P3 POLICY REPORT DEVELOPMENT AND BUILDING Date: November 26, 1996 Dept. File No.: RW TO: Vancouver City Council FROM: Director of Land Use and Development SUBJECT: Proposed Rezoning of 6111 Cambie Street (St. John Ambulance) RECOMMENDATION THAT the application by Greystone Properties Ltd. to amend the text of CD-1 By-law No. 3907 for 6111 Cambie Street (Lot 1, Sub B, Block 1008, D.L. 526, Plan 10803) by creating a new CD-1 to permit a mixed use development with institutional and dwelling uses at 2.21 FSR, and amending the existing CD-1 to delete references to 6111 Cambie Street, 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 25, 1996; and (iv) the recommendation of the Director of Land Use and Development to approve the application, subject to a maximum density of 1.85 FSR as outlined in this report. FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-laws for consideration at the Public Hearing. GENERAL MANAGER'S COMMENTS 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 Lanagara 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 Greystone Properties Ltd. to allow for redevelopment of the site at 6111 Cambie Street with two buildings, eight and four storeys in height, containing the following uses: - a replacement facility for St. John Ambulance, presently occupying the site; and - 67 dwelling units, with all units being 2-bedroom or larger. Residential uses are not presently permitted in the existing CD-1 by-law. The proposed use of this site is consistent with the Oakridge Langara Policy Statement. The proposed density of 2.21 is too high, as it is based on providing funds for the replacement of St. John Ambulance which will continue as part of the new development. The Policy Statement makes density provision for replacement of existing institutions but does not make provision for "supplemental" density to pay for the construction cost of that replacement. Staff recommend that the application be referred to Public Hearing, with the density reduced to 1.85 floor space ratio (FSR), the maximum in accordance with the Policy Statement. DISCUSSION Density: The applicant is proposing a total FSR of 2.21. This is considerably higher than provided by the Oakridge Langara Policy Statement, as shown in Table 1 below. Table 1 Oakridge Langara FSR Parameters FSR COMPONENT BASIS FOR FSR 1.0 to 1.2 to be achieved on the basis of "an acceptable form of development which is sympathetic with the existing neighbourhood, minimizes community impacts, and provides significant public benefits" as outlined in the Policy Statement. 0.25 for City-desired public amenity 0.40 for existing institution 1.85 Maximum achievable The applicant has provided a detailed explanation for the additional density, contained in Appendix C. In summary, the additional residential density of approximately 0.42 FSR would contribute $1.4 Million toward the cost of rebuilding St. John Ambulance in this location. Without these additional funds, St. John Ambulance s continued existence on the site may "not be economically attractive", according to the applicant. Staff appreciate the service to the community at large provided by St. John Ambulance in terms of both training and medical emergency assistance at major events, and understand that St. John would like to use the proceeds from the rezoning towards the rebuilding of their facility, rather than rely on other means of fundraising. However, while the Policy Statement makes provision for replacement of existing institutions, it does not make provision for funding of that replacement. This, combined with concerns raised by the community about density and height, led staff to conclude that a density beyond 1.85 cannot be supported. Furthermore, the applicant has shown in sketch plans (shown in Appendix E), prepared at the request of staff, that the density reduction produces a superior scheme, in terms of both the West 45th Avenue and Cambie Street building profiles. Public Benefit Contributions: This site will be subject to the Oakridge Development Cost Levy (DCL) established by Council on June 13, 1996 ($34.98/m2 or $3.25/sq. ft.). The applicant initially proposed the inclusion of a community office; however, discussion with City Departments and the Park Board indicates no identified need for such space. Specific interests of the community have included a Crime Prevention Office (CPO) or a "neighbourhood meeting place". In considering the need for community office or a CPO, staff undertook a thorough inventory of existing facilities in the community early in 1996 as part of the Public Benefit Strategy and concluded that neither is needed. Some individuals have indicated that the relocation of the Oakridge Police Substation has led to less security in the neighbourhood because police are no longer in the neighbourhood with the equivalent frequency and that the previous Police presence needs to be re-established. The Police Department notes that relative to other areas, Oakridge Langara has one of the lowest crime rates in the city. With respect to a "neighbourhood meeting place", City staff believe that there are sufficient existing facilities owned both by the City and privately, that funds should be spent on other amenities to meet higher priorities identified as part of the Public Benefits Strategy that was developed with broad community input and support. In particular, recreation needs in parks and walking pathways in the community are listed as a high priority. A separate "in camera" report will address total public benefit contributions which will accrue to this rezoning proposal. Schools: School Board staff have expressed significant concerns (see Appendix F) about the cumulative effect of rezoning approvals in Oakridge Langara, particularly relating to enrollment 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. Traffic Calming: Staff are recommending that rezoning applicants in Oakridge Langara also be asked to pay direct costs for traffic calming measures in the immediate area of each development. In this respect staff have established a condition of approval requiring that the applicant contribute a proportionate amount of the costs towards traffic mitigation measures along West 45th Avenue and Ash Street (with the applicants for 620 West 45th Avenue and Peretz School sites contributing the remainder). CONCLUSION Assessment of the rezoning application for the St. John Ambulance site indicates that, with the exception of the proposed FSR, the proposal is in keeping with the Oakridge Langara Policy Statement. Staff recommend that the application be referred to Public Hearing but with an FSR of 1.85 as identified in the Policy Statement, and be approved. * * * APPENDIX A DRAFT CD-1 BY-LAW PARAMETERS A) FOR 6111 CAMBIE STREET (ST. JOHN AMBULANCE) Uses: Institutional Use of a philanthropic or charitable character (including St. John Ambulance); Maximum 67 Dwelling Units; and Accessory Uses customarily ancillary. FSR: 2.21, with residential use limited to a maximum of 1.87. Height: Easterly half: 24.4 m Westerly half: 12.2 m Parking: Residential parking - RM-4 standard Institutional parking - pursuant to Parking By-law B) FOR EXISTING CD-1 BY-LAW NO. 3907 (CD-1 [12]) General: Delete references to St. John Ambulance throughout Plan: Delete Parcel 1 (St. John Ambulance site) from CD-1 boundary APPENDIX B Page 1 of 2 PROPOSED CONDITIONS OF APPROVAL FOR 6111 CAMBIE STREET 1. THAT the proposed form of development be approved by Council in principle, generally as prepared by Eng & Wright Partners, Architects and stamped "Received City Planning Department - January 25, 1996", provided the Director of Planning may allow minor changes to this form of development when approving the detailed scheme as outlined in 2 below; and 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 the development application, the Director will have regard for the following considerations: (a) changes as a result of the reduction of the FSR to 1.85; (b) design improvements to the Ash Street building, to provide a better residential scale and expression along West 45th Avenue and Ash Street, noting comments of the Urban Design Panel; (c) changes to meet Fire Department requirements (identified in Appendix F of the Manager s report); (d) retention or relocation of existing trees where possible; (e) design development to reduce opportunities for theft in the underground parking area; (f) design development to reduce opportunity for break and enter; (g) design development to reduce opportunities for graffiti; and (h) design development to reduce fear for residents and for vulnerable appellations in the neighbourhood, such as seniors. Prior to enactment of the CD-1 by-law, the owner shall undertake the following at no cost to the City: 3. make arrangements to the satisfaction of the General Manager of Engineering Services: (i) for removal/relocation of the existing wood pole in the lane, and corresponding easement on Lot 1, which affects access to the parking and loading; APPENDIX B Page 2 of 2 (ii) for provision of concrete sidewalk on the east side of Ash Street from West 45th Avenue, south, to the south property line of the site; and (iii) for undergrounding of all services for this site to be from the closest suitable pole; 4. 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, with the exception of units that may be designated as senior citizens' housing*; and 5. contribute $21,000 towards traffic calming measures along West 45th Avenue and Ash Street; 6. pay to the City a public benefit contribution in an amount to be determined by City Council. *NOTE: Senior citizens housing not presently part of proposal. ADDITIONAL INFORMATION Site And Surrounding Development The site is located on the southwest corner of Cambie Street and West 45th Avenue. It has a frontage along Cambie Street of 50.1 m (164.33 ft.) and a depth along West 45th Avenue of 85.4 m (280.14 ft.). The total site area is 4 370.6 m2 (47,046 sq. ft.) The St. John Ambulance site is part of a larger L-shaped CD-1 District governing five institutional sites: - St. John Ambulance, 6111 Cambie Street; - the Chinese Presbyterian Church, at 6137 Cambie Street; - the Alliance Francaise de Vancouver, at 6161 Cambie Street; - a portion of the Oakridge Regular Baptist Church, at 6261 Cambie Street; and - the Vancouver Peretz Institute, at 6184 Ash Street. This site is one of many created as part of the subdivision and rezoning of CPR holdings in the Oakridge Langara area in the mid-1950s. Almost all development in the area, including the Oakridge Shopping Centre and many apartment buildings were developed in the late-1950s or early-1960s. To the west of the site, across Ash Street, is the unoccupied site of the former Oakridge Police Substation which is also the subject of a current rezoning application. North of the site, across West 45th Avenue, is the Oakridge Shopping Centre. The Policy Statement provides for development up to 18.29 to 24.4 m (60 to 80 ft.) on the south-east corner of the Shopping Centre site. Lands immediately across Cambie Street to the east may be rezoned for multiple dwellings through privately-initiated applications, pursuant to the Policy Statement. To the south of the CD-1 District, on both sides of Cambie Street, properties are zoned RT-1 and developed with two-family dwellings. Under the Policy Statement, these sites are defined as a reserve sub-area , where rezoning may be considered subject to the unanimous support of the property owners or if a decision occurs with respect to transit along Cambie Street. 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. Increases in overall site density beyond the residential FSR outlined in chapter 3 may be considered in order to retain the institutional use, but only if the mixed-use proposal is shown to minimize impact on the community while providing city-desired public benefits in return. 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, in cash or 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 2.21, with the following components: - 1 488 m2 (16,024 sq. ft.) for St. John Ambulance facility (0.34 FSR); and - 8 171 m2 (87,955 sq. ft.) for 67 dwelling units (1.87 FSR). All dwelling units are intended to be 2-bedroom or larger. Total floor space is 9 660 m2 (103,979 sq. ft.). Two building components are proposed. The St. John Ambulance will occupy two floors of an eight storey building fronting Cambie Street, 24.4 m (80 ft.) in height, with dwelling units completing the remainder of the building. A four-storey residential building will face onto Ash Street, 12.2 m (40 ft.) in height. Parking for 175 cars is to be provided underground, with access from the lane. Details of the proposed development are shown in Appendix D. The Director of Land Use and Development proposes separating the St. John site from its existing CD-1 which governs four sites in total. This is an opportunity to begin providing each of the respective sites with individual regulation; however, each site will be dealt with as rezoning is initiated on behalf of each. Applicant s Rationale: The applicant has provided the following rationale for the higher density: St. John Ambulance is a non-profit society which has served the community from this location for 33 years. The redevelopment of the now obsolete St. John Ambulance training and administration centre at West 45th and Cambie Street is an expensive undertaking. The proposed 16,000 sq. ft. of new space complete with underground parking is expected to cost up to $3.2 Million including furniture and fixtures. In addition, St. John Ambulance must fund temporary accommodation for one year including the cost of moving in and out while the project is under construction. This is estimated to cost $300,000. St. John Ambulance is also concerned with the possibility of reduced revenues during the year they operate out of temporary accommodation. Without an adequate residential density to sell, the continued presence of St. John Ambulance at the Cambie Street and West 45th Avenue site would not be economically attractive. It is likely that without the presence of St. John Ambulance, a residential density of 1.45 FSR could easily be justified on the site given the policies set out in the Oakridge Langara Policy Statement. Under this rezoning application, the requested density of 2.21 FSR includes the St. John institutional space, leaving the residential component at 1.87 FSR. The additional residential density (above 1.45) of .42 represents just under 20,000 sq. ft. of additional residential area, which at a per square foot buildable land value of $70, contributes $1.4 Million toward the cost of rebuilding St. John Ambulance in this location." Landscape Resources: Trees along Cambie Street are to be preserved where possible. Public Contributions: The extent of public benefit contributions is to be addressed in a separate in camera report, in accordance with established Council policy. APPENDIX D FORM OF DEVELOPMENT FOR 6111 CAMBIE STREET APPENDIX F Page 1 of 5 PUBLIC AND OTHER INPUT Public Input Rezoning notification signs were posted on site on February 19, 1996. On March 12, 1996, 366 early notification letters were sent to surrounding property owners. Two letters, one unsigned, have been received to date, objecting to the rezoning. The first suggests that St. John Ambulance be relocated elsewhere and that generally the author is dissatisfied with the Oakridge Langara process and the rezoning. The second letter requests that the building s height be reduced, with four to six storeys suggested. On February 27, 1996, the applicant sponsored an open house which was attended by approximately 100 people. All were supportive of St. John Ambulance continuing to exist on site. Many people were interested in the possible purchase of units. A small number of individuals were unhappy with both the density and the height. Engineering Department "The Engineering Department has no objections to the proposed text amendment provided the following issues are addressed prior to by-law enactment: - arrangements to the satisfaction of the General Manager of Engineering Services for removal/relocation of the existing wood pole in the lane, and corresponding easement on Lot 1, which affects access to the parking and loading; - arrangements to the satisfaction of the General Manger of Engineering Services for provision of concrete sidewalk on the east of Ash Street from West 45th Avenue, south, to the south property line of the site; - parking requirement is to be as per the RM-4 standard of the Vancouver Parking By-law and institutional parking requirement is to be as per the Vancouver Parking By-law; and - undergrounding of all services for this site is to be from the closest existing suitable pole." Permits and Licenses Permits and Licenses has undertaken an historical check of land uses on this site and indicated no soils assessment is required. Fire Services Building must comply with hi-rise requirements. Separate addresses required to all principal entrances. Drawing is not dimensioned. The distance from curb to principal entrance must be less than 15 m. New hydrant may be required. Subject to meeting above requirements at the development application stage, project is supportable." APPENDIX F Page 2 of 5 Social Planning Public art contributions apply to rezoning 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 to assess noise impacts on the site and recommend 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: "As with other development proposals coming forward in this community, the individual project may have merits, but the cumulative effects of the changes need to be assessed and placed in context. The project lies within the Jamieson Elementary School and the Churchill Secondary School catchment areas. There is available capacity at Jamieson at present, but this will likely disappear with the number of new multiple dwelling units suitable for families which are being proposed in the immediately vicinity. As noted in the proposal, this development has residential units suitable for children, and a large number of ground-oriented units. Previous comments about the over-crowding at Churchill apply in our review of this application. It is assumed that the attractiveness of the school program and its relative proximity to this site, along with the number of family-type residential units, will result in secondary-age children who will be seeking accommodation at Churchill. The school is over capacity at present and this proposal will contribute to the difficulties already existing at the school. In general, the proposal appears to be in keeping with the general directions taken by other new projects in the area. The request for additional FSR should only be considered in light of the broader picture emerging from increased development potential in the area. The anticipated enrolment increases from this and other new projects will contribute to capacity problems at Churchill and may begin to put capacity pressures on Jamieson." School Board staff also expressed concerns that the proposed density is not in keeping with the spirit of the Policy Statement and would add traffic to the local street system; also that the objective of providing affordable housing is not addressed. APPENDIX F Page 3 of 5 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, mischief such as graffiti and break and enter. Design that reduces fear should also be considered. 1) design development to reduce opportunities for theft in the underground; Note to Applicant: This can be achieved by: - fully securing the underground parking and bicycle storage, separation of residential and commercial users including elevator access; and - relocating south exit stairs from parking in semi-private areas within the view of residents and away from public view, and ensuring access to bicycle parking is fully secured (preferably within the security of the garage). 2) design development to reduce opportunities for break and enter; Note to Applicant: This can be achieved by: - deleting opportunities for cutting through the property, by deleting areas of concealment in front of ground level units (particularly in street oriented units); and - having exit stairs from parking exit beside the lobby rather than through the lobby (in coordination with the Fire Department). 3) design development to reduce opportunities for graffiti; and Note to Applicant: This can be achieved by deleting blank exposed walls and planter walls on the street and lane and replacing with landscaping. 4) 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. Provide good visibility in the underground in accordance with Section 4.12 of the Parking By-law and paint underground walls and ceiling white." APPENDIX F Page 4 of 5 Urban Design Panel (Minutes of Meeting of February 28, 1996) Evaluation: Support (10 - 0) Introduction: The Rezoning Planner, Rob Whitlock, presented this application for a Text Amendment to the existing CD-1 on the site which was part of the original rezoning for the area. The proposal, a joint venture project between St. John Ambulance and Greystone Properties, is for a new 2-storey facility for St. John Ambulance (along Cambie Street) with six floors of residential above, plus a 4-storey residential component along Ash Street, for a total of 67 residential units. Proposed density is 2.21 FSR and the height ranges from 60-80 ft. on Cambie Street and 40 ft. on Ash Street. The project also includes an 1,800 sq. ft. community space at grade. Noting the prevailing policy statement provides for the crafting of an FSR in the order of 1.85, the areas of concern identified by staff relate to the implications on the massing of the requested 2.21 FSR. In addition to overall comments, the advice of the Panel is sought on the bulkiness of the West 45th Avenue frontage, whether the massing on the lane to the south should be broken down, and shadow impact on West 45th Avenue. Applicant's Opening Comments: Allan Gjernes, Greystone Properties, provided some background to the proposal and Wally Pierce explained St. John Ambulance involvement in the project. Martin Bruckner, Architect, described the design rationale and Randal Sharp reviewed the landscape plan. Urban Design Panel's Comments: After reviewing the model and posted drawings, the Panel commented as follows: The Panel unanimously supported this application. The Panel strongly supported the proposed use and thought the project would be beneficial to the community. The Panel also considered the general massing to be appropriate in this location, although a lot of refinement will be necessary at the next stage of development. Some Panel members suggested the massing could be higher on Cambie Street. The concerns expressed by the Panel related to the form of development, mainly that the proposal looks like two separate projects. There needs to be much better integration between the commercial and residential uses, and the principles of view and sun should be addressed as design development proceeds. A comment was made that while the West 45th Avenue and Ash facades seem appropriate they do not yet read as townhouses. A stronger residential expression is needed. A recommendation was made by one Panel member that if it is decided to have enclosed balconies on the Cambie Street side, then this should be taken into account in the early stages of the exterior design. APPENDIX F Page 5 of 5 With respect to materials and finishes, it was recommended the project reflect what is in the area, especially on Cambie Street. There was a strong recommendation for the use of brick on facade, including at the higher levels of the building. Separating the buildings at the lane was not seen to be an issue. It was noted the parking lot site across the street (Oakridge Shopping Centre site) will likely be ultimately redeveloped up to 80 ft. With respect to landscaping, concerns were expressed about the ramp and it was recommended this be reworked on at the next stage. The courtyard should be maximized. One Panel member questioned whether the visual connection with the park will work, suggesting it might be better to internalize the courtyard. Applicant s Comments For over two years Greystone Properties Ltd. has been working with City Staff and the Oakridge Community to make the redevelopment of the St. John Ambulance site a reality. During the Oakridge Langara Planning Study, the St. John s site was recognized for it s unique ownership characteristics and location and as such was one of three sites given an 80 ft. height limitation. With this height limit, a density of 2.21 FSR fits comfortably on the site with the proposed eight storey and four storey building massing. The density was unanimously supported by the Urban Design Panel when it reviewed the rezoning application. In Kerrisdale at West 42nd Avenue and West Boulevard, Greystone completed a four storey residential/commercial building with a density of 2.24. The project fitted comfortably into that community. As mentioned in this report, the 2.21 FSR equates to $1.4 million in additional revenue to St. John Ambulance to be used for both capital costs and ongoing operational expenditures. The added density represents 20,000 sq. ft. of additional building area of 12-13 residential units. These units would, in our minds, have a minimal impact on the community, but represent a significant financial benefit to St. John Ambulance. However, if necessary, St. John ambulance may be willing to proceed with the rezoning at the lower density of 1.85, so that the organization can finally move forward with its rebuilding plans in order to provide a wider range of first aid and emergency services to the lower mainland residents. APPENDIX G APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION APPLICANT AND PROPERTY INFORMATION Street Address 6111 Cambie Street Legal Description Lot 1, Sub. B, Block 1008, D.L. 526, Plan 10803 Applicant Greystone Properties Ltd. Architect Eng and Wright, Architect Property Owner St. John Ambulance Developer Greystone Properties Ltd. SITE STATISTICS GROSS DEDICATIONS NET SITE AREA 4 371 m2 - 4 371 m2 (47,051 sq. ft.) (47,051 sq. ft.) DEVELOPMENT STATISTICS RECOMMENDED DEVELOPMENT PERMITTED UNDER PROPOSED DEVELOPMENT DEVELOPMENT (if EXISTING ZONING different than proposed) ZONING CD-1 (#12) (4 Sites) New CD-1 - USES Accessory uses, Child Day Care Institutional Use of Facility, Church, Philanthropic or Institutional Use of Charitable character, Religious, Philanthropic or including St. John Charitable character, Parking Ambulance; Area Ancillary to a principle Dwelling Units use on an adjacent site DWELLING UNITS Not Permitted 67 units MAX. FLOOR SPACE RATIO 0.635 2.21 1.85 MAXIMUM HEIGHT 9.1 m (30 ft.) 24.4 m (80 ft.) MAX. NO. OF STOREYS Not specified 8 Storeys PARKING SPACES As Existing 175