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

        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;

             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.


        The General Manager of Community Services RECOMMENDS approval of A
        and B.


   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


   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)


   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.


   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% 
   (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

   (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%
    North Kerrisdale           32%           65%            3%

    South Kerrisdale           29%           69%            3%

    Question 2: Which     a) RS-5/       b) RS-6/     c) Undecided
    zoning option do you     RS-5S          RS-6S
    North Kerrisdale           43%           21%            2%

    North Kerrisdale           48%           16%            -%

    South Kerrisdale           41%           26%            2%

   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.


   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.


   The Children's Policy and the Statement of Children's Entitlements are
   not applicable to this amendment.

   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
       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
       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

   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

   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.


   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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