POLICY REPORT
URBAN STRUCTURE
Date: May 16, 1997
Dept. File No.: PB
C.C. File: 5301-1/8012
TO: Vancouver City Council
FROM: Director of Community Planning
SUBJECT: RS Options - Portions of West Kerrisdale
RECOMMENDATIONS
A. THAT the Director of Land Use and Development be instructed to
make application to:
rezone the North Kerrisdale RS-1S area shown on Figure 1
from RS-1S to RS-5S; and
rezone the North Kerrisdale RS-1 area and the South
Kerrisdale RS-1 area shown on Figure 2 from RS-1 to RS-5;
and
FURTHER THAT this application and by-laws be referred to
Public Hearing;
AND FURTHER THAT the Director of Legal Services be instructed
to prepare the necessary by-laws for consideration at the
Public Hearing.
B. THAT the Director of Community Planning be instructed to
report to Council development applications which are contrary
to the proposed zoning amendments for possible withholding
pursuant to Section 570 of the Vancouver Charter.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
and B.
COUNCIL POLICY
On June 6, 1995, Council asked staff to report back on interim measures
to deal with neighbourhood requests for character zoning until such time
as staff are able to go back into those neighbourhoods to work with them
on the CityPlan Neighbourhood program.
On May 17, 1996, Council instructed staff to proceed, in co-operation
with neighbourhood groups, with a consultation process to determine
neighbourhood support for an interim zoning in single-family areas in
advance of CityPlan's neighbourhood visioning program, to proceed with
RS-6 as an interim zone available to RS-1 and RS-1S single-family
neighbourhoods and, where there is demonstrated community support, to
include RS-5 as a possible interim zone for single-family
neighbourhoods.
SUMMARY AND PURPOSE
This report recommends referral to Public Hearing of: RS-5S zoning for
the portion of West Kerrisdale currently zoned RS-1S (North Kerrisdale
RS-1S) illustrated on Figure 1 below; and RS-5 zoning for the portions
of West Kerrisdale currently zoned RS-1 (North Kerrisdale RS-1 and South
Kerrisdale RS-1) illustrated on Figure 2 below.
Figure 2
Multi-language random sample telephone surveys of area residents and
property owners were conducted in each of these areas. The surveys
indicated that there was roughly 65% to 69% support for a zoning change
to deal with concerns about the design of new developments and
landscaping: 65% in North Kerrisdale RS-1S; 66% in North Kerrisdale
RS-1; and 69% in South Kerrisdale RS-1. Of those in favour of a zoning
change, 75% in North Kerrisdale RS-1S chose RS-5S, 65% in North
Kerrisdale RS-1 and 59% in South Kerrisdale RS-1 chose RS-5.
RS-5 and RS-5S zoning encourages new development and additions to be compatible with the neighbourhood by providing a floor space increase if
the RS-5 Design Guidelines are followed. If followed, the design of new
houses and major additions along with site landscaping would be derived
from the design of properties adjacent to the development site.
Figure 1. Proposed RS-5S District - A Portion of West Kerrisdale RS-1S
District (North Kerrisdale RS-1S)
Figure 2. Proposed RS-5 Districts - Portions of West Kerrisdale RS-1
District (North Kerrisdale RS-1 and South Kerrisdale RS-1)
BACKGROUND
On May 17, 1996, Council adopted a process to implement the interim
zoning program requested by Council on June 6, 1995. The program
addressed issues of external design and site landscaping in RS-1/RS-1S
neighbourhoods. RS-6 zoning is offered with the additional option of
RS-5 zoning where there is demonstrated community interest in that zone.
RS-5 and RS-5S zones (RS-5S is a new zoning recommended for approval at
Public Hearing on May 29, 1997, to replace RS-1S zoned areas) encourage
new houses and additions to be compatible with existing houses and
landscaping by providing a floor space increase in exchange for going
through a design guideline review process. Buildings which meet design
guidelines derive their design from adjacent houses and site
landscaping. "Impermeability" regulations prohibit excessive paving of
the site. When the guidelines are used, the permit process in this zone
takes two to three months for a development permit, one to three weeks
for the building permit. For those who do not seek a floor space
increase but build to an above basement floor space slightly less than
the maximum permitted under RS-1, no design review occurs and applicants
are only required to follow regulations. For these applications, joint
planning/building permits take one to three weeks.
RS-6 (and RS-6S) zoning requires/prohibits certain design features, and
encourages site landscaping in order to establish a minimum standard of
design quality and foster a greater variety of design than under RS-1
zoning. "Impermeability" regulations prohibit excessive paving of the
site, and a modest floor space increase is provided if landscape design
guidelines are followed. The combined Development Permit and Building
Permit process in this zone takes roughly three to five weeks.
The Council-approved planning process for the interim rezoning program
involves three steps:
1. Phase I - This phase determines the general level of neighbourhood
support for a change in zoning. Only after neighbourhood support is
demonstrated does Planning commit significant time and resources to
a rezoning process. This first step is therefore carried out in
co-operation with resident groups who assist in notifying area
residents/ property owners of the planning program. A post-returned
"expression of interest" survey is then conducted among all area
residents and property owners. This survey is monitored or carried
out by Planning staff. If the survey achieves a 25% response rate,
and if 60% of the respondents to the survey support a change in
zoning, then staff proceeds with Phase II.
2. Phase II - This phase determines the type of single-family zoning
which the neighbourhood supports. Staff distribute more detailed
information on RS-1, RS-6 and RS-5 zoning to all area residents and
property owners and hold open houses. Following this, an
independent consultant is used to conduct the Phase II survey as a
multi-language random sample telephone survey. Typically, for a
neighbourhood of roughly 2,000 households, 700 are contacted
leading to the completion of approximately 400 interviews (taking
into account people who are not home or who refuse to be interviewed). This yields statistical results at a 95% confidence
level with a plus or minus 5% margin of error. A 60% support rate
for a new zoning is adequate for staff to refer a rezoning report
to Council.
3. Staff report back to Council on the Phase II survey results with a
recommendation on the area zoning and, where appropriate, referral
to Public Hearing.
DISCUSSION
1. Planning Process
(a) Phase I Resident Surveys
In consultation with the Planning Department, residents from North
Kerrisdale RS-1 and RS-1S, and South Kerrisdale RS-1 conducted their own
resident surveys in July of 1996. Block captains or contacts delivered
and received completed surveys. Staff reviewed the survey results and
felt the survey work was equivalent to the Phase I portion of the
planning process discussed above. The results of the Phase I survey can
be summarized as follows, with response rates for each area (i.e., total
surveys returned/total surveys delivered) listed below each area in the
first column:
Question 1: Which a) Retain the b) Seek an c) Undecided
option do you current RS-1/ alternative
prefer? RS-1S zoning zoning
North Kerrisdale 9% 90% 1%
RS-1 and RS-1S
(36% response rate)
South Kerrisdale 10% 90% 1%
RS-1
(62% response rate)
The results of the Phase I survey indicated that there was sufficient
support in these areas to proceed onto Phase II of the Interim Zoning
process: all areas had a greater than 25% response rate and each had
significantly more than 60% of those responding supporting a change in
zoning.
(b) Phase II Telephone Surveys
In April of 1997, staff distributed detailed information on RS-1/ RS-1S,
RS-5 and RS-6 (and proposed RS-6S and RS-5S) zoning to all residents and
property owners in South Kerrisdale RS-1, North Kerrisdale RS-1 and
North Kerrisdale RS-1S (see Appendix A). Contained in the information
package were staff phone numbers in order that questions could be asked
and responses given. Multi-lingual "call back" lines were set up for
people with English as a second language. All distributed material was
translated into Chinese. An open house (with translation services) was
held in the area to answer questions and display additional, more
detailed information about the zoning.
The random sample telephone surveys of area residents and property
owners were conducted by an independent consultant in each of the areas
in the middle of April. With approximately 250 completed phone surveys
in North Kerrisdale RS-1 area and 150 completed calls in the South
Kerrisdale RS-1 area, the accuracy of the resulting statistics is
roughly plus or minus 5% for each neighbourhood at a 95% confidence
level. The 31 interviews in North Kerrisdale RS-1S yielded statistics
with a margin of error of plus or minus 8% at a 95% confidence level.
The survey results are as follows (see summary - Appendix B; a full detailed report is on file in the City Clerk's Office).
Question 1: Which a) Retain the b) Seek an c) No opinion
option do you current RS-1/ alternative
prefer? RS-1S zoning zoning
North Kerrisdale 29% 66% 6%
RS-1
North Kerrisdale 32% 65% 3%
RS-1S
South Kerrisdale 29% 69% 3%
RS-1
Question 2: Which a) RS-5/ b) RS-6/ c) Undecided
zoning option do you RS-5S RS-6S
prefer?
North Kerrisdale 43% 21% 2%
RS-1
North Kerrisdale 48% 16% -%
RS-1S
South Kerrisdale 41% 26% 2%
RS-1
When compared to the Phase I survey results, the Phase II results
indicate more ambivalence towards a zoning change (i.e., 90% support in
Phase I versus roughly 66% support in Phase II). However, this could be
expected, given that the Phase I survey was mailed back, and the
respondents were self-selected.
Nonetheless, the Phase II surveys indicated that all areas have
approximately 65-69% support for a zoning change to deal with concerns
about the design of new houses and landscaping. Of those in favour of a
zoning change, most preferred RS-5/RS-5S zoning. Staff, therefore,
recommend referral to Public Hearing of RS-5S zoning for North
Kerrisdale RS-1S, and RS-5 zoning for North Kerrisdale RS-1 and South
Kerrisdale RS-1.
3. Impact on Property Values
The Manager of Real Estate Services advises that under current market
conditions, there should be no significant impact on property values in
the short term if the RS-5 or RS-5S zoning is adopted.
ENVIRONMENTAL IMPLICATIONS
The RS-5/RS-5S zoning encourages site landscape planting which will
positively affect the city's micro-climate and air quality. The
RS-5/RS-5S zoning also regulates the maximum site coverage by
impermeable materials which would also have positive effects on
micro-climate, and reduce runoff thereby decreasing flooding potential
and reducing combined sewer overflows. Each of the zones provide some
moderate incentive for renovating existing houses which could result in
lessening the burden on landfill sites from the demolition of existing
houses on sites where new houses are proposed.
SOCIAL IMPLICATIONS
The Children's Policy and the Statement of Children's Entitlements are
not applicable to this amendment.
PERSONNEL IMPLICATIONS
RS-5/RS-5S zoning is more complex than RS-1 zoning. Processing of
applications will generally involve extra staff time for checking
applications, meetings with applicants, meetings with staff (e.g.,
landscaping and engineering), telephone enquiries, file searches,
correspondence, site visits, and providing information to residents and
prospective applicants. Compared to RS-1/RS-1S applications, RS-5/RS-5S
applications will affect staff in the following areas:
Development Planners or Planning Facilitators (12 to 16 hours per
application);
Plan Checking Technicians (20 to 25 hours per application--bulk of
research, correspondence, and neighbourhood applicant and staff
liaison duties are handled by this position);
Development Information Officers (additional 2 to 3 hours per
application);
Landscaping Technicians (additional 0.5 hour per application);
Building Inspectors (additional 2 hours per application); and
Property Use Inspectors (additional 0.5 to 1.0 hours per
application).
Since October of 1996, Council has rezoned West Kerrisdale and MacKenzie
Heights to RS-5 and made one- and two-family dwellings conditional in
some RT-4 and RT-5 areas. RS-5/RS-5S and RS-6 zoning in West Point Grey,
Dunbar, Douglas Park and West Southlands has been referred to Public
Hearing (scheduled for May 29, 1997). With referral to Public Hearing of
RS-5/RS-5S zoning for North Kerrisdale RS-1 and RS-1S and South
Kerrisdale RS-1, a potential of roughly 185 person-weeks could be added
to staff s workload.
The implications of the increase in staff workload for Planning has been
discussed in a memorandum which will come before Council from the
Director of Land Use and Development. The memorandum concludes that
given space constraints in accommodating additional staff and a
declining number of development applications, staff will monitor
development activity in the forthcoming months and review staffing
levels when additional neighbourhoods are brought forward for possible
rezoning.
The City Building Inspector and the Manager of Property Use Inspection
Branch note that the additional workload for building inspectors and
property use inspectors will be accommodated with existing staff,
although future area rezonings will likely bring about a request for
additional staff in order to maintain current levels of service. There
may also be some additional workload placed on property use inspectors
because of post-occupancy complaints, particularly with respect to the impermeability regulations and site landscaping guidelines associated
with the RS-5/RS-5S and RS-6 zoning. Staff will be monitoring the
situation through the course of this year and will report back to
Council should additional staff be required.
CONCLUSION
This report recommends referral to Public Hearing of RS-5S zoning for
North Kerrisdale RS-1S, and RS-5 zoning for North Kerrisdale RS-1 and
South Kerrisdale RS-1.
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