7347 and the Landscape Plan. Prior to by-law enactment, the owner shall undertake the following at no cost to the City: 1. make arrangements to the satisfaction of the General Manager of Engineering Services for: (i) a concrete sidewalk to be provided on the west side of Ash Street from West 45th Avenue, south, to the south property line of the site, at the applicant's cost; and (ii) undergrounding of all services for this site to be from the closest suitable pole. 2. execute an agreement, satisfactory to the Director of Legal Services and Manager of the Housing Centre, providing that occupancy or possession of dwelling units shall not be denied to families with children; 3. a) provide a covenant to the satisfaction of the Director of Legal Services to commit the owner to retaining and protecting all trees identified on the Tree/ Landscaping Retention Plan including a commitment that an ISA certified arborist must be retained to periodically ensure the health and safety of trees on site, report any damage or neglect to the trees to the Senior Landscape Architect (Planning Department) immediately, undertake any maintenance or remedial care as required and to ensure the on-going health and safety of the retained trees during all phases of construction and for a minimum of 3 years upon completion of construction. The recommendations of the arborist must be undertaken with respect to tree care and maintenance as well as construction practices; and b) provide a covenant to the satisfaction of the Director of Legal Services to commit the owner to cause any strata corporation formed as a result of strata titling of the site to provide a covenant in favour of the City of Vancouver committing the Strata Corporation to retaining all trees identified in the Tree Retention Plan. 4. contribute $38,000.00 towards traffic calming measures on West 45th Avenue and Ash Street; and 5. pay to the City a public benefit contribution in an amount and on a schedule to be determined by City Council. ADDITIONAL INFORMATION Site and Surrounding Development The site is located on the southwest corner of Ash Street and West 45th Avenue. The site has a frontage along Ash Street of 98.1 m (321.85 ft.) and a frontage along West 45th Avenue of 102.6 m (336.6 ft.). The total site area is 10 121 m2 (108,945 sq. ft.). The site was rezoned in October 1964 under CD-1 By-law No. 4131 (CD-1 [31]). The by-law simply rezones the site to CD-1 and contains no regulations. Background information on the specific site is incomplete; however, the site was designated in 1955 in a development plan for the Oakridge area for community use and until recently housed the Vancouver Police Oakridge Substation. To the south of the site is Tisdall Park. To the west of the site is an existing two-storey townhouse development, and to the west of that is the Four Wings apartment building. A fourth floor was added to the latter in the early 1980s. To the east of the site, across Ash Street, is the St. John Ambulance site which is also the subject of a current rezoning application. North of the site, across West 45th Avenue, are two recent apartment developments, the Fairchild at four storeys, and a seniors housing project (containing a children's day care centre) at eight storeys, which are located along the southerly edge of the Oakridge Shopping Centre site. Oakridge Langara Policy Statement The Oakridge Langara Policy Statement provides for redevelopment of this, and several other sites, as follows: Stacked townhouses and ground-oriented low-rises should be allowed on sites in the locations shown in Figure 4. Densities on these sites could range from 1.0-1.2 FSR with potential for up to a 20% increase for the provision of City desired public benefits. The evaluation criteria for approval of projects at various densities throughout Oakridge Langara are described as follows: All of these density targets for specific sites assume an acceptable form of development which is sympathetic with the existing neighbourhood, minimizes community impacts, and provides significant public benefits such as outlined in Appendix A - Public Benefits. The final approved densities could therefore range marginally below or above the density targets based upon the detailed design process and the extent that residential livability concerns, as well as other public objectives, are satisfied. Appendix A, Public Benefits, provides that community amenity contributions, or cash in-kind should be collected as part of rezonings to be used to pay for City desired public benefits in cases where a public benefit is not included with the proposed development. The needed public benefits are described as follow: If the policies in this document are followed, demand could be created over a 20Ò year period for the following amenities and replacement housing (based on the City s established standards): - 1 daycare Class A and out-of school care facility; - 6.48 ha (16 ac.) of park space; - 160 units of replacement housing; and - 1 235.57 m2 (13,300 sq. ft.) of community centres space. Proposed Development The proposed density is 1.45, with the following components: - 14 735 m2 (158,611 sq. ft.) of residential use, in 2- and 3-bedroom dwelling units; - 750 m2 (8,073 sq. ft.) of private amenity space for use of residents; and - one level of underground parking for 218 cars. Details of the proposed development are shown in Appendix D. The development consists of four buildings, ranging in height from four to six storeys, with a maximum overall height of 15.25 m (50 ft.). Public Contributions The extent of public benefit contributions is to be addressed in a separate "in camera" report, in accordance with established Council policy. FORM OF DEVELOPMENT FOR 620 WEST 45TH AVENUE 2 APPENDIX E Page 1 of 6 PUBLIC AND OTHER INPUT Public Input Rezoning notification signs were posted on the site on February 19, 1996. On March 12, 1996, 195 early notification letters were sent to registered property owners surrounding the site. The applicant sponsored an open house on June 24, 1996 - 100 people attended, with mixed reactions to the proposed rezoning. Generally, the response was positive. A number of area residents expressed interest in purchasing units. A small number of attendees were opposed to the general densities set out in the Policy Statement. Engineering Department "The Engineering Department has no objections to the proposed text amendment provided the following issues are addressed prior to enactment: - parking is to be provided as per the RM-4 standards of the Vancouver Parking By-law; - provision of concrete sidewalk on the west side of Ash Street from West 45th Avenue to the south property line of the site, at the developer's expense; - clarification of the proposed 'Emergency Vehicle Access' is required; - undergrounding of all utilities for this project from the closest existing suitable pole." Permits and Licenses This City-owned site was reviewed in 1994 for the Housing and Properties Department for potential soils contamination and was cleared. Permits and Licenses indicates no soils assessment is required. Fire Fire comments: There are serious non-conformities with this rezoning application for Fire Department response, namely: APPENDIX E Page 2 of 6 - the four storey building that is reached at present by an "emergency vehicle access" does not meet the basic building code requirement of a building facing a "street". Every building must face a street as a first requirement for any construction. An emergency access does not qualify as a street. - The different components of this development will be considered as a separate building for fire department response. They will need their own separate addresses co-ordinated with the principle entrance. There are limits to how far these entrances can be from a street. It cannot be confirmed if these buildings will meet the access requirements. Recommended that the applicant have a code consultant on board at this stage to look at various issues relating to VBBL and VFBL requirements. Not acceptable as shown. Planning Department staff note that the applicant is revising the proposal to eliminate the "fourth building" by connecting it to one of the other buildings. Fire Department concerns must be dealt with at the development application stage. Social Planning Public art contributions apply to rezonings of 15 000 m2 (161,463 sq. ft.) or greater. The above rezoning is smaller in aggregate than this area and a contribution is not required. Health The City's acoustical criteria shall form part of the Zoning By-law, and an Acoustical Consultant's report shall be required which assess noise impacts on the site and recommends noise mitigating measures. The Noise Control By-law does not require amendment. School Board The following comments are extracts from a letter from School Board staff, identifying issues related to schools in the area: "A number of proposed rezonings in the Oakridge/Langara area are being considered. It is difficult to respond to these proposed rezonings when the overall effects and cumulative demands of the individual proposals are not placed together in context. APPENDIX E Page 3 of 6 "The large units ( two-bedroom and three-bedroom) in a 4-6 storey building form will likely generate a significant number of school-aged children. The possible estimates may range from 60 to 100 or more students, especially in this highly desirable catchment area for Churchill Secondary School. While there will be some increased enrolment pressure on Jamieson Elementary, there is some potential capacity at that school. There is no excess capacity at Churchill, and this proposed development may increase the overcrowding already existing on that site. ".... The application states that another benefit of this proposal is 'the provision by the owner of an off-site community amenity, details of which are to be determined in consultation with the City'. This is too vague, especially when one of the possibilities listed is 'enhanced play facilities at Jamieson School'; and there is no reference to discussions with School Board staff. A preferable community contribution might include funding for additional school facilities to compensate for the increased enrolment at Churchill. ".... As this is an increasingly congested area, it may be worthwhile to look at the effects of this redevelopment on traffic patterns in the area. This is especially important in light of other possible redevelopments in the same area. There may be increased traffic in front of Jamieson School, already a heavily congested zone on days when school is in session. ".... There is a need to assess the net effects of the rezoning and other redevelopment proposals which are being generated in the area. In particular, there is still a major concern about rezonings which may lead to further demands on overcrowded local schools without any compensating contributions towards addressing this situation." School Board staff also expressed concerns that the application proposes no on-site public amenity which appears to them to be contrary to the spirit of the Oakridge Langara Policy Statement and includes no traffic or parking analysis. CPTED Review This site is located in a low to medium crime impact environment. However, theft of auto and theft from auto is high due to the proximity to the shopping centre. Environmental design should reduce opportunities for theft from auto, theft of auto, bicycle theft and break and enter. Design that reduces fear should also be considered. Other recommendations include: APPENDIX E Page 4 of 6 - design development to reduce opportunities for theft in the underground parking; Note to Applicant: This can be achieved by; - fully securing the underground parking and bicycle storage including overhead gating for both residents and visitors; - locating exit stairs from parking (not yet shown) in semi-private areas within the view of residents and away from public view; and - ensuring access to bicycle parking is fully secured and located within the secure area of the parking garage. The separate garages in the underground are considered positive and have proven less likely to be the targets of theft in other developments with similar design. The relocation of the parking ramp to Ash Street would also be considered to be positive. - design development to reduce opportunities for break and enter; Note to Applicant: This can be achieved by: - deleting opportunities for short-cutting through the property (gate to Tisdall Park and lack of gating of fire access route may cause cutting through) and retaining the existing hedge; - by deleting areas of concealment in front of ground level units (particularly in street oriented units); and - by having stairs from parking exit beside the lobby rather than in the lobby (in coordination with the Fire Department). - design development to reduce fear for residents and for vulnerable populations in the neighbourhood such as seniors; Note to Applicant: This can be achieved by considering night time users and providing areas with good prospect and adequate lighting and by painting underground walls and ceiling white. APPENDIX E Page 5 of 6 Urban Design Panel (Minutes from its meeting of Feb. 28, 1996) EVALUATION: SUPPORT (8-0) - Introduction: The Rezoning Planner, Rob Whitlock, reviewed the context for this CD-1 Text Amendment application, noting the site in question was until recently occupied by a police substation. The proposal is to construct 99 residential units at 1.45 FSR, consistent with the Oakridge/Langara policy statement. Proposed heights are also within the envelope prescribed by the policy statement. Two hundred and eighteen (218) parking spaces are proposed, with access off West 45th Avenue. Amenities include an amenity room and an indoor pool. There also a large communal garden/ courtyard including an ornamental pool and lawn area. The Fire Department has expressed concern about the separate building on the southwest corner of the site in terms of addressing and adequacy of access. Planning Department issues are relatively small at this stage and include the location of the single driveway access point and the disposition of the existing trees on the site. - Applicant's Opening Comments: Alan Hartley, Architect, noted that in response to input from the community they have proposed a 2-storey townhouse form on the public frontages on West 45th Avenue and Ash Street. He briefly described the design rationale and invited comments from the Panel with respect to the connection to the park. With respect to the driveway access to the underground parking, Mr. Hartley explained they felt 45th Avenue would be the most appropriate access point. Chris Sterry, landscape architect, described the landscape plan. - Panel's Comments: After reviewing the model and posted drawings, the Panel commented as follows: The Panel unanimously supported this application and thought the overall site planning and massing were being developed in the right direction for a very successful project. The applicant was also commended for including in the presenta-tion materials the various massing alternatives that were examined for the site. APPENDIX E Page 6 of 6 The Panel appreciated that each of the four clusters has its own district character. The Panel like the isolated corner building and thought it was workable. Some suggestions towards addressing the emergency access concerns were to have a broader sidewalk, or some sort of rhythmic pattern of lighting, for example, to clearly identify the entrance to the building. Having a small private road which would double as fire access was also suggested. One Panel member urged the applicant not to solve the fire access problem by linking this corner building to another building. With regard to community access between the park and Oakridge, another suggestion was that access to the corner building might be resolved by access off a route down to West 45th Avenue directly through to the park. The idea of developing a through route along the property line or the back was endorsed. One Panel member thought it would be better if the smaller building was off West 45th Avenue, with the longer building pulled back to the south. It was suggested this would allow something more creative to be done with the existing hedgerow on the site. The Panel supported the landscape plan and liked the courtyard space. The distinctive quality of the yards on Ash Street and West 45th Avenue was also endorsed. The Panel had no concerns about the driveway access off West 45th Avenue. One Panel member cautioned that potential residents of this development are uncomfortable with large underground parkades, suggesting it would be an interesting challenge for the landscape architects and engineers to design the central space in such a way as to introduce natural light into the parkade. APPLICANT'S COMMENTS "We are in general agreement with the Rezoning Policy Report, with the exception of the School Board staff comments. "The majority of suites will be three bedrooms suitable for families with children. Our market research and public open house indicates the largest group of purchasers will be 'empty nesters' resident in the community who wish to move out of single family housing while remaining on the west side of Vancouver. In this event the school population increase will be slight and less than single family or low rise townhouse development of the property." APPLICANT, PROPERTY AND DEVELOPMENT PROPOSAL INFORMATION APPLICANT AND PROPERTY INFORMATION Street Address 620 West 45th Avenue Legal Description Lot A of Lot C, Block 1008, D.L. 526, Plan 10803 Applicant Architectura (Waisman Dewar Grout Architects) Architect Architectura (Waisman Dewar Grout Architects) Property Owner Delta Land Development, Ltd. SITE STATISTICS GROSS DEDICATIONS NET SITE AREA 10 121 m2 - 10 121 m2 (108,945 sq. ft.) (108,945 sq. ft.) DEVELOPMENT STATISTICS DEVELOPMENT PERMITTED UNDER PROPOSED DEVELOPMENT EXISTING ZONING ZONING CD-1* CD-1 Amended USES Not specified Multiple Dwelling DWELLING UNITS Not specified 95 units MAXIMUM FLOOR SPACE RATIO Not specified 1.45 MAXIMUM HEIGHT Not specified 15.25 m (50 ft.) MAXIMUM NO. OF STOREYS Not specified 4 - 6 storeys PARKING SPACES Not specified 218 FRONT YARD SETBACK Not specified To be controlled SIDE YARD SETBACK Not specified through the REAR YARD SETBACK Not specified Form of Development * N o t e : While the CD-1 list no uses or regulations, the form of development has been a one-storey Police Sub-station, with surface parking. WHI\002-4479.COV