Proposed CD-1 Amendment - 7252 Kerr Street (Southview Lodge...

P1
POLICY REPORT
DEVELOPMENT AND BUILDING

Date: December 11, 1996
Dept. File No. 96003 RW

TO: Vancouver City Council

FROM: Director of Land Use and Development

SUBJECT: Proposed CD-1 Amendment - 7252 Kerr Street
(Southview Lodge)

RECOMMENDATION

THAT the application by Neale Staniszkis Doll Adams Architects to
amend the existing CD-1 By-law No. 4550 (No. 68) for 7252 Kerr
Street ( Lots 3 and 4 of Lot A, D.L. 334, Plan 13993) by creating a
new CD-1 to permit special needs residential uses, and amending the
existing CD-1 to delete references to 7252 Kerr Street, be referred
to a Public Hearing, together with:

(a) draft CD-1 by-law provisions generally as contained in
Appendix A;

(b) draft conditions of approval contained in Appendix B;

(d) 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-laws for consideration at the Public
Hearing.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of
the foregoing.

COUNCIL POLICY

Southeast Sector Development Plan, approved in 1968.

PURPOSE AND SUMMARY

This report analyses a rezoning application to permit the redevelopment
of an existing personal care home which has reached the end of its
usefulness, both in terms of practical use and in meeting requirements
under current Provincial regulations and policies for such institutions.
The proposal would double the amount of development on the site, over an
approximately 10-year period.

The application has received favourable response from City departments
and neighbouring residents, and staff recommend that the application be
referred to Public Hearing and be approved.

DISCUSSION

Height: Residents immediately east of the site asked that the roofline
along the eastern side of the proposal be modified to reduce the effect
of the building height. The applicant has agreed to this change.

On-street Parking Lay-by: The applicant wishes to provide a lay-by on
East 58th Avenue adjacent to the main entry to the seniors housing
component. The applicant feels that the lay-by "is important and
necessary because it allows for safe drop-off and pickup" directly in
front of this entry point. Engineering Services is prepared to provide
a "Passenger-only Zone" in the same location, but does not support the
lay-by, particularly given the ability to access entrances to the
building from the internal parking area on the east side of the site.
Condition 2 (ii) (Appendix B) requires the applicant to delete the
lay-bys (a second had also been proposed on Kerr Street but is no longer
sought by the applicant).

The Seniors Advisory Committee supports the lay-by as it is seen as
"necessary for those frail seniors as they embark from cars".

CONCLUSION

Staff recommend that this application be referred to Public Hearing and
that the application be approved.

* * *
APPENDIX A

DRAFT CD-1 BY-LAW PARAMETERS
(7252 KERR STREET [SOUTHVIEW LODGE])

A) FOR 7252 KERR STREET

Uses: Special Needs Residential Facility - Community Care - Class B.

Special Needs Residential Facility - Congregate Housing, which may
include self-contained residential units.

Accessory Buildings and Uses customarily ancillary to any of the
uses listed in this section.

FSR: Maximum 1.25

Height: 3 Storeys.

Parking: A minimum of 65 parking spaces are to be provided, developed
and maintained in accordance with the Parking By-law and the
specific requirements for each separate phase of development,
and in accordance with the following standards:

1. one space for each six community care beds;
2. one space for every two congregate housing units;
and
3. visitor parking to be provided at the rate of 10
percent of the total number of community care
beds or congregate units which will exist at the
end of each phase.

The Director of Planning, on the advice of the General
Manger of Engineering Services, will have regard for
the parking needs of existing development on the site
and may grant a relaxation in meeting the above-noted
standards where such relaxation will not impact
surrounding developments and residents or the parking
needs of staff, residents or visitors to the site.

B) FOR EXISTING CD-1 BY-LAW NO. 4550 (CD-1 #68)

PLAN: Delete site from CD-1 District.

APPENDIX B

PROPOSED CONDITIONS OF APPROVAL
(7252 KERR STREET [SOUTHVIEW LODGE])

1. THAT the proposed form of development be approved by Council in
principle, generally as prepared by Neale Staniszkis Doll Adams
Architects and stamped "Received City Planning Department, June
20, 1996"; 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 development applications for each of the three
phases, the Director will have regard for the following
considerations:

i) the roof line of the buildings along the easterly
property line are to be redesigned to reduce the affect
of the height on adjacent properties to the east;

ii) lay-bys shown on Kerr Street and East 58th Avenues are to
be deleted from the drawings;

iii) existing and proposed crossings are to be combined into a
single entry point on East 58th Avenue;

iv) the bottom of the proposed parking ramp is required to be
redesigned to provide adequate two-way traffic flow;

v) two loading spaces are to be clearly indicated;

vi) a class B passenger space (e.g., handi-dart) is to be
provided as required by the Parking By-law;

vii) design development to take into consideration the
principles of CPTED (Crime Prevention Through
Environmental Design) including reducing opportunities
for:

- theft in the underground parking area;
- ground level break and enter; and
- cutting through the property given the proximity to
the mall.

viii) attention to Fire Department concerns outlined in
Appendix E of the Manager's report; and

ix) submission of a landscape plan to include investigation
of relocating some of the existing mature trees earmarked
for elimination, to other parts of the site, where
feasible.

APPENDIX C
Page 1 of 2

SITE AND SURROUNDING DEVELOPMENT

The site is located on the northeast corner of Kerr Street and East 58th
Avenue. The site has a frontage along Kerr Street of 101.5 m (333 ft.)
and a frontage along East 58th Avenue of 103.9 m (341 ft.). The total
site area is 10,445 m2 (112,433 sq. ft./1.04 ha [2.58 acres]).

The site was rezoned in 1970 as part of the development plan for the
then undeveloped "South East Sector" (now Champlain Heights) which was
largely owned by the City. A development plan was approved by Council
in 1968.

The present building on the site was constructed as a personal care home
for the elderly with 115-beds and associated dining, lounge,
administrative and support areas. The development is now having to cope
with higher levels of care and provincial standards which it can no
longer meet.

Proposed Development

The redevelopment is proposed to occur in three phases:

Phase 1 will see development of 57 self-contained congregate
units to function as seniors assisted living residences for
rent. Parking will be provided at the rate of one space for
every two units. The new development will be connected to the
existing centre block in order to allow residents to use
existing common areas.

Phase 2 will consist of a 96-bed multi-level care facility, to
include convalescent care, special care and intermediate care
beds. Parking will be provided at the rate of 1 space for every
six beds.

Phase 3 will provide for renovations to the central building
plus 10 additional congregate units.

When completed the overall development will reach a maximum floor space
ratio of 1.25.

APPENDIX C
Page 2 of 2

In terms of the overall design, buildings are generally located in the
same places as the existing site layout, but they are larger, both in
terms of building footprint and height. A soft residential approach is
used for the facades, with a gently sloped principal roof and pitched
gables over bay windows. The key to the redevelopment is retention of
the large grassed forecourt along Kerr Street which will continue to
provide for passive recreation and greenspace for the residents of the
project.

With regard to the existing landscaping on the site, 38 of 72 trees
located on the plan will be removed because of the redevelopment. A few
of these may be relocated and a condition is established in Appendix B
to provide for this investigation at the development permit stage.

APPENDIX D

PROPOSED DEVELOPMENT PLAN

APPENDIX E
Page 1 of 4

PUBLIC AND OTHER INPUT

Public Input: Notice signs were posted on the site June 29, 1996. Early
notification letters were mailed on August 9, 1996.

To date, two letters have been received, expressing support for the
redevelopment, but expressing concerns about the extent of disruption
likely to be caused over the construction period.

One of these letters was received from a resident of Highgate, the
townhouse complex immediately south of the rezoning site, on the south
side of East 58th Avenue. The individual expressed concerns about the
changing nature of the development, with some residents likely to have a
greater functional level than existing residents and wondered whether
this would mean more visits to the site in terms of elderly friends and
relatives of new residents. Noting that a fatality had occurred at the
corner of 58th and Kerr in the time that the application is being
processed, the resident suggested at the very least that a
vehicle-sensitive light be installed for cars to safely make the left
turn from East 58th Avenue to go south on Kerr Street.

The resident also wondered about the removal of asbestos and the
potential harm to surrounding residents.

Engineering Services Comments: Engineering Services has no objection
to the proposed rezoning provided the following issues are addressed at
the appropriate stage:

- Parking is to be provided as per the Vancouver Parking By-law.
- The lay-bys on Kerr Street and East 58th Avenue are not supported
and should be deleted from the drawings.
- The existing and proposed crossings are to be combined into a
single entry point on East 58th Avenue. - A redesign of the bottom of the proposed parking ramp is required
to provide adequate two-way traffic flow.
- The two loading spaces for this development are to be clearly
indicated on the drawings.
- A class B passenger space (e.g., handyDART) is to be provided as
per the Vancouver Parking By-law.

Fire Department's Comments: The Fire Department has indicated that fire
access to Building la must comply with VBBL requirements of maximum of
15 metres from curb to principal entrance. Depending upon Phase 2
design, a secondary access may be required, fire lane included. The
Vancouver Fire Department advises that the applicant considers looking
at the fire safety equipment design for cost considerations, building
may be considered as a hi-rise.

APPENDIX E
Page 2 of 4

The applicant has responded as follows:

The new south building (Phase 1) will be a separate building with a fire
rated firewall separation between it and the existing building. Two
response locations will be required, one at the new building which will
have a front entrance onto 58th Avenue and the second will be the
existing response location, i.e., the entry from the east parking access
driveway which meets fire lane design.

The new building will have independent fire suppression and emergency
systems.

The second phase will be a separate development permit application
sometime in the next 5-10 years.

Our understanding is that the discussion and this confirmation of the
items above has cleared up the concerns of the Fire Department at the
rezoning stage.

The Fire Department agrees with this understanding.

Permits and Licenses: No soils assessment is required.

Health Department: The City's acoustical criteria shall form part of
the Zoning By-law, and an Acoustical Consultant's report shall be
required which assesses noise impacts on the site and recommends noise
mitigating measures.

For the proposed Community Care Facility (adult care), plans will have
to be submitted for approval to C.C.F.L., V.H.B.

An acoustical report will be required and consultant's recommendations
for mitigating measures must be incorporated into final design and
construction.

Social Planning: No public art required on social housing or special
needs residential facilities.

Seniors Committee of Council: The following letter was sent from the
Seniors Advisory Committee to the applicant, on September 13, 1996:

At the Seniors Advisory Committee meeting held July 26, 1996 the
Committee wholeheartedly endorsed the concept behind the redevelopment
of Southview Lodge. Particularly they endorsed the concept of continuum
of care which is expressed in this project, with the addition of the
multi-care level in the second phase.

However, we were very disappointed to learn there is a possibility the
Ministry of Health may not approve this project because that particular
area of Vancouver has reached its quota of care facilities and other
areas of Vancouver are in more need.

APPENDIX E
Page 3 of 4

We would argue it is important to allow seniors to "age in place" where
possible. The building of a multi-care facility on Southview Lodge site
would effectively provide a continuum of care to the residents thereby
allowing them to "age in place". As a senior's health declines, they
certainly do not need the added strain of moving out of their familiar
surroundings and into a new neighbourhood. The Salvation Army has
served the residents of South Vancouver for many years through its
facility at Southview Lodge and the Seniors Advisory Committee to
Vancouver City Council would like to see that continue. We therefore
fully support this project.

If we can be of assistance to you as you seek approval from the Ministry
of Health, please let us know.

Urban Design Panel: The Urban Design Panel reviewed this application on
July 31, 1996. Comments are as follows:

EVALUATION: SUPPORT (5-0)

Introduction: The Rezoning Planner, Rob Whitlock, introduced this
CD-1 application to allow redevelopment of the Southview Lodge,
operated by the Salvation Army since 1974. Mr. Whitlock briefly
described the site context. The project is to be developed in
three phases. The first phase proposes to demolish the existing
south wing and replace it with 57 self-contained rental apartments,
connected to the existing centre block for access to common areas.
Parking will be provided at a ratio of one space for every two
units. The second phase, projected to be built in about 5-6 years
time, (north wing) will comprise a 96-bed multi-level care facility
to include convalescent care, special care and intermediate care.
Phase 3 will provide for renovations to the centre building, plus
an additional ten congregate units. When complete, the overall
development will reach a maximum FSR of 1.2. The large forecourt
on Kerr Street will be retained and will continue to provide
passive recreation. Thirty-eight (38) of the existing 72 trees
will be removed and a few of them may be able to be relocated on
the site. The Planning Department has no major issues with this
proposal and consider it to be a good form of development and
appropriate density.

Applicant's Opening Comments: Garth Ramsey, Architect, had nothing
to add to the Planner s description of the project.

Panel's Comments: After reviewing the model and posted drawings,
the Panel commented as follows:

The Panel unanimously supported this rezoning application. The
proposed density, massing and positioning of the elements on the
site are all appropriate in this context.

Appendix E
Page 4 of 4

With respect to the first phase, the Panel found the understated
architectural expression of the south building very refreshing. In
design development, attention should be given to ensuring there is
a good relationship with the existing building, given the long-term
phasing aspects of this project.

The applicant's detailed report is commendable, including the very
thorough tree assessment. As much relocation of existing trees is
strongly encouraged.

Applicant's Comments: The applicant has reviewed this report and
provided comments in the form of a letter with attached drawings shown
in Appendix F.

APPENDIX G

APPLICANT, PROPERTY AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address 7252 Kerr Street
Legal Description Lots 3 and 4, D.L. 334, Plan 13993

Applicant Garth Ramsey, Neale Staniszkis Doll Adams

Property Owner Governing Council of the Salvation Army,
Canada West
Developer - Same -

SITE STATISTICS

GROSS DEDICATIONS NET

SITE AREA 10 445 m2 - 10 445 m2

DEVELOPMENT STATISTICS

DEVELOPMENT PROPOSED DEVELOPMENT
PERMITTED UNDER
EXISTING ZONING

ZONING CD-1 New CD-1

USES Personal Care Special Needs
Residential
Facilities
DWELLING UNITS 115 existing 163

MAX. FLOOR SPACE 0.60 1.20
RATIO

HEIGHT As existing *
MAX. NO. OF 2-storeys 3-storeys
STOREYS

PARKING SPACES As existing 65 spaces

FRONT YARD As existing *
SETBACK

SIDE YARD SETBACK As existing *
REAR YARD SETBACK As existing *

* in accordance with proposed phased form of development