P1                                      APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
                                                            POLICY REPORT
                                                      DEVELOPMENT AND BUILDING     APPLICANT AND PROPERTY INFORMATION

                                                                         Date: January 14, 1997       Street Address                    2940-2970 East 22nd Avenue
                                                                         Dept. File No. 96036-LC       Legal Description                 Lot 1, Sec.48NW¨, Pl. 18185 and Lots 5 & 6, Sec.48NW¨, Pl.7436 
                                                                         C.C.  File: 5308-1
       Applicant                         Scott Gordon

     TO:              Vancouver City Council       Architect                         Buttjes & Gordon Architects
       Property Owner                    Three Links Care Society
     FROM:    Director of Land Use and Development
       Developer                         Three Links Care Society
     SUBJECT:         CD-1 Rezoning - 2940-2970 East 22nd Avenue
     SITE STATISTICS

     RECOMMENDATION               GROSS                     DEDICATIONS                     NET

              THAT the application by Buttjes and Gordon Architects to rezone 2956-2970 East 22nd Avenue [Lots 5 and 6, Section       SITE AREA                  3 662.7 m2 (39,426                                        3 662.7 m2      (39,426
              48 NW¨, Plan 7436] from C-1 to CD-1 and to amend CD-1 By-law No. 5343 for 2940-2944 East 22nd Avenue [Lot 1,                                                                                                                                                           sq.ft.)                                                   sq.ft.)
              Section 48 NW¨, Plan 18185], to permit the expansion of a Special Needs Residential Facility - Community Care -
              Class B, be referred to a Public Hearing, together with:     DEVELOPMENT STATISTICS

              (i)     plans received September 17, 1996;                                           DEVELOPMENT                                                 RECOMMENDED
                                         PERMITTED UNDER                  PROPOSED                  DEVELOPMENT (if 
              (ii)    draft CD-1 By-law amendments, generally as contained in Appendix A; and                                        EXISTING  ZONING                 DEVELOPMENT                 different than 
                                                                                                        proposed)
              (iii)   the recommendation of the Director of Land Use and Development to approve, subject to conditions
                      contained in Appendix B.       ZONING                     C-1 and CD-1                   CD-1

       USES                       C-1: Commercial uses,          SNRF, Social Service              FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-laws for consideration at                                                                                                                            
                                  dwelling units                 Centre (Adult Day              Public Hearing, including a consequential amendment to the Sign By-law to establish sign regulations for this                                                                                                                          
                                  CD-1: SNRF                     Care),Retail, Health Care              CD-1 in accordance with Schedule "B" (C-1).
                                                                 Office and Service Uses
     GENERAL MANAGER'S COMMENTS       MAX. FLOOR SPACE RATIO      C-1: 1.20                     1.50
                                  CD-1: 1.24  
              The General Manager of Community Services RECOMMENDS approval of the foregoing.
       MAXIMUM HEIGHT             C-1: 9.2 - 10.7 m (30 - 35     12.0 m (39 ft.)
     COUNCIL POLICY               ft.)
                                  CD-1:9.754 m (32 ft.) 
     Relevant Council policies for this site include:       PARKING SPACES             CD-1: 1/3.5 bed-units          39 spaces (26 underground     1/6 units for staff plus
                                  (SNRF)                         and 13 surface)               1/10 units for
             the Special Needs Residential Facility Guidelines (adopted September 27, 1983) which are intended to ensure that                                  C-1: retail, service,                                        visitors(SNRF);
              a special needs residential facility is compatible with the surrounding neighbourhood.                                  office 1/100 m2 (1/1,076                                     Other uses per Parking
                                  sq.ft.)                                                      By-law
     PURPOSE AND SUMMARY

     This report assesses an application to rezone the site at 2956-2970 East 22nd Avenue from C-1 to CD-1 and amend CD-1
By-law No. 5343, which applies to the site at 2940-2944 East 22nd Avenue, to allow the expansion of a three-storey special needs residential facility (SNRF) - community care - class B to provide an additional 26 beds. The expansion would also provide space at grade for retail, health care office and service uses and for a social service centre (an adult day care). Also proposed are an additional 13 underground parking spaces and 5 surface parking spaces at the rear of the expansion. The facility would be developed by the Three Links Care Society which owns and operates the existing facility. A small addition is also proposed at the entrance to the existing facility to increase the residents dining and lounge areas. Staff support this application which will increase the number of multi-level care beds available in this neighbourhood, while at the same time preserving local-serving commercial space and providing space for an adult day care. MAP Staff recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions. DISCUSSION Use: The two parcels proposed to be rezoned (lots 5 and 6) are zoned C-1 which is intended to provide for the day-to-day shopping needs of the local neighbourhood. The proposal would rezone the two parcels to allow an increase in beds for multi-level care while including commercial floor space at ground level. This space could include retail, health care office and service uses and would benefit both the facility s residents and the neighbourhood. The application also proposes to provide space for a social service centre (adult day care) for elderly residents in the area. (Appendix C provides further details.) Staff support the expanded SNRF, as it would further contribute to the number of multi-level care beds available in this area of the city. This is an appropriate location for this use because the site is well-served by transit and adjacent to a range of facilities and services (park, community centre, library and local shopping). Density: The maximum density for development under C-1 zoning is 1.20 floor space ratio (FSR) and the maximum density under the existing CD-1 zoning is 1.24 FSR. Although the proposed addition would bring the overall density up to 1.50 FSR, staff consider this density acceptable for the following reasons:  the expansion (but not the existing facility) will respond to B.C. Ministry of Health multi-level care facility guidelines which have significantly increased (more than doubled) the floor area required per care facility resident. The applicant has advised that the higher density is required to meet the guidelines within the funding provided;  the higher density is partially a result of bringing the ground floor of the proposed expansion forward to continue the pedestrian streetscape of the adjacent C-1 properties;  the addition is separated from nearby RS-1S-zoned properties by a full lane and a 6.0 m (20 ft.) rear setback, therefore building bulk impact will be minimized;  neither the Urban Design Panel nor the nearby residents and property owners have expressed concerns about the proposed density; and  the addition would not look substantially larger in scale than the existing building. Form of Development: The applicant has designed the expansion to the east and the small addition at the existing entrance to combine the institutional character of the existing care facility with the style of the Renfrew Library located across East 22nd Avenue. Sloped roof elements, which include the clerestory windows on the expansion and the rooftop of the small addition, are intended to subtly reflect the angles and shapes of the Library. These minor elements increase the height of the building to 12.0 m (39 ft.) which is greater than the maximum height of 10.7 m (35 ft.) which may be permitted under C-1 zoning. However, staff find this increase acceptable, as the height of the majority of the expansion would be the same as the existing building s height of 9.7 m (32 ft.), and the purpose of the additional height is to allow for minor architectural features. View loss to the adjacent neighbours would be the same as for development under the existing C-1 zoning. Staff and the Urban Design Panel generally support the relationship between the existing building and the proposed additions and staff recommend that design development at the development application stage should further improve the relationships through the treatment of materials and massing. (Conditions: Appendix B; Plans: Appendix E). Landscape Resources: The applicant has provided a landscape concept for the expanded portion of the building. However, a comprehensive landscape plan for the entire facility will be required at the time of development application to respond to concerns about the transition between the surface parking and the building and between the existing building and the additions. Staff and the Urban Design Panel agree that a comprehensive landscape plan would help tie together the development over the entire site. The proposed addition at the entrance of the existing building affects 4 large trees which staff recommend as a condition of rezoning be relocated to a new permanent location adjacent to this addition (see Appendix B). These trees, which are approximately 6.0-7.6 m (20-25 ft.) high, are considered to be in excellent condition. CONCLUSION Planning staff support the proposed rezoning and amendments to the existing CD-1 By-law to allow the expansion of and improvements to the existing care facility (SNRF - Community Care - Class B). Staff also support the inclusion of space for retail, health care office and service uses and a social service centre (adult day care), all of which contribute to the benefits offered to the community by this proposal. Staff recommend that the application be referred to a Public Hearing with a recommendation from the Director of Land Use and Development that it be approved, subject to draft CD-1 By-law provisions generally as shown in Appendix A, and to proposed conditions of approval as listed in Appendix B. * * * * * DRAFT CD-1 BY-LAW AMENDMENTS 1. Amend Section 2, Uses, of CD-1 By-law No. 5343, by deleting clause (a) and (b) and replacing with the following: (a) Special Needs Residential Facility - Community Care - Class B, (b) Office Uses, but limited to Health Care Office and Health Enhancement Centre, (c) Retail Uses, but limited to Grocery or Drug Store and Retail Store, (d) Service Uses, but limited to Barber Shop or Beauty Salon, Photofinishing or Photography Studio, Print Shop, Repair Shop - Class B and Restaurant - Class 1, (e) Social Service Centre, limited to an adult day care providing drop-in or activity space, and (f) Accessory Uses customarily ancillary to the above uses; 2. Amend Section 3, Floor Space Ratio, by deleting the first sentence and replacing with the following: "The floor space ratio shall not exceed 1.50, subject to the following: (a) the floor area in retail uses, service uses, and social service centre combined shall not exceed 320 m2." 3. Amend Section 4, Height, by replacing the figures 9.754 m (32 ft.) with the new figure 12.0 m . 4. Amend Section 5, Off-Street Parking and Loading, by deleting the first and second paragraphs and replacing with the following: Parking and loading must be provided, developed and maintained in accordance with the applicable provisions of the Parking By-law, except that (a) a minimum of one space for every 6 sleeping units must be provided for staff parking, (b) a minimum of one space for every 10 sleeping units must be provided for visitor parking, and (c) a minimum of three spaces, of the total number of parking spaces provided, shall be suitable as disability spaces. 5. Add Acoustical Provisions as per the C-1 District Schedule. PROPOSED CONDITIONS OF APPROVAL (a) That the proposed form of development be approved by Council in principle, generally as prepared by Buttjes and Gordon Architects, and stamped "Received City Planning Department, September 17, 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: (i) design development to improve the relationship of the massing and treatment of the north entrance addition to the existing building; (ii) design development to improve the relationship of the new addition to the existing building through the treatment of materials and massing; (iii) design development to bring the storefront glazing to the property line; (iv) design development to provide details for the adult day care facility, such as the location of washrooms, kitchen, etc; (v) design development through submission of a comprehensive landscape plan for the entire facility, to address the following: - softening the existing parking access off East 22nd Avenue, through landscaping and surface treatment; - provide street furniture in the setback of the existing building, where feasible; - improve the transition between the surface parking on the lane and building through landscape treatments while ensuring open sightlines; and - relocation (with a tree spade) of trees on the site of the proposed lounge/dining addition to a new permanent location adjacent to the addition; (Note: Photographs reveal these trees [three Blue Spruce and one Cherry, approximately 6.0-7.6 m (20-25 ft.) high] to be in excellent condition.) (vi) design development to reduce opportunities for theft in the underground parking area. (Note to Applicant: The open exit stair at the rear will create an opportunity for easy access to the underground as well as creating an opportunity for mischief. These stairs should be relocated with a flush door on the outside of the building. Design of the underground parking in accordance with section 4.12 of the Parking By-law and painting the walls, ceilings and utility pipes white.) (c) That, prior to enactment of the CD-1 By-law, the registered owner shall, at no cost to the City: (i) consolidate Lots 1, 5 and 6, Section 48 NW¨, Plans 18185 and 7436; and (ii) make arrangements for all new electrical and telephone services to be undergrounded within and adjacent the site from the closest existing suitable service point. ADDITIONAL INFORMATION Site: The site includes three legal parcels with a total area of 3 662.7 m2 (39,426 sq. ft.) located on the south side of East 22nd Avenue between Renfrew and Nootka Streets. The site presently contains the Three Links Care Facility on the westerly parcel, and a 1-storey commercial building and a 2-storey building with commercial uses on the main floor and residential use above, on the two easterly parcels. The 74-bed care facility, which was built in 1981 and is owned and operated by the Three Links Care Society, is a 3-storey building with a partial basement and underground parking for 13 vehicles. Eight surface parking spaces are also provided off the lane at the rear of the building. Surrounding Area: Immediately to the east of the site are two C-1 lots occupied with 1- and 2-storey buildings with commercial uses at grade and dwelling units above. To the south and further east of the site is an RS-1S One-Family Dwelling District of primarily 1- and 2-storey one-family dwellings, some of which contain secondary suites. North of the site, fronting on to East 22nd Avenue, are the Renfrew Community Centre, Renfrew Library and Renfrew Park. To the west of the site, across Renfrew Street, is a CD-1 zoned site with a 3-storey multiple dwelling providing rental accommodation for seniors. This development is also owned and operated by the Three Links Care Society. Northwest of the site, across Renfrew Street, are C-1 zoned lots occupied with a gasoline station, two one-family dwellings and a 2-storey commercial building. Proposed Development: The application proposes a 3-storey expansion at the east end of the existing facility to provide an additional 26 residential rooms and associated dining and lounge space on the 2nd and 3rd floors and 320 m2 (3,445 sq. ft.) of commercial and social centre space on the ground floor. The commercial space would preserve some of the neighbourhood s local-serving commercial space. The social service centre space is intended to accommodate an adult day care that is currently operated by the Renfrew Collingwood Seniors Society elsewhere in the area. The Seniors Society offers programs for older adults residing in the community to provide socialization for the seniors and respite for care givers. The services include: meals, bathing, arts and crafts and social programs. Although the Renfrew Collingwood Seniors Society has shown interest in the proposed space, there are presently no formal arrangements between them and the Three Links Care Society. Also proposed is a small 124 m2 (1,335 sq. ft.) addition to the entrance of the existing building to provide additional dining and lounge space for the current residents. Parking: The expansion would include 13 underground parking spaces with another 5 surface parking spaces at the rear of the building. This would bring the total parking for the care facility up to 39 spaces, of which 26 spaces would be underground and 13 spaces would be at grade. The parking and loading requirements in the existing CD-1 By-law specify that parking be provided at a ratio of 1 space per 3.5 bed-units. Staff recommend that parking and loading for the entire development (existing building and proposed addition) be provided according to the Parking By-law, except that parking for the SNRF be provided at a minimum rate of 1 space for every 6 rooms for staff parking and 1 space for every 10 rooms for visitor parking. The total number of parking spaces required for the SNRF (27 spaces) will be almost the same as the number that would have been required by the previous ratio (28 spaces), however, the proposed method of calculating the parking requirement would be altered to be consistent with the method used more recently for SNRF developments. Parking for other uses (retail, health care office, service and social service centre) would be provided in accordance with the Parking By-law. The parking proposed with the rezoning application (39 spaces) is more than necessary to meet the parking requirements for the uses proposed, except that the amount of restaurant or health care office use that could be included in the proposal is limited by the higher parking standards for these uses. SNRF Guidelines: The proposed expansion is consistent with the Special Needs Residential Facility Guidelines which seek to ensure that special needs residential facilities are compatible with the surrounding neighbourhood. The Guidelines also recommend that in a predominately residential area there should be at least 200 m (656 ft.) between SNRFs, although a community care facility for seniors is normally excepted from this criteria. Social and Environmental Implications: There are no implications with respect to the Vancouver Children s Policy or Statement of Children s Entitlements. The proposed rezoning neither contributes to nor detracts from the objective of reducing atmospheric pollution. COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES, AND THE APPLICANT Public Input: A notification letter was sent to 260 nearby property owners on October 15, 1996 and a rezoning information sign was posted on the site on October 24, 1996. Two phone calls and one E-mail were received from residents and two people came to City Hall to view plans. There were no objections to the proposed rezoning. Comments of the General Manager of Engineering Services: Engineering Services has no objection to the proposed rezoning, provided that the following issues are addressed prior to by-law enactment: - Arrangements to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for consolidation of the site. - Parking to be provided as per the Vancouver Parking By-law, except that the community care facility shall provide parking at a minimum rate of 1 stall per 6 beds for staff and 1 stall per 10 beds for visitors. - All new telephone and hydro services are to be undergrounded within, and adjacent the site from the closest existing suitable service point. Seniors Advisory Committee Comments: All comments of the Committee have been passed on to the applicant and those which may be dealt with at the development permit stage have been incorporated in Conditions of Approval. [Appendix B - item (b)(iv)] Urban Design Panel Comments: The Urban Design Panel reviewed this proposed rezoning on October 9, 1996, and offered the following comments: The Panel supported the proposed use, density and form of development in this location. With respect to the parking ramp, the Panel agreed that it could be better placed, however, it was also acknowledged that an alternative location may not be possible given the slope of the site. The additional parking at the rear was not seen to be a major problem although there were suggestions to soften the area between the parking and the building with a planting strip. Trees in this area would also improve the outlook from the building. The Panel felt the project could benefit from an overall review of the site, and a comprehensive landscape plan was strongly recommended. For example, a landscape plan that includes the whole site could incorporate some treatment at the front sidewalk level which would tie together some elements on the street. The Panel generally supported the direction the project was taking with respect to the relationship between the existing building and the proposed addition. The relationship to the neighbouring commercial also seems appropriate. The Panel thought the architectural issues could be worked out at the next stage. The concept is appropriate but it needs refinement. In particular, the two-storey frontage element and the new addition were thought to need improvement. Comments of the Applicant: The applicant has been provided with a copy of this report and has the following comments: We have reviewed your written rezoning report and find it explains all the issues. We have no problem with the report.