P2
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: January 21, 1997
Dept. File No. MG
C.C. File: 5300/8007-4
TO: Vancouver City Council
FROM: Director of Central Area Planning
SUBJECT: Policy for Residential Rezonings in the Central Business District and Related Zoning Amendments
RECOMMENDATION
A. THAT the Director of Land Use and Development be instructed to make application to amend the Downtown
Official Development Plan to provide revised density provisions for residential and non-residential uses
in the Downtown District, generally in accordance with Appendix A; and
FURTHER THAT the application and draft by-law provisions be referred to a Public Hearing, together with
design guideline amendments attached as Appendix B, and the recommendation of the Director of Central
Area Planning that the application be approved;
AND FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-laws for
consideration at the public hearing.
B. THAT the Central Area Plan, adopted by Council on December 3, 1991, be amended to include the policy for
Residential Rezonings in the Central Business District, attached as Appendix C.
C. THAT staff report back with a Development Cost Levy By-law for Triangle West and adjacent Alberni Street
sites.
CONSIDERATION
D. THAT as a condition of development permit approval, covenants be placed on the title of dwelling units
where they are located on development sites on the east side of the 800 and 900 blocks of Howe Street,
the purpose of the covenant being to forewarn the ppurchaser that there is an entertainment district on
adjacent blocks of Granville Street and there may be noise impacts.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A, B and C, and submits D for CONSIDERATION.
COUNCIL POLICY
The Downtown Official Development Plan (DODP) permits residential in the Central Business District (CBD) up to a floor
space ratio (FSR) of 3.00. It also provides a bonus (i.e. the housing bonus) of additional commercial density if
residential is provided, with the amount of bonus varying in different sub areas.
The 1991 Central Area Plan includes policies to delete housing as a permitted use in the defined CBD and not thereafter
consider residential rezonings in this area except for heritage retention. Housing has not yet been deleted from CBD
zoning.
In 1993 these policies were amended to occasionally consider residential rezonings in the CBD up to current allowable
densities for retention of significant business support facilities in addition to heritage. At the same time, Council
emphasized that the CBD is primarily for office commercial development (see Appendix D for policy statements).
The 1991 Plan also called for removal of the housing bonus provisions near the CBD and to replace this with a 'choice of
use' zoning. The housing bonus remains in some sub-areas. However, there has been little interest in the mixed-use
buildings permitted in this zoning.
Within the CBD, there have been very few rezonings. In housing bonus sub-areas, most housing has occurred through
rezonings to allow single use high density buildings, rather than through the bonus.
Since 1989, City Council has been requiring payment of community amenity contributions in the Central Area for
privately-initiated, site-specific residential rezonings that will increase the population. Starting in 1992, development
cost levies, enabled by a by-law and collected through the development approval process, have been invested in new
neighbourhood areas to pay for facilities.
SUMMARY
This report recommends the referral of zoning amendments to public hearing, that will:
delete residential as a permitted use in the core of the Central Business District (CBD);
delete the housing bonus in areas of the CBD surrounding the core; and
introduce choice of use zoning in the Triangle West district and for sites on the south side of Alberni Street
between Bute and Burrard Streets and along Burrard Street, generally south of Smithe Street.
'Choice of use' zoning allows an owner to choose between residential and non-residential uses. Office uses will not be
permitted to exceed current limits in the zoning due to the limited capacity of the city s transportation infrastructure
to handle increased numbers of commuters. Residential use in areas of the CBD, outside the core, will remain under the
current limit of 3.0 FSR. In other 'choice of use' areas, the density allowance will be increased for housing.
These zoning changes implement the policies approved by Council in 1991 as part of the Central Area Plan. They have been
discussed in a public meeting and with Downtown business groups, property owners and tenants.
A residential rezoning policy is also recommended that provides direction for the evaluation of residential rezonings for
sites located in the CBD that are outside the 'Core CBD'. Among other criteria, it indicates that rezonings will only be
considered in cases where there are sufficient development sites in the CBD to accommodate new office development over a
20-year period into the future.
The overall affect of these zoning and policy changes will be more efficient handling of development proposals with fewer
rezonings and faster processing of applications based upon updated policies.
PURPOSE AND BACKGROUND
This report recommends updated residential zoning and refinement of policy for residential rezonings in and around the
CBD. The zoning changes will implement the approved Central Area Plan.
Several views on CBD housing are prevalent within the business community. Some want no housing in the CBD because it
reduces opportunities for the development of head offices but others want more flexibility to consider housing proposals.
Staff have facilitated a process with business organizations to reconcile differences and frame updated policies. The
Downtown Vancouver Association, the Urban Development Institute, the Vancouver Board of Trade and the Vancouver Building
Owners and Managers Association, in consultation with City staff have been involved with reassessing the rezoning
policies and finalizing conclusions on the zoning. These organizations also support the deletion of the housing bonus
provisions as envisioned in the Central Area Plan.
DISCUSSION
For policy purposes, a distinction is made between the 'Core CBD' and the rest of the CBD, sometimes called the 'fringe'
of the CBD (see map in Appendix C). The 'Core CBD' is the area generally between Thurlow and Seymour from Robson Street
north to the waterfront where most of the major office buildings are located and much of the City's major business is
conducted. The rest of the CBD has some office buildings, many support uses and much of the capacity for further office
development in the Downtown.
Proposed CBD Residential Zoning and Rezoning Policies
The deletion of the residential density allowance in the 'Core CBD' is proposed. The existing permitted residential
density of up to 3.00 FSR will be retained in the rest of the CBD. This will ensure that there are opportunities for the
development of head offices in the Downtown, while leaving some potential for residential development in other CBD areas
surrounding the core. Should Council approve the following proposed policies, rezonings will only be considered in the
CBD as follows (see full policy in Appendix 'C'):
- in the 'Core CBD', a residential rezoning will generally not be considered;
- in other areas of the CBD, a residential rezoning will only be considered when it is confirmed that the unused
inventory of development sites in the CBD is adequate to accommodate the current profile of demand for new office
space over a 20-year period;
- such residential rezonings shall be primarily targeted for adult-oriented housing, and will be considered where:
the combination of proposed uses is supportive of the precinct character; the character of the precinct is
conducive to residential livability; and the proposed housing is compatible with adjacent land uses;
- notwithstanding the above, residential rezonings will be considered throughout the CBD in the case of heritage
retention or the provision of key business support facilities that are essential for the CBD business community
(e.g. a business club such as the Terminal City Club);
- the current 3.00 FSR density for housing will be retained in areas of the CBD outside the Core generally
located east of Seymour Street, south of Robson Street and west of Thurlow Street.
Establishing an Inventory of Office Development Potential
Staff are currently working with the Downtown Vancouver Association, on behalf of the Downtown business groups to prepare
and maintain an inventory of office development potential. The intent is that this inventory will be the responsibility
of the private sector, in liaison with City staff. Staff are currently working with the private sector on the completion
of the inventory. In the interim, staff can provide what information is available should a rezoning application come
forward in the CBD.
Proposed 'Choice of Use' Areas Zoning
Outside the Core CBD in 'choice of use' areas, the following zoning amendments are proposed to implement the Central Area
Plan:
generally, in the new zoning, set density allowances that do not increase the overall density allowed or the
office density allowed beyond that currently permitted;
specifically, delete the housing bonus provisions currently in place for the following sub-areas of the Downtown,
and in some areas, replace with zoning that permits a mixture of these uses:
- Alberni Street between Burrard and Bute streets: residential and other uses will be permitted up to 7.00
FSR (office use limited to 6.00 FSR);
- Triangle West (two clusters of blocks, west of Bute Street): residential and other uses will be
permitted up to 6.00 FSR (office uses limited to 5.00 FSR);
- several sites on Burrard Street south of Smithe Street: residential and other uses will be permitted up
to 6.00 FSR (office use limited to 5.00 FSR); and
- site at Davie Street and Harwood: residential will be permitted up to 5.00 FSR and commercial up to 1.00
FSR, total density 5.00 FSR (a reduction in the current total density of 6.0 FSR; the density of CD-1
zones on adjacent sites and the density of Downtown South is 5.0 FSR).
A description for each zoning change is provided in Appendix A and in the map below.
Development Cost Levies
Following Council's general instructions, a development cost levy (DCL) by-law will be drafted for the Triangle West
district and along Alberni Street where increased demands for capital projects (parks, daycare, replacement housing or
transportation, sewer and water infrastructure) are anticipated. DCL's will contribute to the cost of community amenities
and other infrastructure needed to serve the new development and replacement housing for low cost rentals lost through
redevelopment. DCL s for the Triangle West district will be the subject of a separate report presented to Council prior
to the enactment of the zoning.
Triangle West is the only area where residential densities are being increased and there is significant development
potential. In other areas, only a handful of small development sites will receive increased residential density through
the text amendments recommended in this report. Most sites have recently been developed for high density or have stable
institutional uses or heritage buildings. For miscellaneous isolated sites in the south end of the perimeter (one site at
Harwood and Burrard and two sites at Davie and Burrard) that will have increased residential density, staff will report
back on their inclusion in the Downtown South DCL By-law.
The Urban Development Institute opposes the introduction of DCL's unless it can be clearly proven that infrastructure is
missing within the immediate area of a development.
Comments on the Proposals
The proposed zoning changes and the rezoning policy are supported by the Downtown Vancouver Association, the Urban
Development Institute, the Building Owners and Managers Association and the Board of Trade (see letters in Appendix E).
The policy and zoning proposals have also been reviewed by other groups. The Urban Design Panel does not support the
deletion of residential as a permitted use in the Core CBD. But it does support the deletion of residential from
Granville Street in the core CBD.
There was a small difference of opinion, between the Urban Development Institute and the Downtown Vancouver Association
on the boundaries of the 'Core CBD'. The Urban Development Institute favours the exclusion of the blocks bounded by
Granville Street, West Georgia Street, Seymour Street and West Pender Street from the 'Core CBD', thus permitting
residential to be considered on these blocks. The Downtown Vancouver Association supports the inclusion of these blocks
in the 'Core CBD'. As explained below, staff support the inclusion of these blocks in the 'Core CBD'.
Staff held a public information meeting attended by approximately 35 people. There was general support for the zoning
change, but the following issues were raised:
- some individuals were concerned that deleting residential as a permitted use in the core CBD would result in a
lack of people on the streets after the offices are closed;
- concern was raised that noise complaints will result from permitting residential on Howe Street between Robson
Street and Nelson Street because it is immediately adjacent to the Council-approved entertainment district on
Granville Street.
Staff do not believe that a lack of residential in the core CBD will lead to no activity on the street. Retailing and
hotels are major functions in this area and will generate foot traffic. Also, the area is relatively small and enjoys
pedestrian traffic from nearby residential areas and major facilities. In particular, residential use on Granville
Street, north of Robson Street in the Core CBD, is not supported because it is a bus transit spine and may be designated
as part of an entertainment district. The character of these blocks is better suited for offices, entertainment and
retail, rather than housing.
In response to the concern with residential uses on Howe Street between Robson Street and Nelson Street, staff are
presenting, for the consideration of Council, a recommendation that covenants be placed on the title of dwelling units
through the development approval process, notifying owners that they are nearby an entertainment district and that noise
may be an impact on their unit.
Further Changes to be Considered
The business groups have also requested new provisions that would permit general or commercial work/live uses in fringe
areas of the CBD and in 'choice of use' areas. Council has already instructed staff to examine such changes for these
and other commercial and mixed-use areas and this will be reported when the work is completed.
ENVIRONMENTAL CONSIDERATIONS
Retaining a strong office core in the CBD with housing in and around the area will encourage people to walk to work and
thereby reduce auto emissions.
CONCLUSION
Downtown business groups, working with City staff, have developed an updated Central Area Plan policy that emphasizes the
regional importance of the CBD and provides for its continued growth, while at the same time providing some flexibility
for a limited amount of CBD housing. The recommended referral of zoning amendments to public hearing meets the intent of
the Central Area Plan to delete housing as a permitted use in the Core CBD. Also, new 'choice of use' zoning will reduce
the number of rezonings required to pursue residential in areas outside the CBD.
* * * * *
Recommended Amendments to the Downtown Official Development Plan
Text Amendments
Note: All amendments are in bold and deletions are crossed out.
1. Amendments of Section 1
(a) This amendment explains that residential is not encouraged in all areas of the Downtown.
Amendment
Amend the introductory paragraph of Section 1 as follows:
For many years only commercial (with some light industrial) uses have been permitted throughout the Downtown.
In order to increase the variety, amenity and safety of Downtown, well-designed residential uses will be both
permitted and encouraged throughout the Downtown , except for the Central Business District. In the core of the
Central Business District, residential use will not be permitted. In other areas of the Central Business
District, a A mix of uses within single developments or in neighbouring sites is permitted and encouraged.
(b) The amendments will delete housing as a permitted use in the core of the CBD, specifically sub-areas A and B
(also see Map in Appendix A, p. 6)
Amendments
(i) Renumber subsections 1 and 2 to subsections 2 and 3 and insert the following new subsection:
"1. In the areas denoted by the letters 'A' and 'B' on Map 1 the following uses may be permitted,
subject to such conditions and regulations as may be prescribed by the Development Permit Board:
(a) Office Commercial;
(b) Retail Commercial;
(c) Other Commercial, including a Body-Rub Parlour;
(d) Hotel;
(e) Light Industrial;
(f) Public and Institutional;
(g) Social, Recreational and Cultural;
(h) Parks and Open Space;
(i) Parking Area and Parking Garage, subject to the provisions of section 5."
(ii) Amend the new sub-section 2 as follows:
2. In the areas denoted by the letters 'A', 'B', 'C', 'E', F , G , H', 'J' and O , on Map 1 the
following uses may be permitted, subject to such conditions and regulations as may be prescribed by
the Development Permit Board:
(a) Office Commercial;
(b) Retail Commercial;
(c) Other Commercial, including a Body-Rub Parlour;
(d) Residential;
(e) Hotel;
(f) Light Industrial;
(g) Public and Institutional;
(h) Social, Recreational and Cultural;
(i) Parks and Open Space;
(j) Parking Area and Parking Garage, subject to the provisions of section 5.
2. Amendments of Section 3
(a) This amendment will allow for more flexibility for development in sub-area F . The current maximum
permitted density of 7.00 FSR will remain in place. Office use is currently limited to a maximum density
of 6.00 FSR. Currently, a development must include residential (i.e. the housing bonus provision) to
reach the maximum permitted density. The new provision would eliminate the housing bonus and permit 6.00
FSR office use without housing. A 3.00 FSR limit on residential use would be retained because this area
is in the Central Business District.
Amendment
Amend sub-area F of sub-section 1 as follows:
F in the area denoted by the letter 'F', the maximum total density for any non-residential use all
permitted uses shall be floor space ratio 5.00 7.00, except that office uses shall not exceed floor
space ratio of 6.00, and residential uses shall not exceed floor space ratio 3.00; however, for every
square foot of residential floor area, an additional square foot of non-residential floor area shall be permitted up to a maximum additional floor space ratio of 1.00 for residential use and a maximum
additional floor space ratio of 1.00 for non-residential use;
(b) This amendment, in concert with the amendment of Map 1 in the
Downtown District Official Development Plan, designates as
sub-area G , two sites currently designated H at the corner
of Davie and Burrard Streets and under the Burrard Street
bridge. These and other sites currently designated G , will
be able to achieve the maximum site density of 6.00 FSR, minus
any requirements for ground floor retail, for housing, hotels
and other uses. Office uses will be limited to 5.00 FSR,
similar to the current zoning provisions. All these sites are
outside the Central Business District.
Amendment
Amend sub-area G of sub-section 1 as follows:
G in the area denoted by the letter 'G', the maximum total
density for any non-residential all permitted uses shall
be floor space ratio 6.00, except that office uses shall
not exceed floor space ratio of 5.00; however, for every
square foot of residential floor area, an additional
square foot of non-residential floor area shall be
permitted up to a maximum additional floor space ratio of
1.00 for residential use and a maximum additional floor
space ratio of 1.00 for non-residential use;
(c) This amendment, in concert with the amendment of Map 1 in the
Downtown District Official Development Plan, designates as
sub-area H two areas, the first is on Howe Street between
Robson and Nelson Streets and the second includes the block
bounded by Burrard Street, Robson Street, Smithe Street and
Hornby Street. These areas are currently designated sub-area
G . The current maximum density allowance of 6.00 FSR for
these blocks will remain in place. These new provisions will
allow for more flexibility for development by allowing for the
achievement of the total density allowance in non-residential
uses without requiring the provision of housing. Office use
will be limited to the current maximum FSR of 5.00. Housing
will be limited to 3.00 FSR. These sites are in the Central
Business District.
Amendment
Amend sub-area H of sub-section 1 as follows:
H in the area denoted by the letter 'H', the maximum total
density for any non-residential use for all permitted uses
shall be floor space ratio 2.00 6.00 except that office
use shall not exceed floor space ratio of 5.00 and
residential uses shall not exceed floor space ratio 3.00;
however, for every square foot of residential floor area,
an additional square foot of non-residential floor area
shall be permitted up to a maximum additional floor space
ratio of 2.00 for residential use and a maximum additional
floor space ratio of 2.00 for non-residential use;
(d) This amendment creates new sub-area O for those blocks
fronting on Alberni Street between Bute and Burrard Streets.
In this sub-area, the housing bonus will be deleted and
replaced with choice of use zoning. Office uses will be
limited to the current limit of 6.00 FSR. Hotel, residential
and other uses may be developed up to a density of 7.00 FSR,
minus any density requirements for the provision of ground
oriented retail.
Amendment
Insert the following sub-area O in sub-section 1 of section
3, following sub-area N :
O in the area denoted by the letter O , the total density
for all permitted uses shall be floor space ratio 7.00
except that office use shall not exceed floor space ratio
6.00;
(e) This amendment specifies that residential floor space cannot
be substituted for non-residential floor space on sites within
the core CBD (i.e. sub-areas A and B ). Residential is
being deleted as a permitted use in an amendment recommended
above.
Amendment
Amend sub-section 3 as follows:
3. Except in the areas denoted by the letters A , B ,
'K1', 'K2', 'K3', 'L', 'M' and 'N' on Map 1,
residential floor area may be substituted for
non-residential floor area.
(f) This amendment clarifies that the 3.00 FSR limit on
residential use does not apply in choice of use areas (i.e.
sub-areas G and O ). In the choice of use areas,
residential use may exceed 3.00 FSR, except in the case of
blocks located in the Core CBD.
Amendment
Amend sub-section 4 as follows:
4. Notwithstanding subsections 1 and 3, in no case shall
the density of residential use exceed floor space ratio
3.00, except in the areas denoted by the letters G ,
'K1', 'K2', 'K3', 'L', 'M', and 'N', and O on Map 1.
3. Amendments to Map 1 (Boundaries of Downtown District Sub-areas)
(a) Map 1, which identified the boundaries of sub-areas in the
Downtown District,is amended as follows:
redesignation of one portion of sub-area F to sub-area
O as previously discussed;
redesignation of portions of sub-area G to sub-area H ;
redesignation of sub-area H (sites at Davie and Burrard,
and under the Burrard Street Bridge) to sub-area G ; and
redesignation of one portion of sub-area H (site at
Harwood and Burrard Streets) to sub-area N .
The Harwood and Burrard Street site currently has a maximum of
density of FSR 6.00, but residential is limited to FSR 3.00. By
including this site as part of sub-area N , the site will have a
maximum density of FSR 5.00. However, the full density allowance
may be residential (i.e. 5.00 FSR). Cultural, office and
institutional uses are permitted up to FSR 1.00 and up to 20,000
square feet of retail is permitted. Although there is a reduction
in the total density allowance, staff have concluded that the
significant increase in residential density compensates for this
reduction. Residential is a more appropriate use on this site than
a hotel or office building because this use reflects the current
character of the area and its location on the fringe of the West
End. Council approved 2 CD-1 rezonings to the north on Burrard
Street and set the maximum FSR at 5.00 FSR. A rezoning at Pacific
and Burrard Streets set the maximum FSR at 6.00.
APPENDIX B
Page 1 of 1
RECOMMENDED GUIDELINE AMENDMENTS
Rationale
Amend the DD (except Downtown South), C-5, C-6, HA-1, and HA-2 Character
Area Descriptions to indicate that residential use is encouraged west of
Bute Street in Character Area F and throughout Character Area H.
Amendments
Amend Section 6.3.1 (a) of Existing Character Area F - Golden Triangle
as follows: after the word "encouraged" insert "west of Bute Street".
Amend Section 2.2.1 of Existing Character Area H - Alberni Street by
deleting 2.2.1 (b) and inserting the following: "2.2.1 (b) Develop a
commercial/mixed-use character."
APPENDIX C
Page 1 of 2
POLICY AMENDMENTS
Policies on Residential Rezoning in the CBD
Amend the Central Area Plan Policy 1.5 in the Office Policy section by
adding the following to Policy 1.5:
"1. It will be of paramount importance that the economic
significance of the CBD (see map) be maintained through a
consolidated compact Downtown office area.
2. There should be an inventory of office zoned land in the entire
CBD that is sufficient to meet an ongoing projected 20 year new
office space demand. This should be based on an inventory
method which will be established to allow the City, the
development community and representatives of the office building
industry a way of measuring this inventory from time to time.
The inventory should be an assessment of future office
development potential reflecting the zoning, configuration and
size of development sites. The inventory requirements should be
reviewed each year.
3. In the Core CBD (i.e. that area between Thurlow and Seymour
extending north from Alberni-Robson to the waterfront - see map)
residential rezoning should generally not be considered.
4. Elsewhere in the CBD (i.e. other than in the Core CBD),
residential rezoning should only be considered when it is
confirmed that the unused office inventory in the CBD is
maintained for the projected 20 year office space demand.
5. Notwithstanding policies 3 and 4 above, throughout the CBD,
residential rezoning should be considered where the rezoning
also facilitates retention of a heritage building or provision
of essential business support facilities (i.e. business clubs)
that reinforce CBD business.
6. Consideration of residential rezoning in the CBD should
recognize the CBD as a place for working, shopping, cultural
events and leisure activities that occur within existing
precincts, each with a distinctive character. Such residential
rezoning should be primarily targeted for adult-oriented
housing, and should be considered where:
APPENDIX C
Page 2 of 2
the combination of proposed uses is supportive of the precinct
character;
the character of the precinct is conducive to residential
livability; and
the proposed housing is compatible with adjacent land uses.
NOTES:
1. In addition to the above recommendation that represents a
consensus between the business community organizations and with
staff at this time, the organizations further suggest that new
policies, and if necessary, by-law changes, should be considered
for the following issues:
Permitting commercial work/live premises (i.e. combining
residential and office uses in suites) adjacent to the Core
CBD as a complementary use and transition to residential areas
by establishing a clear definition in zoning and design
guidelines for urban adult-oriented 'work/live' use.
Phasing out the existing housing bonus provisions in the
Downtown District as envisioned in the Central Area Plan.
(Note: Downtown Business Groups requested that this be done as
soon as possible)
2. In CBD areas that are not in the Core CBD, the 3.00 FSR density
allowance for residential will remain in place.
APPENDIX D
Council Policies for Residential Rezonings in the CBD
THAT when reviewing applications proposing increases in residential FSR
in the CBD, the maximum density that will be considered is the existing
maximum density for all uses specified in the Downtown Official
Development Plan, including bonusing provisions. (Approved June 10,
1993).
THAT rezoning applicants for housing in the Central Business District be
advised that office commercial is the preferred primary use throughout
this area and predominantly residential projects are not generally
favoured, but that applications proposing increases in residential FSR
may be occasionally considered, on a case-by-case basis, depending on
the following factors:
- facilitating heritage or significant business support
facilities;
- compatibility with surrounding land uses (where office
commercial is the predominant use now in place, residential will
generally not be favoured);
- the impacts on nearby development now and in the future;
- residential livability; and
- proximity of other existing housing or residential amenities.
(Approved June 24, 1993).
R:\CC\REPORTS\COUNCIL\FEB4\P2.