SUPPORTS ITEM 2
P& E COMMITTEE AGENDA
APRIL 10, 1997
POLICY REPORT
URBAN STRUCTURE
Date: March 21, 1997Dept. File No.
MG
C.C. File No.:5751-1/8007-1
TO: Standing Committee of Planning and Environment
FROM: Director of Central Area Planning
SUBJECT: The Downtown Vancouver Bridgeheads Study - Conclusions
RECOMMENDATION
A. THAT the objectives and policies for development adjacent to
the north and south Burrard Bridgeheads, the north Granville
Bridgehead, the south Cambie Bridgehead (east side) and the
east end of the Georgia Viaduct, as detailed in Appendix A ,
be adopted to guide the massing and siting of development
adjacent to downtown bridges and the viaduct to achieve the
following:
- protecting key public views from the bridges;
- respecting and enhancing the experience of crossing the
bridges;
- encouraging, where possible, improved pedestrian
connections; and
- reconciling public objectives with adjacent private
development rights and expectations.
B. THAT staff report back with design guidelines reflecting the
approved objectives and policies.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services recommends approval of
the foregoing.
COUNCIL POLICY
There are currently no Council policies addressing the siting and
location of buildings adjacent to downtown Bridgeheads. Engineering
staff negotiate setbacks for development adjacent to bridges on a
site-by-site basis.
SUMMARY
Council initiated the Downtown Vancouver Bridgeheads Study because there
are no overall policies for the siting and location of buildings
adjacent to the downtown bridgeheads that address public views and
livability of adjacent housing. Staff recommend the adoption of policies
(see Appendix A ) which protect views from bridges, respect and enhance
the experience of crossing the bridges and address the issue of
residential livability.
The policies state that for the north Granville and north Burrard
bridgeheads, buildings higher than the bridge deck must be setback at
least 30 m (100 ft.) from the bridge deck (with the exception of the
Seymour ramp) (see Appendix B for details).Setbacks are reduced to 20 m
(66 ft.) for sites adjacent to the Seymour bridge ramp. In this area,
buildings up to 18.2 m (60 ft.) are suggested between Beach Avenue and
Pacific Street. For the site west of the north Burrard bridgehead,
guidelines for the siting and massing of a residential tower are
proposed to reasonably preserve southwesterly views from the bridge,
avoid a sense of crowding a building up against the bridge, ensure
residential livability and provide a reasonable balance between public
views and the private views of upland residents.
For the south Cambie and south Burrard bridgeheads, larger setbacks are
suggested due to the more open character and lower density of the areas
south of False Creek and the desire to preserve existing views. For the
east Georgia viaduct, a transition from higher building heights south of
the viaduct to lower building elements north of the viaduct are
recommended. (see Appendix A and B for details)
PURPOSE AND BACKGROUND
This report recommends the adoption of objectives and policies regarding
the siting and form of buildings adjacent to five bridgeheads - the
north and south Burrard bridgeheads, the north Granville bridgehead, the
south Cambie bridgehead (east side) and the east end of the Georgia
viaduct.
At a public hearing considering the approval of a rezoning that would
permit the development of a residential tower on a City-owned site
immediately west of the north Burrard bridgehead, Council deferred
approval of the rezoning pending completion of the Bridgehead Study.
The objectives of the study, as approved by Council, were:
Analyse five major Downtown/False Creek bridgehead areas that have
significant development potential not yet covered by policy with
respect to:
public views;
potential and likely tower and mid-rise buildings; and
visual perception, identity and image of the bridge.
Examine with the aide of computer-generated modelling techniques,
the visual experience for vehicular and pedestrian traffic.
Recommend policies and guidelines for the siting and form of tall
buildings adjacent to bridges with particular priority and emphasis
placed on the key Burrard and Granville bridgehead areas in the
downtown peninsula.
The study was initiated in September 1996, and public review occurred in
October. Completion of the report was delayed to allow for discussion
with property owners adjacent to various bridgeheads and undertake
further analysis to address their concerns. The bridgeheads addressed in
the study are illustrated in Appendix B .
DISCUSSION
In summary, the Bridgeheads Study recommends the adoption of objectives
and policies to:
maintain key public views from the bridges;
reinforce and enhance the experience of crossing the bridges;
reinforce and enhance existing urban form patterns;
establish optimum setbacks of towers from the bridge decks;
limit building height immediately to the bridges to below the
bridge deck;
minimize views of unsightly roofs from bridges;
encourage, where possible, improved pedestrian connections;
reconcile public objectives with adjacent private development
rights and expectations.
The conclusions of the report are summarized in more detail below.
North Burrard Bridgehead - West Side
The consultant and staff analysed options for the massing of a tower on
the city-owned site adjacent to the west side of the north Burrard
Bridgehead. The following issues guided the preparation of
recommendations:
the retention of key views out to Georgia Strait and English Bay;
the retention of a reasonable array of views for upland owners;
livability for residents in adjacent buildings;
marketing and development economics;
the potential for a pedestrian pathway on the west side of the
bridge linking Burrard and Pacific Streets with Beach Avenue and
the Seawall.
It was concluded that:
the proposed tower should be sited so that it is setback 30 m (100
ft.) from the bridge deck (i.e. moved approximately 10 m (33 ft.)
further west than originally proposed to open up views from the
bridge out to the water and reduce the sense of the building s
adjacency to the bridge);
a limited portion of the building face opposite the bridge (no more
than one-third of the depth of the building) may extend up to 3.1 m
(10 ft.) into this setback area to articulate the face of the
building, reduce the sense of the scale of the building from the
bridge and contribute to a more efficient floorplate;
between 10 m (33 ft.) and 30 m (100 ft.), the building can be a
maximum of 4 storeys (except as noted above); and
no buildings should be within 10 m (33 ft.) of the bridge deck.
A 10 m (33 ft.) setback on the west side of the bridge can accommodate a
footpath along the westerly edge of the bridge. (see illustrations in
Appendix B )
Planning staff recommend that these directions for adjustments to the
massing and siting of the proposed tower form the basis for a revised
rezoning application. These have been established to balance public and
private objectives, including the developer s (City Real Estate staff)
objectives for the site.
North Burrard Bridgehead - East Side
Staff recommend similar setbacks for development east of the bridge: 10
m (33 ft.) for buildings below the bridge deck and 30 m (100 ft.)
setback for towers. These setbacks have no significant impacts on
development, as the development site is very large.
South Burrard Bridgehead - East and West Side
Views from the bridgeheads on the south side of False Creek have
typically been more open and adjacent development has not been as dense
as that on the north side of False Creek. Key aspects for those crossing
this bridge have been the sense of openness and the sense of a gain in
elevation as one crosses the bridge and the spatial containment provided
by Molson s Brewery.
Staff recommend that:
between the bridge drip line and 10 m (33 ft.) - no buildings;
east of the bridge, generally between 10 m (33 ft.) and 60 m (200
ft.) - maximum 3 storeys, with higher buildings possible
immediately adjacent to Molsons Brewery (see Appendix C for
details);
higher buildings permitted beyond the 60 m (200 ft.) setback but
their exact height to be subject to a comprehensive urban design
study of the area and further community consultation;
maximum of 3 storeys west of the bridge to minimize shadowing of
Vanier Park.
Granville Bridgehead - West Side
No major issues emerged for this bridgehead. Similar setbacks as those
suggested for the North Burrard bridgehead are proposed:
a tower at the corner of Beach and Howe Streets be shifted slightly
to the southwest to ensure that it is set back a minimum of 30 m
(100 ft.) from the bridge deck.
Granville Bridgehead - East Side
For this bridgehead the study was concerned with retaining southeasterly
views towards Fairview Slopes, West Broadway and False Creek. Ensuring
that the City s social housing objectives could be met was also a
concern. It was important to achieve a reasonable amount of density on
the social housing sites adjacent to the bridge. This ensures that the
proposed policy is consistent with the planning framework for False
Creek North and the Concord Pacific lands.
For the North Granville bridgehead, it is recommended that:
between the bridge drip line and 10 m (33 ft.) - no buildings;
between 10 m (33 ft.) and 30 m (100 ft.), the building must be
below the bridge deck (except for sites adjacent to the Seymour
ramp);
for sites east of the Seymour ramp, buildings up to 18.2 m (60 ft.)
in height may be considered between Pacific Street and Beach Avenue
provided that:
a 20 m (66 ft.) minimum setback is maintained;
the roofs are articulated (eg. sloping roofs, gables, dormers
etc.); and
livability issues are addressed.
A distinction is made between the bridge and the ramp because staff
concluded that there are no significant public views from the Seymour
ramp in contrast to the views available from the Granville Bridge, south
of the ramp. When one is moving along the ramp, there is a sense of
descending into the city and moving from wide views to street oriented
views.
South Cambie Bridgehead - East Side
Similar to the south Burrard bridgehead, it is important to retain a
sense of openness and wide views to False Creek and the downtown.
Much of this site will be subject to the Southeast False Creek planning
process. In general, the recommendations are to:
retain the openness of this area and views out to False Creek by
limiting buildings 3 and 4 storeys within 200 m (656 ft. or a bit
more than one city block) of the bridge, south of 1st Avenue;
permit no buildings between the bridge and a boundary formed by
extending the eastern property line of Cambie St. to the water;
establish the following setbacks - 7.6 m (25 ft.) from a line
extending from Cambie St, limit buildings to 3 storeys within an
additional setback area of 7.6 m (25 ft.) and a four storey limit
beyond this setback. These setbacks reflect those established by
current Council policy for Cambie Street and extend the street end
views to the water;
for the site south of 1st Avenue, the current Cambie St. guidelines
would continue to apply establishing setbacks for lower (7.6 m or
25 ft.) and higher building elements (a further 7.6 m or 25 ft.),
resulting in an approximately 15.1 m (50 ft.) setback from the
bridge.
These setbacks reinforce Cambie Streets role and image as a formal
boulevard. Buildings below and east of the bridge will be visible upland
on Cambie Street as far north as 12th Avenue.
Staff and the consultant undertook further analysis of the privately
owned site south of First Avenue immediately adjacent to the Bridge and
concluded that the owner will be able to pursue the development he
proposed in a recent inquiry and also meet these guidelines.
East Georgia Viaduct
The recommended policies seek to create a height transition between the
higher Citygate developments and lower Chinatown/Strathcona development.
In summary, the policies propose:
- a maximum building height of 55 m (180 ft.) for the Greyhound site
west of Main Street, in line with previous City urban design
studies; - a maximum building height of 23 m (75 ft.) on the site at the
south-east corner of Prior and Station;
- the location of a higher building element (30 m or 100 ft.) on
Prior Street one block east of the terminus of the viaduct to serve
as a visual terminus for the Main Street off-ramp;
- a maximum building height of 23 m (75 ft.) on all other sites
immediately adjacent to the viaduct and off-ramps to Main Street.
These policies are consistent with those emerging for the planning of
this area and the Trillium site, to the extent known at this time.
Public Comment
Staff conducted an open house and an evening public meeting. Staff were
also invited to a meeting at the Harbour Cove development organized by
the Strata Council. The comments submitted at these 3 sessions are
outlined in Appendix C . Staff also met with most adjacent property
owners on an individual basis.
In summary, at the open house and the evening public meeting the
following comments (see Appendix C for details) were received in the
comment sheets (61 received):
75% noted that retaining views of the water, mountains, landmark
buildings and other features from the bridges was very important;
64% noted that there should be no view blockage;
58% said that taller buildings should be set back 30 m (100 ft.) or
45 m (150 ft.) from the bridge deck and an additional 11% suggested
a greater distance than 45 m (150 ft.);
At the public events, a number of the public urged a reduction in the
number of towers permitted in the city.
At the Harbour Cove meeting, residents were particularly concerned with
the prospect of more high rise development adjacent to their buildings.
There was general agreement with the need to protect views from bridges
and the desire to keep buildings adjacent to the bridges low.
Next Steps
Following Council s approval of the objectives and policies, staff will
draft design guidelines reflecting the approved direction.
CONCLUSION
The adoption of objectives and policies for the siting and massing of
buildings adjacent to bridgeheads in downtown Vancouver will ensure that
public views from bridges are retained. The recommended policies and
building setbacks will ensure that buildings are in a form that reflects
the existing context, and that public view preferences and residential
livability are balanced with existing development allowances and
expectations. Generally, building setbacks are greater for sites
adjacent to southern bridgeheads due to the lower density and more open
character of the south side of False Creek.
* * * * *
Policies for the Siting and Massing of Buildings adjacent to Downtown
Vancouver Bridgeheads
Objectives
maintain key public views from the bridges;
reinforce and enhance the experience of crossing the bridges;
reinforce and enhance existing urban form patterns;
establish optimum setbacks of towers from the bridge decks;
limit building height immediately adjacent to the bridges to below
the bridge deck;
minimize views of unsightly roofs from bridges;
encourage, where possible, improved pedestrian connections;
reconcile public objectives with adjacent private development
rights and expectations.
Policies
North Burrard Bridgehead - West Side
no buildings should be within 10 m of the bridge deck;
between 10 m and 30 m, the building can be a maximum of 4 storeys
(except as noted below).
buildings exceeding the height of the bridgedeck should be setback
a minimum of 30 m from the drip line of the bridge;
a limited portion of the building face opposite the bridge (no more
than one-third of the depth of the building) may extend up to 3.1 m
(10 ft.) back into the setback area to provide articulation, reduce
the sense of scale of the building from the bridge and contribute
to a more efficient floorplate;
consideration should be give to the provision of a footpath along
the westerly edge of the bridge.
North Burrard Bridgehead - East Side
no buildings should be within 10 m of the bridge deck;
between 10 m and 30 m, buildings should not exceed the height of
the bridgedeck (including elevator penthouses);
buildings exceeding the height of the bridgedeck should be setback
a minimum of 30 m from the drip line of the bridge.
South Burrard Bridgehead - West Side
between the bridge drip line and 10 metres - no buildings;
east of the bridge, generally between 10 metres and 60 metres -
maximum 3 storeys with higher buildings possible immediately
adjacent to Molsons Brewery;
higher buildings permitted beyond the 60 metre setback but their
exact height to be subject to a comprehensive urban design study of
the area and further community consultation;
maximum of 3 storeys west of the bridge to minimize shadowing of
Vanier Park.
Granville Bridgehead - West Side
no buildings should be within 10 m of the bridge deck;
between 10 m and 30 m, buildings should not exceed the height of
the bridgedeck (including elevator penthouses);
buildings exceeding the height of the bridgedeck should be setback
a minimum of 30 m from the drip line of the bridge.
Granville Bridgehead - East Side
no buildings should be within 10 m of the bridge deck;
between 10 m and 30 m, building should not exceed the height of the
bridgedeck (except for sites adjacent to the Seymour ramp);
for sites east of the Seymour ramp, buildings up to 18.2 m in
height may be considered between Pacific Street and Beach Avenue
provided that:
a 20 m minimum setback is maintained;
the roof is positively articulated as a visible elevation(eg.
sloping roofs, gables, dormers, bay windows, cupolas, etc.);
and
livability issues are satisfactorily addressed.
South Cambie Bridgehead - East Side
retain the openness of this area by limiting buildings to 3 and 4
storeys within 200 m of the bridge, south of 1st Avenue
permit no buildings between the bridge and a line extending from
the eastern property line of Cambie St. to the water;
establish the following setbacks - 7.6 m from a line extending from
Cambie St, limit buildings to 3 storeys within an additional
setback area of 7.6 metres and a four storey limit beyond this
setback. These setbacks reflect those established by current
Council policy for Cambie Street.
for the site south of 1st Avenue, the current Cambie St. guidelines
as noted above will continue to apply allowing for lower and higher
building elements within the prescribed setbacks (with an
approximately 15.1 m setback from the bridge).
Georgia Viaducts East
a maximum building height of 55 m permitted for the Greyhound site
west of Main Street, subject to detailed planning review;
a maximum building height of 23 m be permitted on the site at the
southeast corner of Prior and Station, with an increase in height
of up to 30 m permitted at the corner forming the visual terminus
of the view down the Main Street off-ramp, provided this corner
element is treated as an appropriate feature;
a maximum building height of 23 m be permitted on all other sites
immediately adjacent to the viaduct and off-ramps to Main Street.
Results from the Public Process
The themes and results (61 comment sheets) from the Bridgehead Study
Open House and Public Meeting are summarized below. An Open House was
conducted during the day at Library Square followed by a Public Meeting.
Staff also attended a meeting organized by the Harbour Cove Strata
Council that attracted neighbouring residents.
Do you live or own property within two blocks of one of the bridgeheads
under study?
Yes 50%
No 50%
How important do you consider retaining views of the water, the
mountains, landmark buildings and other features from the bridges?
Very important 75%
Important 18%
Somewhat important 7%
How much blockage of these specific views do you think is acceptable?
no view blockage (0% of view blocked) 64%
some blockage (50% of view blocked) 34%
significant blockage 2%
What do you think is a minimal setback of a high rise or tower building
from a bridge?
45 metres 38% (suggestions were: 10 city blocks; one
30 metres 20% block to 500 feet; 150 m; 100 metres
20 metres 11% (2); 60 metres; 5 metres; same as the
8 metres 5% south end of the Burrard Bridge on the
other 27% north end; nothing above the bridge deck
between the north ends of the Granville
and Burrard bridge decks)
What do you think is the minimal setback for a building that is one or
two storeys above the bridge deck?
30 metres 32% (suggestions were: two blocks; 150 m; a
20 metres 19% city block; 100 m; 60 metres(2); 50
8 metres 9% metres(2); 30-50 m; 200-300 ft.; 200
other 40% ft.; 45 m; 150 ft.; depends on the
bridge deck, safety the primary
consideration)
Themes and Messages
1. Maintain the views from the bridges, particularly of the water and
mountains (most repeated comment)
2. Towers should be setback from the bridge to ensure the livability
of residents.
3. Keep the bridgeheads as open as possible; high rise buildings
should not be allowed to dominate the bridge entrances; some
setback of buildings is necessary to allow for the widening of
bridges
4. The view from the centre of the bridge is most important not those
from the bridgeheads
5. Tall slender buildings are preferable to short bulky ones; delete
the height restriction, but maintain the limit on density
6. Keep towers away from the waterfront, only lower scale buildings
should be permitted
7. Tests should be done to ensure that wind problems are not created
by towers for pedestrians and cyclists on the bridge
8. Develop a low rise on the site at the northwest end of the Burrard
Bridge; this site does not automatically obtain the height of a
tower under the existing zoning
9. The taxpayers of Granville Slopes should pay for the park rather
than adding additional density to the 1005 Beach site
10. Use the area under the bridges for community uses, do not make it a
dead zone
11. Continue making use of the staircases at the north end of the
Burrard Bridge; There is a need for a pedestrian crossing at Beach
under the Burrard Bridge to encourage use of the stairs.
12. The traffic and parking impacts created by the towers is a concern.
13. Development should not be allowed to block the views of residents
in the Harbour Cove development at the southeast end of the bridge.
14. The CPR lands south of the Harbour Cove development should be a
park.
CITY OF VANCOUVER - PLANNING DEPARTMENT
REQUEST FOR DIGITAL INFORMATION
FORMAT: (Autocad) DXF ___________ (VISION*) GINA __________
AREA DESIRED: ___________________ Street, to ____________________Street
___________________ Ave., to ____________________Avenue
________________________________________________________
Expansion by 20 m _______ or _______ m
INFORMATION REQUESTED:
BASE:
______________ lot/block lines ______________ road names
______________ existing buildings
______________ proposed buildings
This is not legal information, and is provided for convenience of
information only. I agree that this information will not be sold, loaned
or given to any other party without the express
written consent of the City of Vancouver.
I understand that:
1) the data provided is compiled from various sources, and is not
warranted as to its accuracy by the City.
2) lot sizes should be confirmed at the Legal Survey office, 5th
floor, City Hall, Vancouver, or at the Land Titles Office in
New Westminster.
FIRM: _______________________________ SIGNATURE:____________________
CONTACT PERSON ______________________ DATE: ________________________
PHONE NUMBER ________________________