POLICY REPORT
DEVELOPMENT AND BUILDING
Date: April 25, 1997
Dept. File No. 96041 TWP
C.C. File: 5305-1
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Rezoning - 5338-5490 Larch Street
RECOMMENDATION
A. THAT the application by Brook Development Planning Inc. to
rezone 5338-5490 Larch Street (Lots 10-16 of Lot 12, Block 17,
D.L. 526, Plan 3946) from RS-1 to CD-1, to permit 46 dwelling
units in 3-storey townhouse and stacked units, be referred to
a Public Hearing, together with:
(i) plans received March 26, 1997;
(ii) draft CD-1 By-law provisions, generally as contained
in Appendix A; and
(iii) the recommendation of the Director of Land Use and
Development to approve, subject to conditions
contained in Appendix B.
B. THAT, subject to approval of the rezoning at a Public Hearing,
the Subdivision By-law be amended as set out in Appendix C;
and
FURTHER THAT the Director of Legal Services be instructed to
bring forward the amendment to the Subdivision By-law at the
time of enactment of the zoning by-law.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
On January 18, 1996, Council amended the 1980 Kerrisdale single-family
rezoning policy to read as follows:
The Director of Planning is instructed to advise applicants or
potential applicants wishing to alter the residential zoning in
Kerrisdale that Council would not be prepared to consider any
rezoning application from single-family residential to apartment,
townhouse or other higher-density residential use, unless:
(i) the application is submitted under the City s Neighbourhood
Housing Demonstration Program; and
(ii) the proposed density and form of development for the total
site would be compatible with adjacent development.
To qualify as a Neighbourhood Housing Demonstration project, a
rezoning application must "demonstrate a new housing form in a
neighbourhood, improved affordability, and a degree of
neighbourhood support".
PURPOSE AND SUMMARY
This report assesses an application to rezone a .5 ha(1.3 ac.) RS-1
zoned site on the east side of Larch Street north of West 39th Avenue to
CD-1 (Comprehensive Development District) to develop 46 ground-oriented
dwelling units in 3-storey townhouse and stacked units, at a maximum
density of 1.20 FSR with 92 underground parking spaces. Staff conclude
that this would be a desirable transitional use, density and scale of
buildings in the proposed location, and offers a form of housing
otherwise not being developed in the Kerrisdale area. Staff recommend
approval.
DISCUSSION
Background
On February 25, 1997, Vancouver City Council approved the following
recommendation contained in a February 5, 1997 Administrative Report:
"THAT the proposal to develop 46 townhouses at 5338-5490 Larch
Street qualify as a Neighbourhood Housing Demonstration Project and
Council authorize the Director of Land Use and Development to
process the rezoning application by Brook Development Planning Inc.
for this site in accordance with the standard City rezoning
process."
Use Some Kerrisdale residents believe multiple dwellings should not
displace any more one-family dwellings in their area. However, staff
believe that 3-storey low-rise multiple dwellings can be supported on
the subject site, given that this is one of the few residential areas in
Vancouver to have highrise multiple dwellings immediately adjacent to
one family development. In most other areas, some form of
ground-oriented use of a higher density than one-family units intercedes
between apartment and one-family districts. The proposed
ground-oriented multiple dwellings would provide a better transition.
Demand for ground-oriented dwellings is high, yet the supply and price
of land within the City make detached one-family units prohibitively
expensive for many, and few units can be added to the supply in urban
parts of the region. Townhouse and stacked units offer space-efficient
and more affordable ground-oriented alternatives to one-family
dwellings. The proposed 3-bedroom units could accommodate families who
may otherwise choose suburban locations requiring long commuting
distances and exacerbating regional traffic growth.
Some area residents suggest subdivision of the 7 existing lots to permit
14 one-family dwellings. This would not address affordability or the
demand for more ground-oriented alternatives to one-family
accommodation, nor would a more gradual transition be created. A second
suggestion to permit subdivision and two-family dwellings has greater
merit, since up to 28 ground-oriented units could be permitted. However,
it is unlikely that two-family dwellings would be built due to high
land and development costs in the Kerrisdale area. The proposed
townhouses and stacked units would also provide significantly more
units.
Intrusive overlook into or shadowing of rear yards are commonly cited as
an undesirable impacts of multiple dwellings adjacent to one-family
districts. In this case, the choice of a site separated from remaining
RS-1 sites by streets, instead of lanes, precludes these impacts.
Density The proposed density of 1.2 FSR is generally considered too
high by nearby residents. However, it is within the range of density
typically supported in locations immediately adjacent to one-family
development. This density also represents the median between the two
adjoining districts, having a density of approximately 1.88 FSR in the
RM-3 District to the east (Fontianbleau) and 0.6 FSR in the RS-1
District to the west. Staff note that the proposed 47% site coverage
would exceed the 40% RS-1 site coverage by only 7%.
Form The proposed 3-storey townhouse form is well suited to a
transitional location between apartment and one-family forms of
development. It offers a gradual stepping in scale from predominantly
2-storey development to 3-storeys and a massing sympathetic to that of
one-family homes. By comparison, the existing zoning boundary presents
a very abrupt edge, with the 13-storey "Fontainbleau" towering over
backyards of 1.5-storey houses.
The massing is broken into clusters, alternately parallel and
perpendicular to Larch Street, presenting two rowhouse facades
interspersed with narrow house-like end facades, maintaining a rhythm
started with retention of the heritage house at 5338 Larch Street. (See
Plans: Appendix D)
Building Character Staff asked both the Urban Design Panel and the
Heritage Advisory Commission whether the proposed character of buildings
suited Kerrisdale or would be too much like Kitsilano as argued by some
residents. Both advisory bodies believe the proposal would fit well
with existing area character. Staff concur.
Precedent Many residents fear that approval would lead to widespread
rezoning of nearby one-family districts. In terms of providing a
planning rationale for further rezonings, the current proposal offers no
comparison to sites west of Larch Street or north of West 37th Avenue.
A comparison could be made to the block to the south on the east side of
Larch Street. However, Council s adopted CityPlan Rezoning Policy
precludes additional rezonings unless a project qualifies as a Housing
Demonstration Program application. To do so it could not repeat the
current proposal. Beyond this, any significant additional housing would
need to be considered as part of a future Community Vision.
Traffic Engineering staff have reviewed a consultant s traffic
assessment and found the methodology and conclusions acceptable.
Projected incremental traffic increases associated with the proposed
development would be marginal, relative to current volumes and do not
exceed capacities for the affected streets. However, current traffic on
Larch Street and West 37th Avenue is unacceptable to many residents and
any increase is of concern.
Parking The proposed 92 underground parking spaces would achieve the
parking standard of the adjoining RM-3 District.
CONCLUSION
Planning staff conclude that regional demand for ground oriented
alternatives to one-family dwellings would be well served by 3-storey
townhouses and stacked units in this location. This project would
demonstrate the viability of an intermediate scale and density of
development, with ground access for families, in an area of the city
offering immediate access to local commercial services, transit, and a
recreation centre and having a higher than average supply of parkland.
Staff recommend approval.
With respect to concern that this project would trigger widespread
similar rezonings, Council policy would prevent this prior to a
publicly-disscussed Community Vision for the area.
* * * * *
APPENDIX A
DRAFT CD-1 BY-LAW PROVISIONS
Use
- Multiple dwellings containing a maximum of 43 dwelling
units, each having direct exterior access; and
- Multiple conversion dwelling containing a maximum of 3
dwelling units.
Density
- Maximum floor space ratio of 1.20, based on
calculation provisions of the RT-6 District Schedule,
except that roof overhangs may extend to 1.2 M (4 ft.)
and minimum ceiling height would be 1.5 m (5 ft.).
Height
- A maximum of 12.2 m (40 ft.) or 3-storeys
Setback
- A minimum setback of 5.48 m (18 ft.) from Larch Street;
- A minimum setback of 4.5 m (14.8 ft.) from West 39th
Avenue;
- A minimum setback of 4.5 m (14.8 ft.) from the east
property line;
( 1.2 M roof overhangs and bay windows to floor
level would be permitted )
Parking
- Per Parking By-law, except that a minimum of 92
underground parking spaces must be provided.
PROPOSED CONDITIONS OF APPROVAL
(a) THAT the proposed form of development be approved by Council in
principle, generally as prepared by Ramsay Worden, Architects,
and stamped "Received City Planning Department, March 26, 1997",
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) provision of balconies for the two upper middle units of
the centre building;
(ii) buildings with the widest dimension fronting a
street
should not exceed 11.2 M (36.7 ft.)in height;
(iii) no changes to the front elevation of 5338 Larch Street or
to side elevations back to the roof ridge;
(iv) two suites in 5338 Larch Street to be accessed through
the original front door;
(v) exterior materials on 5338 Larch Street to be replaced
only if those materials have deteriorated beyond repair
and the integrity of the existing character is maintained
to the satisfaction of The Director of Planning (to be
reviewed by the Heritage Planner); and
(vii) design development to improve security and visibility in
underground parking (Sec. 4.12 Parking By-law) by
painting walls, ceiling and utility pipes white.
(c) THAT, prior to enactment of the CD-1 By-law, the registered
owner shall:
(i) consolidate Lots 10-16 of Lot 12, Block 17, D.L. 526,
Plan 3946;
(ii) make arrangements to the satisfaction of the General
Manager of Engineering Services and Director of Legal
Services for provision of:
- dedication of a 10'x10' corner cut-off at the north
east corner of the site for lane purposes;
- upgrading of the water system to adequately serve the
proposed development (Estimate: $105,500.00);
- paving of the lane south of West 37th Avenue from Larch
Street to the lane east of Larch, and the lane east of
Larch from West 39th Avenue to the lane south of West
37th Avenue;
- provision of street trees adjacent the site; and
- undergrounding of electrical and telephone services
within and adjacent the site from the closest existing
suitable service point;
(iii) execute a legal agreement satisfactory to the Director of
Legal Services providing that owners will not discriminate
against families with children in the sale of their
property; and
(iv) obtain designation of 5338 Larch Street under Schedule A
of the City s Heritage By-law.
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development This .53 ha (1.3 ac) site is
comprised of 7 parcels on the east side of Larch Street north of West
39th Avenue. The site has a frontage of 139.9 m (459 ft.) and a depth
of 38.25 m (125.5 ft.).
Proposed Development This proposal would retain, relocate and convert
the B -listed heritage house at 5338 Larch Street to contain 3 dwelling units. Six new structures of a townhouse form would be added,
containing 33 three-storey three-bedroom townhouses and 10 stacked 1 and
2 bedroom units. Two of the new structures would front Larch Street,
one would front West 39th Avenue and two would be set to the rear of an
interior courtyard. All new structures would have steeply pitched roofs
suggesting a character similar to pre-WWI craftsman styles in Vancouver.
Parking would be underground, with access from the lane east of Larch
Street.
Public Input A notification letter was sent to nearby property owners
on December 6, 1996 and rezoning information signs were posted on the
site on December 20, 1996. A public open house at St. Mary s Church on
January 16, 1997 was attended by approximately 50 people, of whom 43
completed questionnaires. There were 34 in support, 7 opposed, 1 with
no opinion, and 1 agreeing with the design but opposed to the density.
Nearby residents have submitted 4 letters in support along with 11
letters in support from other Kerrisdale residents and 10 in support
from other areas of the city. One resident has written to raise
specific concerns regarding potential view blockage and traffic
management.
A petition in opposition to the proposal containing 71 names,
representing 53 households, 7 letters from nearby residents, and letters
from the West Kerrisdale Residents Association were received, stating
principal concerns as follows:
* proposed density is too high next to a one-family area;
* this would encourage further rezoning of the RS-1 area;
* multiple dwellings are not appropriate in one-family area;
* design character is like Kitsilano, not Kerrisdale;
* existing traffic problems will get worse;
* parking congestion will get worse;
* possible infrastructure overload; and
* need for a neighbourhood plan.
These issues are addressed above under headings of Density, Form,
Character, Precedent, Traffic and Parking. Water service would be
upgraded. The Community Visions Program, if successful in its current
pilot project, has the potential to address the need for a plan in the
future.
Comments of the City Engineer The City Engineer has no objection to the
proposed rezoning, provided that the applicant complies with conditions
as shown in Appendix B.
Park Board Comments Both Arbutus Ridge and Kerrisdale local areas have
an average park space per capita ratio significantly higher than the
City average. This site is within walking distance of the Kerrisdale
Community Centre. However, it is not within close walking distance of a
park.
Comments of the Manager of the Housing Centre This project falls under
the City s Neighbourhood Housing Demonstration Program. This program
allows the consideration of private developments in or adjacent to
single family areas that demonstrate an innovative housing form and
improved affordability. There must be a degree of neighbourhood
support, and any profit over and above what is justified by the risk
must be used to further improve affordability. The purpose of
Neighbourhood Housing Demonstration Projects is to develop forms of
housing that provide many of the attributes of single family homes at a
higher density. Both CityPlan and the Livable Region Plan have
identified medium density ground-oriented housing as necessary to
address continuing population growth in the Vancouver region, and the
continuing need for housing with access at grade to private outdoor
space.
Council considered this project on February 25, 1997 at which time it
was accepted as a Neighbourhood Housing Demonstration Project. The 46
townhouses proposed represent a form of housing that has not been
developed in the area, or elsewhere in the City, and the townhouses will
sell for significantly less than single family homes on Vancouver s West
Side. While there has been opposition to the project, there has been
sufficient support to satisfy the program community support criteria,
and a review of the project economics indicates that it should not
generate windfall profits for the developer.
The Housing Centre supports this project as a Neighbourhood Housing
Demonstration Project, and as an important example of a form of housing
that can address Vancouver s housing needs.
Urban Design Panel Comment The Urban Design Panel reviewed this
proposal on December 4, 1996 and unanimously supports the proposed use,
density and form of development.
Vancouver Heritage Commission Comments The Commission reviewed this
application on December 16, 1996 and resolved that it supports the
proposed change in the location of the heritage-listed building at 5338
Larch Street, subject to the following conditions:
- no changes be made to the front elevation, or to the side
elevations as far back as the roof ridge;
- two suites be accessed through the original front door;
- materials be changed only when the structural integrity of the
building is maintained; and
THAT the heritage building be differentiated from the new development in
materials and colour;
AND THAT research be carried out to determine the original colours of
the heritage building.
Public Benefit Regional objectives for ground-oriented alternatives to
one family-dwellings would be well served by development of 46
ground-oriented units within walking distance of the Kerrisdale shopping
district and community centre.
ENVIRONMENTAL IMPLICATIONS
Nearby access to transit, commercial services and a community centre may
reduce dependence on use of automobiles.
SOCIAL IMPLICATIONS
The Childcare Coordinator advises the proposed development would provide
ground-oriented alternatives to one-family dwellings suited to a wide
variety of housing needs, including families, in a high amenity
location. She estimates the development would generate demand for 4
daycare spaces. No requirements are proposed for the development, as
daycare needs for the area would be accommodated by future upgrading of
the Kerrisdale Community Centre.
CONSEQUENTIAL AMENDMENT
If the proposed rezoning is approved, an amendment to the Subdivision
By-law will be needed, at the time of enactment, to delete the Category
D standards which currently apply to these RS-1 zoned lots.
COMMENTS OF THE APPLICANT
The applicant has been provided with a copy of this report and has
provided the comments attached as Appendix E.
APPENDIX E
APPENDIX F
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 5338 - 5490 Larch Street
Legal Description Lots 10 - 16 of Lot 12, Block 17, D.L.526, Plan 3946
Applicant Brook Development Planning Inc.
Architect Doug Ramsay, Ramsay Worden Architects
Property Owner St. Mary s Parish, R.A. Johnston, F.A. Schipizky, D.
Inman, H.C. and S.R. Mouratidis, J.A. and L.M. Baxter,
L.I. Hundley
Developer Bill Swalling, Actual Developments
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 5353.8 m2 4.6 m (50 sq. ft.) 5349.2 m2
(57,630 sq. (57,580 sq. ft.)
ft.)
DEVELOPMENT STATISTICS
RECOMMENDED
DEVELOPMENT PERMITTED PROPOSED DEVELOPMENT
UNDER EXISTING ZONING DEVELOPMENT (if different
than proposed)
ZONING RS-1 CD-1
USES one-family dwelling multiple dwelling
DWELLING UNITS 7 46
MAX. FLOOR SPACE 0.6 1.2
RATIO
SITE COVERAGE 40% 47%
MAXIMUM HEIGHT 9.2 m (30 ft.) 12.2 m (40 ft.)
MAX. NO. OF STOREYS 2 1/2 3
PARKING SPACES 7 92
FRONT YARD SETBACK 20% (7.7 m/25 ft.) 5.48 m (18 ft.)
SIDE YARD SETBACK 10% (2 m/6.6 ft.) 4.5 m (14.8 ft.)
REAR YARD SETBACK 45% (17.2 m/56.6 ft.) 4.5 m (14.8 ft.)
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