Proposed Rezoning of 599 Carrall Street [Remainder of Block...

POLICY REPORT
DEVELOPMENT AND BUILDING

Date: April 21, 1997
Dept. File No. RWW
CC File: 5303-1

TO: Vancouver City Council

FROM: Director of Land Use and Development

SUBJECT: Proposed Rezoning of 599 Carrall Street
[Remainder of Block 17; Phases 2a and 2b]

RECOMMENDATION

THAT the following applications by Robin Hall, of Davidson Yuen
Simpson Architects, be referred to Public Hearing:

a) on behalf of the United Chinese Community Enrichment
Services Society (S.U.C.C.E.S.S.), to rezone the easterly
portion of 599 Carrall Street [Phase 2a] (Lot 2, Block 17,
DL 541, Plan 10212) from BCPED (B.C. Place/Expo District) to
CD-1 (Comprehensive Development District) for the purpose of
developing a multi-level care facility; and

b) on behalf of the Real Estate Services Division of the City
of Vancouver, to rezone the westerly portion of 599 Carrall
Street [Phase 2b] (Lot 2, Block 17, DL 541, Plan 10212) from
BCPED (B.C. Place/Expo District) to CD-1 (Comprehensive
Development District) for the purpose of developing market
housing and limited commercial space, together with:

(i) plans received September 16, 1996 [Phase 2a];

(ii) draft By-law provisions [Phases 2a and 2b], generally as
contained in Appendix A; and

(iii) the recommendation of the Director of Land Use and
Development to approve the applications, subject to
conditions of approval contained in Appendix B [Phase 2a]
and Appendix C [Phase 2b].

FURTHER THAT the Director of Land Use and Development make
application to amend the Sign By-law to establish regulations for
the Phase 2b CD-1 in accordance with Schedule B (HA-1).

AND 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

The following Council-adopted Policies and Guidelines are relevant:

- Central Area Plan, adopted December 3, 1991;
- Public Art Policies and Guidelines, adopted June 23, 1994; and
- Community Amenity Contribution Policy, adopted July 10, 1990,
reconfirmed March 7, 1991.

PURPOSE AND SUMMARY

This report assesses two rezoning applications by Robin Hall, of
Davidson Yuen Simpson Architects:

a) Phase 2a on behalf of S.U.C.C.E.S.S., to develop a 100-bed
multi-level care facility;

b) Phase 2b on behalf of the Real Estate Services Division of the
City of Vancouver, to allow for development of
approximately 200 dwelling units, with provision for
commercial uses along Keefer and Taylor Streets.

Analysis of the applications indicates there are no significant issues
related to the multi-level care facility (Phase 2a). The Special
Advisory Committee to Council on Seniors has expressed concerns about
the proposed tower in Phase 2b, because of shadow implications. These
concerns are addressed in the report.

Staff support approval of the two rezoning applications and recommend
that both be referred to Public Hearing.

DISCUSSION

Background: Discussions and negotiations related to City-owned Block 17
have been ongoing for a number of years. In March 1994, VLC Properties
submitted a rezoning application for all of Block 17. In November 1994,
the Chinese Benevolent Association (CBA) was given a conditional project
allocation under the 1994/1995 Non-profit Housing component of HOMES
B.C. To facilitate the rezoning process and enable staff to deal with
the non-market housing and social service centre component first, VLC
split the Block 17 rezoning proposal into two separate rezoning
applications. See the following site plan.

The Phase 1 rezoning was completed in April of 1996 with Council s
enactment of the CD-1 zoning. By early 1996 VLC withdrew its interest
in the remainder of the site, and the Real Estate Services Division has
chosen to proceed with rezoning of the remainder of Block 17 in
conjunction with S.U.C.C.E.S.S.

MAP

Design Development: The two rezoning applications are being handled
through slightly different approaches. The S.U.C.C.E.S.S. proposal
(Phase 2a) involves a CD-1 rezoning along with a specific form of
development. The market housing component (Phase 2b) involves a CD-1
rezoning augmented with guidelines, as it is intended that this site
will be marketed and sold or leased to an as-of-yet unidentified
developer. The CD-1 by-law and the guidelines have been developed on
the basis of conceptual massing which has been reviewed by staff, the
Urban Design Panel and the Chinatown Heritage Advisory Planning
Committee, and received support. A summary of how the massing has been
derived is described in Appendix D (section on Urban Design).

The Special Advisory Committee to Council on Seniors has expressed
concerns about the shadow effects of the proposed market residential
tower on Phase 1 (see Appendix E). Several alternative configurations
were studied, and the proposed tower location maximizes solar access to
both Phase 1 and Phase 2. In response to the Committee s concerns, the
applicant comments as follows:

Canton Alley is a very narrow space and, as a result, the adjacent
building tend to be shaded much of the time. While the tower does
cast some shadow into Canton Alley between approximately 11:00 a.m.
and 1:00 p.m. at the equinox, a building of one half, or even one
third, the proposed height would have a similar effect. Shadows
cast in Canton Alley prior to 11:00 a.m. and after 1:00 p.m., result
from the S.U.C.C.E.S.S. Social Services and the CBA Housing
buildings themselves. The S.U.C.C.E.S.S. roof terrace is shaded by
the tower from approximately 1:00 p.m. to 3:00 p.m. at the equinox.
A shorter building, or a tower in another location, would have much
the same effect.

Other comments from the Committee are addressed by the applicant in
Appendix E (see Applicant s Comments ).

Considering all the objectives which are being achieved on the Block 17
site, Planning staff believe that the current proposal represents a
reasonable design response. Some compromises are involved, and these
are considered to be acceptable.

Neighbouring Property Owner s Concerns: A neighbouring property owner,
Mr. Jack Chow, has raised issues pertaining to building setbacks on
Pender Street and along Shanghai Alley (not part of the current
applications) and recommended that the City provide additional public
parking on Block 17. These viewpoints have been previously considered
by Council as part of the Phase 1 rezoning, however, Council took no
action on them. See Appendix E, Public Input, for a more detailed
description and staff response.

CONCLUSION

Staff conclude that both applications should be referred to Public
Hearing for approval.

* * * * *

General Mgr./Dept. Head: Report dated: April 21, 1997

Author: Rob Whitlock

Date: Phone: 7814 IRTS Number: CC97021

This report has been
Concurring Departments prepared in consultation
with the departments listed
to the right, and they
concur with its contents.

RWW\ws\mp
R:\CC\REPORTS\COUNCIL\MAY6\P2.

OUTLINE OF DRAFT CD-1 BY-LAW PROVISIONS

599 CARRALL STREET [PHASES 2a AND 2b]

Phase 2a (S.U.C.C.E.S.S. Multi-level Care Proposal)

Uses: Special Needs Residential Facility - Class B
Accessory Uses customarily ancillary to the above uses.

FSR: 1.8

Height: 3 Storeys and 14 m

Parking: Off-street parking must be provided, developed and
maintained in accordance with the applicable provisions of
the Parking By-law, except that the Special Needs
Residential Facility will provide parking at the rate of one
space for every six beds and one space for every 10 beds for
visitor parking.

Loading: Loading spaces are to be provided in accordance with the
Parking By-law.

Acoustics: In accordance with RM-4N District Schedule

Phase 2b (Real Estate Services Division [on behalf of the City of
Vancouver] Market Housing Proposal)

Uses: Dwelling Units
Accessory Uses customarily ancillary to the above uses.

The following uses limited to the first floor of Keefer and
Taylor Street frontages:

- Cultural and Recreational Uses, limited to Club, Fitness
Centre, Hall, Library, Museum or Archives and Theatre;
- Institutional Uses, limited to Child Daycare Facility,
Public Authority Use and Social Service Centre;
- Office Uses, limited to General Office, Health Care Office,
and Health Enhancement Office;
- Retail Uses, limited to Grocery or Drug Store and Retail
Store; and
- Services Uses, limited to Animal Clinic, Barber Shop or
Beauty Salon, Laundromat or Dry Cleaning Establishment,
Print Shop, Repair Shop Class B, Restaurant - Class 1,
School - Arts or Self- Improvement, School - Business, and
School - Vocational or Trade.

FSR: 4.1

Height: 70 m

Parking: Off-street parking must be provided and maintained in
accordance with the applicable provisions of the Parking
By-law, except that residential parking will be provided at
the rate of 0.4 spaces for every dwelling unit plus one
space for every 100 square metres GFA (International Village
Standards).

Loading: One loading bay is to be provided.

Acoustics: In accordance with RM-4N District Schedule
CONDITIONS OF APPROVAL

[Phase 2a - S.U.C.C.E.S.S. Proposal]

(a) THAT the proposed form of development be approved by Council in
principle, generally as prepared by Davidson Yuen Simpson
Architects, and stamped "Received City Planning Department,
September 16, 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) any subsequent development application will be submitted to
the Ministry of Small Business and Tourism, for Provincial
Heritage clearance;

(ii) all structures, including decorative finishings, are not to
encroach onto the existing right-of-way connecting Shanghai
Alley with Taylor Street;

(iii) delete references to Shanghai Mews on the plans;

(iv) provision of bicycle parking in accordance with
Council-approved guidelines or by-laws applicable at the
development application;

(v) redesign the drop-off/turn-around loop at Shanghai Alley to
reduce vehicular conflicts between vehicles in the lane and
vehicles using the loop. The main flow of traffic should be kept along Shanghai Alley, with the loop used only for
drop-off and turn-around. This will require redesigning the
traffic island, and providing a paving pattern to
distinguish the lane from the loop;

(vi) provision of a minimum width of 6.0 metres for traffic lane
within the loop to allow for by-passing a stopped vehicle;

(vii) the existing right-of-way connecting to Shanghai Alley is to
be modified to include all sidewalks and drive aisles within
the drop-off/turn-around loop, to the satisfaction of the
City Engineer and the Director of Legal Services;

(viii) the transition to the maneuvering aisle on the right side
of the 12.5% entry ramp is not acceptable. A transition
ramp is to be provided;

(ix) provide for on-site garbage compaction, to the satisfaction
of the City Engineer;

(x) special surface treatment of Shanghai Alley which
represents potentially high maintenance costs and liability
concerns to the City may be the subject of a registered
Encroachment Agreement for this portion of the lane to
obligate maintenance by the adjacent properties. If this
is not done, Council should be made aware of the higher
maintenance costs undertaken by the City. Any special
treatment must be approved by the City Engineer;

(xi) design development to reduce opportunities for mischief in
the exit stairwell located on Carrall Street;

(xii) design development to reduce opportunities for break and
enter; and

(xiii) design development to improve security and visibility in
underground parking area in accordance with section 4.12 of
the Parking By-law and provision to paint the walls and
ceiling of the parking garage white.

(c) The following requirements shall be the subject of agreement
between the City and any future owner or lessee of the site:

(i) all BC Hydro and BC Tel services are to be underground
within the site from the closest suitable pole or service
point at the applicant s expense; and

(ii) a site servicing agreement to the satisfaction of the City
Engineer will be required to ensure that all Engineering
requirements are met, including:

(1) a private roadway system connecting Shanghai Alley
with Taylor Street must be constructed. If this
roadway is constructed with the Phase 1 project, Phase
2a and Phase 2b are to contribute the proportionate
share of the common costs. The following must be
provided:

- the two-way portion of Shanghai Alley running
east/west shall have 2.9 metre-wide sidewalks on
both sides, with a pavement width of 7.0 metres.
The one-way northbound portion of Shanghai Alley
shall have a 2.44 metre-wide sidewalk on the west
side, a 1.83 metre-wide sidewalk on the east side,
and a pavement width of 5.94 metres;

- sidewalks with curb and gutters must be constructed
in Shanghai Alley; and

- street lighting must be provided in Shanghai Alley.

(2) landscaping, boulevard trees, tree grates, street
lighting and special street, lane and sidewalk
treatments on City property must be provided to the
satisfaction of the City Engineer, and to Chinatown
Beautification Standards at the perimeter of the site.

(d) THAT, prior to enactment of the CD-1 By-law, subdivision of Lot 2
to create the site shall occur to the satisfaction of the Approving
Officer.

(e) The following commitment will be undertaken by the City:

(i) The City shall bear the cost of soil remediation. The Manager
of Real Estate Services shall supervise this work.

CONDITIONS OF APPROVAL

[Phase 2b - Real Estate Services Division Proposal]

(a) THAT, if approved at Public Hearing, the CD-1 By-law be accompanied
by CD-1 guidelines entitled 599 Carrall Street (Phase 2b -- Block
17) CD-1 Guidelines to be adopted by resolution of Council (see
Appendix G for draft which staff will continue to develop up to the
Public Hearing).

(i) any subsequent development application will be submitted to
the Ministry of Small Business and Tourism, for Provincial
Heritage clearance;

(ii) all structures, including decorative finishings, are not to
encroach onto the existing right-of-way connecting Shanghai
Alley with Taylor Street;

(iii) delete references to Shanghai Mews on the plans;

(iv) provision of bicycle parking in accordance with
Council-approved guidelines or by-laws applicable at the
development application;

(NOTE: If this sidewalk extends into private property not
encompassed by the existing right-of-way, then the
right-of-way is to be modified to include this sidewalk.)

(v) the porte-coch�re must be deleted. If a drop-off is
desired, an indented lay-by could be designed as part of
the lane, but a 2.9 metre-wide sidewalk path must be
maintained;

(NOTE: If this sidewalk extends into private property not
encompassed by the existing right-of-way, then the
right-of-way is to be modified to include this sidewalk.)

(vi) redesign the drop-off/turn-around loop at Shanghai Alley to
reduce vehicular conflicts between vehicles in the lane and
vehicles using the loop. The main flow of traffic should
be kept along Shanghai Alley, with the loop used only for
drop-off and turn-around. This will require redesigning the
traffic island, and providing a paving pattern to
distinguish the lane from the loop;

(vii) provision of a minimum width of 6.0 metres for the traffic
lane of the loop to allow for by-passing a stopped vehicle;

(viii) the existing right-of-way connecting to Shanghai Alley is
to be modified to include all sidewalks and drive aisles
within the drop-off/turn-around loop, to the satisfaction
of the City Engineer and the Director of Legal Services;

(ix) redesign the ramp system to remove the off-set at the
bottom of the parking entry ramp. This will require an
alignment change, a clockwise ramp and a parking level
entry system;

(x) provide for on-site garbage compaction, to the satisfaction
of the City Engineer;

(xi) concerns of the Fire Department outlined in Appendix E need
to be addressed;

(xii) CPTED principles identified in Appendix E are to be
addressed; and

(xiii) special surface treatment of Shanghai Alley which
represents potentially high maintenance costs and liability
concerns to the City may be the subject of a registered
Encroachment Agreement for this portion of the lane to
obligate maintenance by the adjacent properties. If this
is not done, Council should be made aware of the higher
maintenance costs undertaken by the City. Any special
treatment must be approved by the City Engineer.

(c) The following requirements shall be the subject of agreement
between the City and any future owner or lessee of the site:

(i) all BC Hydro and BC Tel services are to be underground
within the site from the closest suitable pole or service
point at the applicant s expense;

(ii) a public art agreement on the usual terms and conditions;

(iii) an agreement to not discriminate against families with
children; and

(iv) a site servicing agreement to the satisfaction of City
Engineer will be required for this site to ensure that all
Engineering requirements are met, including:

(1) a private roadway system connecting Shanghai alley
with Taylor Street must be constructed. If this
roadway is constructed with the Phase 1 project, Phase
2a and Phase 2b are to contribute the proportionate
share of the common costs. the following must be
provided:

- sidewalks with curb and gutters must be constructed
in Shanghai Alley;

- street lighting must be provided in Shanghai Alley;

(2) Taylor Street widening work and the final lift of
asphalt on Taylor Street is to be completed to the
satisfaction of the City Engineer, and at the
applicant s cost;

(3) if more than 200 units are proposed by the developer,
upgrading of the sanitary sewer is required; and

(4) landscaping, boulevard trees, tree grates, street
lighting and special street, lane and sidewalk
treatments on City property must be provided to the
satisfaction of the City Engineer, and to Chinatown
Beautification Standards at the perimeter of the site;

(d) THAT, prior to enactment of the CD-1 By-law, subdivision of Lot 2
to create the subject site shall occur to the satisfaction of the
Approving Officer.

(e) The following commitments will be undertaken by the City:

(i) The City shall bear the cost of remediating the soils. The
Manager of Real Estate Services shall supervise this work;
and

(ii) the Community Amenity Contribution of $1,054,070.00 shall
be paid from the Property Endowment Fund at the time the
market parcel is leased or sold.

NON-CONTENTIOUS ELEMENTS

SITE, SURROUNDING ZONING AND DEVELOPMENT: The site sits between
Chinatown to the north and east, International Village to the west and
south-west, and Andy Livingstone Park to the south. The Chinese
Cultural Centre and Dr. Sun Yat-Sen Classical Gardens are located
immediately east across Carrall Street. A context plan is shown on the
next page.

Block 17 is bounded by Pender, Carrall, Keefer and Taylor Streets, and
consists of three components. The north-east corner is owned privately,
and occupied by a number of older buildings, including the Jack Chow
Real Estate & Insurance Ltd. offices housed in the thinnest building in
the world (8 West Pender Street). The remainder of the block is owned
by the City of Vancouver. The north-west corner of the block (known as
Phase 1) is already zoned CD-1 (#348) by By-law No. 7556 passed April
23, 1996 which allows non-market housing, a social service centre for
S.U.C.C.E.S.S. and a small amount of commercial use. Development
application No. DE400437 was reviewed by Council in April 1996, and the
development permit was issued August 8, 1996. Construction is likely to
start in 1997, subject to Provincial funding.

PROPOSED DEVELOPMENT: The subject rezoning sites are broken into two
distinct components:

Phase 2a (S.U.C.C.E.S.S. Multi-level Care Facility)

To be developed with a 100-bed multi-level care facility to be operated
by S.U.C.C.E.S.S. The site will be leased by the City of Vancouver to
the B.C. Ministry of Health.

The form of development will be as represented in plans submitted by
Davidson Yuen Simpson Architects, dated September 16, 1996, and
presented in Appendix F of this report. Provisions of the CD-1 By-law
include:

- use to be Special Needs Residential Facility - Class B p
lus accessory uses;

- a maximum FSR of 1.8; and

- a maximum height of 14 m and three storeys.

CONTEXT PLAN:

Phase 2b (Real Estate Services Division, Residential Proposal)

To be developed with a market residential development with the potential
for commercial/retail/service at grade on Keefer Street.
The applicant indicates that approximately 200 dwelling-units is
possible, but the actual number of units will not be specified in the
by-law and will depend upon the unit make-up established by the ultimate
purchaser or lessee.

The form of development will be controlled by Council-approved
guidelines (see Appendix G for draft guidelines) which will supplement
the provisions of the CD-1 By-law, including:

- uses to include dwelling units, plus selected cultural and
recreational, institutional, office, retail and service uses, with
these non-residential uses limited to a maximum of 500 m2 fronting on
Keefer Street;

- a maximum FSR of 4.1; and

- a maximum height of 70 m.

USE AND DENSITY: The proposed uses of residential, multi-level care and
limited commercial on Keefer are appropriate in the context of the
surrounding residential and commercial districts. Densities have been
derived from two sources, the first being the need to achieve an
economic balance between the provision of a much needed care facility in
Phase 2a and the City s need to fund that project by recouping funds
through the sale or lease of the Phase 2b site. The second derivation
of density has been massing studies undertaken by Davidson Yuen Simpson
Architects, resulting in the optimum conceptual design as described in
the following section.

URBAN DESIGN: The overall form of development for all of Phase 2 is an
outcome of previous studies related to the site (e.g., during Phase 1
work), plus analysis of the surrounding context in preparation of these rezoning applications. The full extent of the applicant s analysis is
contained in the document entitled Block 17 Phase 2 Rezoning
Application 28 August 1996", as prepared by Davidson Yuen Simpsons
Architects, and stamped Received September 16, 1996, Planning
Department (Land Use and Development Division). A copy of this document
is on file with the City Clerk s Office for reference.

In summary, the form of development is premised on the following points:

- a three-to four-storey street wall is established along Taylor,
Keefer and Carrall Street to relate to adjoining developments in both
the International Village and Chinatown;
- the site plan provides for a transition between the tower plus podium
form established in International Village and the lower scale of the
Chinese Cultural Centre and Dr. Sun Yat-Sen Gardens to the east
across Carrall Street, and to the low scale of Chinatown beyond;

- the residential tower is situated in the context of other towers
proposed in International Village. The tower will be one of three
which will frame the west end of Andy Livingstone Park, at the
intersection of Taylor and Keefer Streets; and

- the tower is situated in a location to produce the least shadow for
Phase 2 developments and for Dr. Sun Yat-Sen Gardens to the east, and
to minimize the effect of shadows on the Phase 1 development.

The Urban Design Panel has commented positively on this massing concept
(See Appendix E).

HERITAGE CLEARANCE: As Block 17 is a City-owned, Provincially designated
heritage site, the City must seek the approval of the Minister of Small
Business, Tourism and Culture for any alternations to the site.
Ministry staff have been provided with on-going information about
development plans for the site. City staff have been advised that a
letter is to be received shortly from the Minister indicating concerns
with the alignment and treatment of Shanghai Alley. Further discussion
with Ministry staff indicates that if the alignment cannot be changed,
that some effort be made to acknowledge the historic importance of the
Alley through means such displays or treatment of the Alley. Staff
believe this is an issue that can be dealt with at the development
application stage, where discussions can occur with Ministry staff and
the applicant when Ministry clearance is sought.

SIGN BY-LAW AMENDMENTS: If the application is approved at Public
Hearing, an amendment to the Sign By-law will be required to establish
sign regulations for this CD-1 site in accordance with Schedule B
(HA-1)(Chinatown). Until recently, such an amendment by Council was
made at the time it enacted the CD-1 By-law for a site. On February 25,
1997, Council approved a Sign By-law amendment which requires the
payment of fees for privately-initiated Sign By-law amendments,
including a nominal fee for adding CD-1 sites to Schedule B. As this
rezoning application was made prior to February 25, 1997, staff
recommend that the required Sign By-law amendment be initiated through
an application by the Director of Land Use and Development.

PUBLIC AND SOCIAL BENEFITS: The overall development of Block 17 will
provide for a non-profit multi-level care facility, as well as
facilities for both S.U.C.C.E.S.S. and the Chinese Benevolent
Association (CBA). The sale of a portion of the site for market housing
will underwrite the public benefits which will accrue to the community
at large through the remaining development.

The market proposal in Phase 2b is required to pay a Community Amenity
Contribution (CAC). The rate has been previously determined by Council
at $6.00 a square foot. The total value of the CAC is $1,054,070.00,
which is included in Appendix C, as condition (e)(ii).

There are no implications with respect to the Vancouver Children's
Policy or Statement of Children's Entitlement.

ENVIRONMENTAL IMPLICATIONS: The location of major institutions such as
S.U.C.C.E.S.S. and CBA in close proximity to Chinatown itself, and to
the Chinese Cultural Centre and Dr. Sun Yat-Sen Gardens will reduce the
need for multiple trips within the area. Residents on site will be able
to walk to all of these facilities with ease.

INPUT FROM THE PUBLIC AND OTHER REVIEWING AGENCIES

PUBLIC INPUT: Rezoning information signs were posted on the site on
November 1, 1996. An early notification letter was sent to surrounding
registered property owners on November 14, 1996. One property owner,
Mr. Jack Chow, of Jack Chow Real Estate & Insurance Ltd. ( World s
Famous Building Corporation [pertaining to the narrowest building in
the world at 8 West Pender Street]), has met with staff and made
numerous representations pertaining to two concerns:

1. the inadequacy of setbacks of the S.U.C.C.E.S.S./CBA building
along East Pender Street and Shanghai Alley; and

2. the need to provide much-needed public parking on Block 17 in
addition to the development requirements of the site.

Mr. Chow s concerns in regard to setbacks on Phase 1 do not relate to
the two current rezoning applications.*

* (NOTE: Adjustments have been agreed to by S.U.C.C.E.S.S. to adjust sidewalk
and pavement widths in Shanghai Alley itself, as follows:

Rezoning Drawings Change

Westerly sidewalk 9.5 ft. [ 2.896 m] 8.0 ft. [ 2.44 m]
Easterly Sidewalk 4.0 ft. [ 1.22 m] 6.0 ft. [ 1.84 m]
Street width 20.0 ft. [ 6.1 m] 19.5 ft. [ 5.94 m]

Total 33.5 ft. [10.21 m] 33.5 ft. [10.21 m]

These changes were undertaken voluntarily by S.U.C.C.E.S.S. in order to
accommodate Mr. Chow s concerns without damaging their proposal and have been
incorporated in the subsequent development permit. Changes to the East Pender
Street setback are not possible. Mr. Chow has made his views known on this
issue at the Public Hearing related to that separate site, now zoned CD-1.)

With respect to the idea of including additional on-site public parking,
Engineering staff have continued to monitor Chinatown s overall parking
needs. Since Mr. Chow last raised this idea during the consideration of
the rezoning of Phase 1 of Block 17, the Murrin parkade has opened,
providing over 950 parking spaces. The overall parking needs of the
Chinatown area have been the subject of much study, and the City has
identified a basic need of approximately 600 parking spaces in addition
to the existing on and off-street parking. This has been reflected in
the current usage of the Murrin parkade. The parkade is centrally
located to serve the Chinatown community, and is within three blocks of
G.M. Place. In addition, the International Village development (across
Taylor Street from Block 17 has a large amount of parking for its own
needs and an additional 350 public parking spaces for stadium demands.
With the abundance of parking available in the downtown, and with the
proximity of Skytrain to G.M. Place and B.C. Place, stadium parking
needs have been adequately provided. The Block 17 development will have
adequate parking for its own needs, including a provision for visitor
parking. With an amount of parking in the area already provided for
existing and future needs, additional public parking on the Block 17
site is not supported.

COMMENTS OF THE MANAGER OF ENGINEERING SERVICES - Engineering has
identified the following conditions of approval:

1. A private roadway system connecting Shanghai Alley with Taylor
Street must be constructed. If this roadway is constructed with
the Phase 1 project, Phase 2a and Phase 2b are to contribute
their proportionate share of the common costs. The following
must be provided:

(i) the two-way portion of Shanghai Alley running east/west
shall have 2.9 metre-wide sidewalks on both sides, with a
pavement width of 7.0 metres. The one-way northbound
portion of Shanghai Alley shall have a 2.44 metre-wide
sidewalk on the west side, a 1.83 metre-wide sidewalk on
the east side, and a pavement width of 5.94 metres;

(ii) sidewalks with curb and gutters must be constructed in
Shanghai Alley; and

(iii) Street lighting must be provided in Shanghai Alley.

2. All structures, including decorative finishing, are not to
encroach onto the existing Right-of-Way connecting Shanghai Alley
with Taylor Street.

3. Delete references to Shanghai Mews on the plans.

4. Clarification is required for the number of units in Phase 2b.
If there are more than 200 units proposed by the development,
upgrading of the sanitary sewer may be required.

5. Off-street parking must be provided, developed and maintained in
accordance with the applicable provisions of the Parking By-law,
except as follows:

(i) the multi-care facility will provide parking at a rate of 1
space per 6 beds for staff and 1 space per 10 beds for
visitors; and

(ii) the market housing will provide parking at a rate of 0.4
spaces per unit, plus 1 space per 100 square meters GFA
(International Village Standards).

6. Provision of off-street passenger loading spaces for the
multi-care facility as per the Parking By-law.

7. Provision of one off-street loading space for the market housing.

8. Provision of bicycle parking in accordance with Council-approved
guidelines or by-laws applicable at the time of Development
Application.

9. The porte-coch�re for the market housing is not supported. If a
drop-off is desired, an indented lay-by could be designed as part
of the lane, but a 2.9 metre-wide sidewalk path must be
maintained.

10. Redesign the drop-off/turn-around loop at Shanghai Alley to
reduce vehicular conflicts between vehicles in the lane and
vehicles using the loop. The main flow of traffic should be kept
along Shanghai Alley, with the loop being accessed only for
drop-off or turn-around purposes. This will require redesigning
the traffic island, and providing a paving pattern to define the
lane from the loop.

11. Provision of a minimum width of 6.0 metres for the loop to allow
for a by-pass of a stopped vehicle.

12. The existing Right-of-Way connecting to Shanghai Alley is to be
modified to include all sidewalks and drive aisles within the
drop-off/turn-around loop, to the satisfaction of the City
Engineer and the Director of Legal Services.

13. Redesign the ramp system for the residential building in Phase 2b
to remove the off-set at the bottom of the parking entry ramp.
This will require an alignment change, a clockwise ramp and a
parking level entry system.

14. The transition to the maneuvering aisle on the right side of the
12.5% entry ramp in a multi-care facility in Phase 2a is not
acceptable. Provide a transition ramp.

15. Provision of on-site garbage compactors for each phase, to the
satisfaction of the City Engineer.

16. Taylor Street widening work and the final lift of asphalt on
Taylor Street is to be completed to the satisfaction of the City
Engineer, and at the applicant s cost.

17. Landscaping, boulevard trees, tree grates, street lighting and
special street, lane and sidewalk treatments on City property
must be provided to the satisfaction of the City Engineer, and to
Chinatown Beautification Standards at the perimeter of the site.

18. Special surface treatment of Shanghai Alley which represents
potentially high maintenance costs and liability concerns to the
City may be subject to a registration of an Encroachment
Agreement for this portion of the lane to obligate maintenance by
the adjacent properties. If this is not done, Council should be
made aware of the higher maintenance costs undertaken by the
City. Any special treatment must be approved by the City
Engineer.

19. All BC Hydro and BC Tel services are to be underground within the
site from the closest suitable pole or service point at the
applicant s expense.

20. A Site Servicing Agreement will be required for this site to
ensure that all Engineering requirements are met.

CHINATOWN HISTORIC AREA PLANNING COMMITTEE (CHAPC): The following is an
extract from the CHAPC meeting of September 10, 1996:

Block 17 - Phase 2

Messrs. Ron Yuen and Robin Hall of Davidson Yuen Simpson
Architects presented a model and design drawings to the Committee
for a proposed 4-storey multi-level care facility, (100 units)
fronting Carrall Street, and a 24-storey residential tower
project with possible retail, contained within City-owned land on
Block 17, bounded by Carrall, Pender, Keefer and Taylor Streets.

Mr. Yuen underscored the fact the care facility had been
specifically designed to meet needs of the Chinatown community,
where approximately 1,000 people are wait-listed for care
facilities. He noted that the street-hugging concept, which
incorporates design elements of Chinatown, had been developed to
afford privacy and maximize outdoor spaces, utilizing small walls
and screening for security.

The multi-care facility, including adult daycare (located on the
main floor near S.U.C.C.E.S.S. Social Services), extended care
and a 24-hour administrative component, will allow residents to
remain in familiar surroundings as their support needs expand,
rather than having to relocate to another care facility.
Accommodations, grouped into pods on three levels, will consist
of spacious single units, five double rooms (10 beds); private
washrooms, laundry facilities and dining salons convertible into
larger rooms. The project, which will utilize the proposed
Shanghai Alley as a drop-off point, is not anticipated to
engender a lot of traffic (other than at shift changes) or alter
traffic patterns around the building.

It is anticipated two rezoning applications will be submitted in
late September; one for the aforementioned care facility fronting
Carrall Street, and one for the residential tower project with
shops and some retail. The applications will go to Public
Hearing for a Council decision in February or March 1997.

In the discussion which ensued from the poll of individual
members, questions were raised concerning inequity of detail;
land-use incompatibility, the casting of shadows and the jarring
scale across the mews, which might result from the combination of
a 24-storey tower and 4-storey building; the depth of footprint;
and the envelope. While cognizant of the need for more detail,
the Committee RESOLVED

THAT CHAPC support in principle the proposed rezoning application
for a multi-level care facility fronting Carrall Street in
Block 17; and

FURTHER THAT the rezoning application for a market housing tower
in Block 17 be supported in principle, pending specifications and
drafting of the by-law.

Staff and the applicant met with the committee on March 11, 1997 to
review the market housing proposal, in response to the Committee s
previous comments. CHAPC felt their concerns were met with the proposed
CD-1 by-law and supplementary guidelines.

PERMITS AND LICENSES DEPARTMENT: The Industrial Waste Management Branch
has cleared the previous rezoning on the basis that B.C. Environment
find the proposed side remediation plan to be acceptable. Council has
previously approved that the City will undertake remediation of the
site.

FIRE DEPARTMENT: The site plan for the two buildings proposed has been
reviewed, with the following issues identified:

For the market housing building - there must be an error on the drawing
for the CRU on the ground floor because it is shown with an internal
door leading into the garage, and an interior stairs that goes up into
the dwelling units.

Aside from this, the more serious code issue are the three storey townhouses off the 2nd floor podium. They do not comply with VBBL on
exiting requirements. The applicant is advised to consult with Permits
and Licenses or to discuss this with a code consultant.

As for the care facility, they will have to comply in full as a B2
occupancy building.

Planning staff note that plans for the market component are conceptual
only. The comments, which pertain to the building permit stage, will be
flagged for the future developer.

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. If a Community Care Facility (adult or childcare)
is proposed, plans will have to be submitted for approval to C.C.F.L.
The Noise Control By-law does not require amendment.

CPTED REVIEW: This site is located in a high crime impact environment.
Environmental design should reduce opportunities for theft from auto,
bicycle theft, break and enter and mischief such as graffiti and
skateboarding. Designs that make places feel safer should also be
considered.

Phase 2a (Care Facility):

- design development to reduce opportunities for mischief in the exit
stairwell located on Carrall Street;

(NOTE TO APPLICANT: This can be achieved by locating exit stairs
within the building with a flush door to the exterior.)

- design development to reduce opportunities for graffiti;

(NOTE TO APPLICANT: Graffiti is prevalent in the downtown and its
removal is an expense to building owners and strata councils.
Opportunities for graffiti can be mitigated by reducing areas of
exposed wall, by covering these walls with vines, hedges, lattice or
steel mesh, or by using a protective coating material. Contact Ms.
Helen Chomolok, Graffiti Coordinator at 873-7162 for further
information and resource.)

- design development to reduce opportunities for break and enter;

(NOTE TO APPLICANT: Ground level units have shown to be most
susceptible to break and enter. Opportunities can be reduced by
deleting areas of concealment outside of doors, windows and patios,
by raising the units slightly above street grade and by providing
additional electronic security and hardware to these units.)

- design development to improve security and visibility in underground
parking areas in accordance with Section 4.12 of the Parking By-law
and provision to paint the walls and ceiling of the underground
parking areas white.

Phase 2b (Market Housing):

Key issues relating to this phase are:

- theft in the underground and separation of use in the parking to
ensure no crossover of users;

- podium level break and enter with the grand stairs leading to the
podium;

- defensible design for street level residential; i.e., like 888 Beach
Avenue (a.k.a. 1500 Hornby Street) in Downtown South,

- lack of surveillance of the gated walkway where it meets Carrall
Street; and

- ensuring no unclaimed areas where mischief can occur.

SENIORS' ADVISORY COMMITTEE COMMENTS: On November 29, 1996, the Special
Advisory Committee on Seniors endorsed the following comments on the
Phase 2 rezoning applications:

1. There appears to be little concern for the effects that this project
will have on Phase 1 of this project (S.U.C.C.E.S.S. Seniors
Housing). The amount of shade that is cast by the tower in Phase 2
onto the housing units in Phase 1 will seriously affect their
liveability. The shade diagrams depict shadows in March and
September, which are not the worst times of the year. Shadow
diagrams for December would be even more severe than the
March/September ones shown.

In May of this year, the Seniors Advisory Committee expressed their
concerns to the planners and architect of Phase 1 about the security
of the seniors (and families) who live in Phase 1 and who were
required to enter and exit their housing from Canton Alley rather
than being provided with a more secure entrance/exit off of Taylor
Street. Now our security concerns have increased because we realize
that Canton Alley will also be in shadow a great deal of the day
because of the placement of the Phase 2 tower. In addition, many of
the units that face into the alley will not get little sunlight and
moreover, the roof terrace will also be in shade for a greater part
of the afternoon.

2. The proposed outdoor public space, Shanghai Square, will have a
great deal of trouble functioning as such for two reasons:

a) its primary function is that of a turnaround serving to relieve
the congestion caused by the two way traffic coming from Taylor
Street and the 24-storey Phase 2 tower and the one way traffic
(northbound) on the northern portion of Shanghai Alley.

Having the parking entrance and exit to the 24-storey tower on
Shanghai Alley detracts from using Shanghai Square as a
ceremonial space. Whereas it may be possible to close a street
for a number of hours, it would be unreasonable to suppose that
people would accept being denied access to their parking spaces
associated with their homes for that length of time.

b) Shanghai Square will be in shade for most of the afternoon, so
is only really useable as an outdoor space in the morning.

3. The Committee would like to see more details concerning the Adult
Care that is offered.

4. Landscaping provided is minimal.

The applicant has responded to point 1 [see Applicant s comments on
Pages 10 and 11 of this Appendix]. Planning staff note that originally
envisioned as a public plaza area in a previous rezoning application,
Shanghai Square is effectively a traffic servicing turnaround which
will have extremely limited or no use for events. Agreement amongst all
serviced by Shanghai Alley will be necessary for even temporary closure.

URBAN DESIGN PANEL: The Urban Design Panel reviewed this proposal on
November 6, 1996 and supports the proposed use, density and form of
development.

The following is an extract from the Minutes of the Urban Design Panel:

EVALUATION: SUPPORT (9-0)

- Introduction: The Rezoning Planner, Rob Whitlock, presented this
proposal comprising two applications representing separate phases
of the project. The first phase (2A) comprises a 100-bed
multi-level care facility to be administered by S.U.C.C.E.S.S. The
second phase (2B) is a market housing development of approximately
200 units, at a density of 4.1 FSR and a height of 24 storeys.
Provision for commercial retail use along Keefer Street is
included. At this time, it is not known which phase of the project
will proceed first. Mr. Whitlock briefly reviewed the site
context.

- Applicant's Opening Comments: John Davidson, Architect, described
the proposal. He noted the care facility will likely proceed
before the residential component, although they are to be
considered together.

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

The Panel unanimously supported these rezoning applications and was
in general agreement with the proposed massing and positioning of
the elements on the site.

In general, the direction presented for the care facility was well
received and the Panel liked the detailing shown in the lower scale
buildings. One Panel member commented that while the Carrall
Street fa�ade is broken down quite well and successfully echoes the
typical scale of Chinatown, the entry should read more clearly.
The proposal to shift the administrative functions to the Carrall
Street side to align with the adjacent buildings was supported;
however, moving any of the residential units any closer to Carrall
Street as well was not recommended.

With respect to the residential tower, the Panel recommended
setting it back from Taylor Street above the 7th or 8th storey
level. Some Panel members also supported a higher tower with a
smaller floor plate, noting the tendency for larger floor plates on
a one-tower scheme such as this. Greater use of brick was
encouraged.

The Panel supported the proposed alignment of Shanghai Alley, which
it was noted takes better advantage of views into the park and back
into the site. Concerns were expressed about materials in Shanghai
Alley, with a strong recommendation to use something better than
the proposed asphalt. The Panel agreed with the proposal to
eliminate trees from the alley, as long as views to green space are
assured.

Regarding the lane that runs along the north side of the care
facility, one Panel member suggested allowing extra floor space in
the existing building so that it overhangs the lane, and to
encourage improvements to that building s fa�ade.

The Panel supported the landscape plan and liked the central space
with the turnaround.

Doorways opening onto Taylor Street were recommend by one Panel
member.

One Panel member questioned whether it is historically appropriate
to be surrounding this project with trees. While a double row of
trees along Keefer will be an improvement, it was suggested they
should thin out more towards Chinatown.

- Applicant's Response: Mr. Davidson noted the tower has been
developed beyond the stage normally required for a rezoning,
however, he agreed with the Panel s comments about the setback from
the street and more careful delineation of the 7-storey element,
which could be part of the guidelines. He added, the floorplate is
actually smaller than the floorplate allowable on International
Village. With respect to the lane at the north of the site, Ms.
Anne Bancroft-Jones of the City s Real Estate Division, explained
they are in discussions with the owner to the north.

COMMENTS OF THE APPLICANT: The applicant has been provided with a copy
of this report and has provided the following comments:

Special Advisory Committee of Council on Seniors

As you are requested, we contacted Gillian Watson-Donald to review her
memo dated November 20, 1996 regarding the comments of The Housing
Subcommittee of The Seniors Advisory Committee. Ms. Watson-Donald did
not have her notes in front of her but recalled the key issues as:

- overshading both the seniors housing windows and the office
building terrace;
- security concerns re Canton Alley, possibly increased due to
shadowing;
- conflicts of traffic movement and possible public/ceremonial
activities in Shanghai Alley; and
- visibility of resident bedrooms from the nurses station within the
care facility.

We discussed these matters openly and in a positive way. Our mutual
objective is to make Block 17, as a whole, a pleasant and safe place to
work and to live. Our comments on the specific points noted in the memo
are:

1. We too are very concerned about shadow impacts within Block 17. As
you know, we studied several alternative configura-tions and tower
locations for Phase 2b and recommended the proposed location to
maximize the solar access to both Phase 1 and 2. Canton Alley is a
very narrow space and, as a result the adjacent building tend to be
shaded much of the time. While the tower does cast some shadow
into Canton Alley between approximately 11:00 a.m. and 1:00 p.m. at
the equinox, a building of one half, or even one third, the
proposed height would have a similar effect. Shadows cast in
Canton Alley prior to 11:00 a.m. and after 1:00 p.m., result from
the S.U.C.C.E.S.S. Social Services and the CBA Housing buildings
themselves. The S.U.C.C.E.S.S. roof terrace is shaded by the tower
from approximately 1:00 p.m. to 3:00 p.m. at the equinox. A
shorter building, or a tower in another location, would have much
the same effect.

We cannot comment on the security of the seniors housing entrance.

2. In the current application, the primary purpose of Shanghai Alley
is to provide access to the adjacent buildings. The Phase 2
portion of Shanghai Alley will occupy a R.O.W. over the Phase 2a
and 2b properties. The closing and/or ceremonial use of Shanghai
Alley will, therefore, be at the discretion of the adjacent
property owners. Discussions with the sponsoring groups and other
community associations have emphasized the importance of site
safety and security. As a result, Shanghai
Alley has been carefully limited by the extent of adjacent
properties, and the proposal does not include the significant
public gathering space identified as Shanghai Square in the
original submission.

Shanghai Alley will include a paved road surface, curbs/ gutters
and sidewalks on both side for the safe passage of vehicular and
pedestrian traffic.

3. The Adult Day Care program may be defined as the care facility is
developed in detail. Space in currently set aside for future use
when funding is available.

4. The landscape plan included in the rezoning package illustrates the
conceptual development of the streetscape and the common spaces
related to Phase 2a and 2b. These ideas will be refined as part of
the Development Permit process.

We trust this illustrates our intentions and adequately responds to the
Housing Sub-Committee s concerns.

The following points respond to comments from the Engineering and Fire
Departments:

Engineering Issues

1. A private roadway system will be constructed to connect Shanghai
Alley and Taylor Street.

Cost sharing agreements will be signed between the property owner
(City) and the lessee (Ministry of Health).

i) Attached drawing shows the various dimensions. Note that the
northbound portion of Shanghai Alley will comprise 9.592 m of
lane and 0.60 m R.O.W. on the property to the west (Phase 1)
for a total clear dimension of 10.192 m and a reduction of the
pavement from 6.10 m to 5.922 m.

ii) Sidewalks with curbs and gutters will be constructed in
Shanghai Alley.

iii) Street lighting will be provided in Shanghai Alley.

2. It will be important for the housing site to be permitted a
demountable canopy over the drop-off area. No other encroachments
into the R.O.W. are expected and nothing will encroach over the
travel surface of Shanghai Alley.

3. So as not to give the impression of a public walkway, the reference
to Shanghai Mews will be removed from the plans.

4. Zoning for Phase 2b will specify a maximum gross area. Future
development will determine the number of housing units as a
function of target market, configuration of units, etc. The
limitation of 200 units related to existing sewer capacity is
acknowledged.

5. (i) Parking for the care facility will be provided on the basis of
1 space per 6 beds for staff plus 1 space per 10 beds for
visitors, as a minimum.

(ii) Agreement on parking ratios for the housing site has been
reached between Properties and Engineering. 6. The drop-off loop at Shanghai Alley will be used for passenger
loading for the care facility. For larger vehicles (e.g., mini
buses), the underground service and parking areas will be available
for passenger loading.

7. The off-street loading space for the housing site is shown, at
grade adjacent to the entrance, on the attached drawing.

8. Bicycle parking and storage will be provided as required at the
time of DPA.

9. The plan has been revised to illustrate the sidewalk configuration
required to accommodate a lay-by. If a lay-by is desired by the
developer, a volumetric easement will be necessary to accommodate
the sidewalk.

10. The drop-off/turnaround loop has been redesigned per attached
drawing. Paving in the loop will be differentiated from Shanghai
Alley over the hatched area.

11. Pavement in the loop is 6.0 m minimum width.

12. Existing R.O.W. will be modified to accommodate the proposed
configuration of Shanghai alley and the drop-off loop.

13. The parking ramp system on the housing site can be modified to meet
engineering requirements. This should be a DPA issue.

14. The parking arrangement on the care site has been modified as shown
on the attached drawings to meet the ramp slope and transition
criteria.

15. A garbage compactor will be provided on the care site and is
expected on the housing site. Private collection service is
anticipated.

16. The allocation of Taylor Street improvement costs will be defined
in the zoning legal agreements.

17. Streetscape work on City property will be considered in the zoning
legal agreements and defined during the Development Permit process.

18. Shanghai Alley will have asphalt pavement and concrete curbs,
gutters and sidewalks consistent with item 17 above. The drop-off
loop will have special paving. All to be approved by the City
Engineer.

19. Services will be underground. Phases 1 and 2b will be separately
serviced.

20. The site Service Agreement will be completed as part of the Zoning
Enactment process.

Fire Department Issues

1. If commercial space is provided on the lowest level, there will not
be stair connections as shown. If the lowest level is residential,
the stair will connect to the level above, within each unit. Any
openings into the parking garage from residential or commercial
space will be either by way of a common corridor or a vestibule.
The detail is not shown on the current plans which are intended for
general illustration purposes only.

2. The sectional drawing through the Keefer Street building is not
fully detailed. The design configuration will meet VBBL exiting
requirements. Considering the residential podium as acceptable open space for exiting, the design will comply with Article
3.3.4.3 of the VBBL.

3. The care facility will be designed in full compliance with the VBBL
as a B2 occupancy.

FORM OF DEVELOPMENT

DRAFT CD-1 GUIDELINES 599 CARRALL STREET
(PHASE 2b - BLOCK 17)

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address 599 Carrall Street
Legal Description Lot 2, Block 17, D.L. 541, Plan 10212

Applicant Robin Hall, Davidson Yuen Simpson Architects

Architect Davidson Yuen Simpson Architects
Property Owner City of Vancouver Developer Phase 2a - S.U.C.C.E.S.S; Phase 2b - (not known at this
time)

SITE STATISTICS

GROSS DEDICATIONS NET
SITE AREA 7 410 m2 - 7 410 m2

DEVELOPMENT STATISTICS
DEVELOPMENT RECOMMENDED
PERMITTED UNDER PROPOSED DEVELOPMENT DEVELOPMENT (if
EXISTING ZONING different than
proposed)

ZONING BCPED CD-1

USES Various Multiple Dwelling,
Special Needs,
Residential, Commercial

DWELLING UNITS N/A Approx. 200 market
dwelling units and 100
bed multi-level care
facility
MAX. FLOOR SPACE N/A Phase 2a - 1.78 Phase 2a - 1.8
RATIO Phase 2b - 4.10

MAXIMUM HEIGHT N/A Phase 2a - 3 storeys/14
m
Phase 2b - 24 storeys/70
m
PARKING SPACES As per Parking As per Parking By-law,
By-law with a residential
parking rate of 0.4
spaces per dwelling unit
plus 1 space per 100 m2
GFA

R:\CC\REPORTS\COUNCIL\MAY6\P2.