POLICY REPORT
DEVELOPMENT AND BUILDING
Date: June 3, 1997
Dept. File No. 94064 MN/JB
CC File: 5303-1
TO: Vancouver City Council
FROM: Director of Central Area Planning
SUBJECT: Revised Rezoning Application for 1005 Beach Avenue
RECOMMENDATION
THAT the application by James K.M. Cheng Architects Inc. to rezone
1005 Beach Avenue (Lot B, Block 14, D.L. 185, Plan 12302) from
RM-5A Multiple Dwelling District to CD-1 Comprehensive Development
District be referred to a Public Hearing, together with:
(i) draft by-law provisions generally as contained in Appendix A;
and
(ii) the recommendation of the Director of Central Area Planning to
approve the application, subject to conditions contained in
Appendix B.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-law for consideration at the Public
Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
- On July 29, 1993, Council approved, in principle, that a total of 2
656.9 m2 (28,600 sq. ft.) of residential tower floor area be added
to the maximum potential development achievable through rezoning of
one or more City-owned sites in Granville Slopes, including 1005
Beach Avenue, with the maximum density on the 1005 Beach Avenue
site not to exceed 2.75 FSR;
- On February 14, 1995, Council advised Real Estate staff to submit a
rezoning application for 1005 Beach Avenue at a density not to
exceed 2.90 FSR.
- On January 19, 1996, Council deferred consideration of this
rezoning application until the completion of the Downtown
Bridgeheads Study.
Other Council-adopted policies and guidelines are also relevant:
- Central Area Plan, adopted December 3, 1991;
- Community Amenity Contributions Policy, adopted July 10, 1990,
confirmed March 7, 1991;
- Public Art Policies and Guidelines, adopted June 23, 1994 and
November 22, 1994;
- The Greenways Plan, adopted July 18 ,1995;
- Downtown Bridgeheads Study objectives and policies, adopted April
10, 1997.
PURPOSE AND SUMMARY
This report assesses a rezoning application to permit an up to 28-storey
multiple dwelling by increasing the maximum permitted density from 2.20
floor space ratio (FSR) to 2.90 FSR, and increasing the maximum
permitted height from 58.0 m (190.3 ft.) to 82.3 m (270 ft.).
This application was previously reported to Council on January 19, 1996,
at which time Council deferred a decision until completion of the
Downtown Bridgeheads Study. Both the application and the report have
been revised in response to the Study's conclusions.
The City owns the subject site. Should the CD-1 rezoning be approved,
the site would be offered for sale, allowing a private developer to
proceed with a detailed development proposal. The primary public
benefit to this rezoning is that the value of the additional density
approved through rezoning would be used to offset the cost of the
recently developed neighbourhood park located nearby in Granville
Slopes. This is appropriate as the future residents of the site would
use the park and most developments surrounding the park have contributed
to the park costs.
The existing day care facility on the site would be relocated to an
appropriate site in the West End. Arrangements for the relocation would
be made prior to enactment of the rezoning.
The rezoning proposal does not include a specific form of development.
Rather, it proposes a building envelope and siting provisions that give
a prospective developer some flexibility in designing a building, while
providing appropriate guidance so that the building would achieve a good
fit with the surrounding area. These provisions would be incorporated
in the draft CD-1 By-law. Council would have an opportunity to review
the form of development at the development application stage, as the
form of development must first be approved by Council prior to the
issuance of a development permit.
The essential issues, discussed in the body of this report, pertain to
whether or not the additional density and height are supportable over
the density and height that could be approved under RM-5A or other West
End residential zoning schedules, and whether the draft CD-1 provisions
meet the Council-endorsed Bridgeheads Study policies for development
adjacent the Burrard Bridge.
Staff have reviewed the view and shadowing analyses submitted by the
applicant and the proposed building envelope with regard to the Downtown
Bridgeheads Study objectives. Staff believe impacts resulting from the
additional density and height are offset by the significant public
benefit of resolving the park funding issue. Since the initial rezoning
application, the tower location has been moved to the west, away from
the Burrard Bridge, lessening impacts on public views from the
bridgehead. Also, the additional height would permit a more slender
tower with less private view impacts for the neighbouring properties.
Staff note that local residents are concerned about the loss of private
views, and about the crowding and traffic impacts of adding more housing
and population to this area. These views were expressed at a public
information meeting held on May 29, 1997.
In conclusion, staff recommend approval of the rezoning as revised,
subject to the conditions of rezoning approval noted in Appendix B.
DISCUSSION
Background: When the application was reported to Council on March 12,
1996 for referral to Public Hearing, Council resolved:
"THAT the Policy Report dated January 19, 1996, on the proposed
rezoning of 1005 Beach Avenue, be deferred pending completion of a
study concerning potential developments in the immediate vicinity
of bridgeheads in the city and report back by staff."
The Downtown Bridgeheads Study was undertaken by Urban Forum Associates
during the Fall of 1996, with the following objectives:
- to protect key public views from the bridges;
- to respect and enhance the experience of crossing the bridges;
- to encourage, where possible, improved pedestrian connections; and
- to reconcile public objectives with adjacent private development
rights and expectations.
Policy directions for the siting and form of buildings adjacent to the
downtown bridges were approved by Council on April 10, 1997. This
revised rezoning application has been submitted to reflect the policy
directions approved by Council. The Downtown Bridgeheads Study
consultant's recommendations for 1005 Beach Avenue are in Appendix F.
Staff conclusions, adopted by Council, are in Appendix G.
Building Form and Siting: The current RM-5A zoning permits a multiple
dwelling at a maximum of 2.20 FSR, with 50% site coverage, a maximum
height of 18.3 m (60 ft.), and minimal yard setbacks (refer to
Appendix I). The RM-5A zoning also conditionally permits a height of
58 m (190 ft.). For this site, the RM-5A guidelines would not support a
height above the outright height of 18.3 m (60 ft.). However, the
guidelines are relaxable and, if conditions warrant, the Director of
Planning or Development Permit Board may consider a high-rise form after
evaluating a variety of factors, including the effects on public and
private views, sunshine, privacy and open space, and concerns of
surrounding residents.
The objectives and policies of the Downtown Bridgeheads Study require
that buildings rising above the level of a bridge deck be set back a
minimum distance of 30.0 m (100 ft.) from the edge of bridge. To meet
this new setback policy, the tower in the revised application has been
relocated approximately 10.0 m (33 ft.) further to the west than
originally proposed. As a result, the side yard setback from the west
property line has been reduced from 27.1 m (90 ft.) to 15.6 m (51 ft.).
Although this distance has been decreased, the benefit of moving the
tower to the west has been to open public views of English Bay from the
bridge deck. The resulting spacing between the proposed tower and the
existing Martello Tower (1011 Beach Avenue) is reduced from 37.8 m
(124 ft.) in the original application to 30.0 m (100 ft.). While this
tower location results in more private view loss for neighbouring
properties than that presented in the previous application, the spacing
is still wider than the 24.4 m (80 ft.) minimum distance generally
specified between residential towers in the Downtown District. It also
results in less private view loss than with a low-rise slab form of
development on this site.
Also consistent with the Downtown Bridgeheads Study policies, limited
intrusions into the east setback area have been proposed in the revised
application to provide articulation to the building facade, to reduce
the sense of scale of the building from the bridge and to contribute to
a more efficient floorplate. Staff support intrusions of 1.5 m (5 ft.)
along one third, and 3.0 m (10 ft.) along another third, of the
building's east facade. The intrusions would be angled out from the
corners of the building so as to not create any additional view loss
from the bridgehead or from south facing units at 1040 Pacific Street
(see Appendix A).
The maximum net floorplate area has been marginally increased in the
revised application from 511 m2 (5,500 sq. ft.) to 520 m2
(5,600 sq. ft.). These floorplate and setback provisions provide
flexibility in the design of a building within the proposed envelope to
meet market objectives for efficient floor layouts while assuring that
view and shadowing impacts are minimized.
Staff analysis concluded that a high-rise tower, set forward on the
site, in line with the Martello Tower, with the required distance from
the Burrard Bridge, provides the best building form and siting for this
unique site. This analysis is outlined in Appendix C.
Density: The proposed CD-1 zoning, at 2.90 FSR, would permit
approximately 2 654 m2 (28,000 sq. ft.) more floor area on this site
than the maximum 2.20 FSR permitted under RM-5A, or five more floors in
an equivalent tower with a net floorplate of 520 m2 (5,600 sq. ft.).
This is the extra amount of floor area needed to be achieved through the
rezoning of one or more City-owned properties to offset the funding
shortfall for the new Granville Slopes neighbourhood park.
Staff carried out further analysis to determine if there is sufficient
rationale to warrant the proposed 2.90 FSR. Several factors were
considered:
- The site is uniquely located at the southeast corner of the RM-5A
zoning district, right next to the Burrard Bridge. (see schematic
in Appendix E)
- Prior to 1989, densities as high as 3.35 FSR were approved in
residential parts of the West End. The subject site is located to
the immediate east of the Martello Tower built at 3.35 FSR.
Further to the west, along Beach Avenue, are more buildings that
were approved at higher densities, creating a common high-rise
tower built form context along this street.
- To the east of the site is the Granville Slopes neighbourhood where
densities range from 3.00 to 6.00 FSR.
- Within the block to the north there are two CD-1 tower
developments. A tower at 1020 Harwood Street is about 6.00 FSR and
another, under construction at 1003 Pacific Street, is at 6.50 FSR.
- The Urban Design Panel recommended the proposed density be
increased to between 3.00 and 3.10 FSR, given the site s highrise
built form context.
On the basis of the existing and permitted building densities
surrounding the site, staff conclude the proposed density of 2.90 FSR is
generally supportable.
Height: The revised application proposes a maximum height of 82.3 m (270
ft.), increased from the originally proposed 68.6 m (225 ft.). RM-5A and
other West End residential district schedules permit an outright maximum
height of 18.3 m (60 ft.) and a conditional maximum height of 58.0 m
(190.3 ft.). The revised proposed maximum height would permit a
building that could be 24.3 m (79.7 ft.) higher than in RM-5A.
Height is also a function of the amount of density proposed and the size
of the building's floorplate. Based on a net floorplate of 520 m2
(5,600 sq. ft.), and by varying the densities, the applicant indicates
the following heights would result:
- RM-5A zoning @ 2.20 FSR- 18 storeys or 50.3 m (165.0 ft.)
- RM-5B zoning @ 2.75 FSR- 21 storeys or 57.9 m (190.0 ft.)
(highest FSR currently permitted in the West End)
- CD-1 zoning @ 2.90 FSR- 23 storeys or 63.2 m (207 ft.)
(illustrated by Scheme A of the revised application)
A maximum building height of 82.3 m (270 ft.) is proposed which would
permit the design of a narrower tower with a smaller floorplate. For
example, Scheme B of the revised application illustrates a 28-storey
tower, 76.4 m (251 ft.) high, with a net floorplate size of 427 m2
(4,600 sq. ft.)(see Appendix E).
There are several factors that lend support for a 28-storey development
at 2.90 FSR on the site:
- Prior to 1989, residential towers as high as 91.4 m (300 ft.) were
permitted in the West End. For example, the adjacent 31-storey
Martello Tower is 90.8 m (298 ft.) high, 8.5 m (28 ft.) higher than
a potential 28-storey building.
- CD-1 By-laws for nearby sites to the east at 888 and 901 Beach
Avenue permit similarly high towers, at 88.3 m (290 ft.) and 68.6 m
(225 ft.) respectively.
- Given the existing and permitted towers in the immediate vicinity
of the Burrard Bridge, a building next to the bridgehead needs to
be comparable in height to neighbouring towers on the east side of
the bridge to provide the stature and presence to successfully act
as a "gateway" built form.
- The site is not affected by any Council-adopted view cones.
Staff considered view and shadow impacts resulting from the originally
proposed height. At that time, the applicant provided view and shadow
analyses based on towers at 2.20, 2.75 and 2.90 FSR. Staff noted that:
- Resident views from adjacent low-rise buildings and lower floors of
high-rise towers would not be more affected by additional height.
- Residents in the upper floors of Martello Tower and other towers on
Burrard Street, or to the east of the Burrard Bridge would
experience some partial view loss. The amount of loss is related
to how far the affected building is away from the site, and the
extent to which the site is developed beyond 18 storeys and 2.20
FSR.
- Some residents in the Martello Tower would experience some morning
shadow from a high-rise tower form at all three densities examined.
- At the equinox, some residents in the seven-storey development at
1040 Pacific Street, to the north, would experience a mid-day
shadow moving across the rear of the building during a two-hour
period from a tower at 2.90 FSR, a shadow just touching the
building from a tower at 2.75 FSR, and no shadow from a tower at
2.20 FSR.
The applicant has further provided view and shadow analyses for the
revised application. Two schemes were submitted, one illustrating the
maximum tower height and another, the maximum tower width, within the
proposed building envelope. Staff note that:
- Additional height above the originally proposed 68.6 m (225 ft.)
would have no impact on views from the bridge deck or from
neighbouring properties, except for some additional private view
loss from the uppermost floors of the Martello Tower, and from the
higher floors of the two tower developments to the north. - Additional building height would not change the shadow impacts to
1040 Pacific Street, but the morning shadow on the Martello Tower
would extend further up the building.
- Shadow and view impacts would be somewhat lessened by the creation
of a more slender tower permitted by the increased height.
While there is some partial view loss and overshadowing resulting from
an increase in height by raising the density from 2.20 to 2.90 FSR,
staff consider the application is supportable due to the site s
prevailing high-rise tower context and the significant public benefit of
offsetting the public cost of the recently developed neighbourhood park
two blocks to the east. This proposal is similar to other CD-1
rezonings in which the provision of a significant public benefit forms
part of the rationale for approval.
Pedestrian Connection: On the adjacent City-owned lot to the east
(Lot C), there is an existing 2 m (6 ft.) wide pedestrian connection
along the west side of the Burrard Bridge, linking stairs on the
bridgehead to Beach Avenue. Improvement of this connection would meet
the objectives of both the Downtown Bridgeheads Study and the Greenways
Plan.
The Downtown Bridgeheads Study policies call for improved pedestrian
connections between the upper levels of the bridge decks to the lower
levels under the bridges. Improved connections between the north end of
the Burrard Bridge and the shoreline of False Creek is also supported by
the Greenways Plan. Such a connection would link the "City Centre
Circuit" route on Burrard Street with the "Seaside" route on False
Creek.
An existing 3.0 m (10 ft.) right-of-way across the east side of the
subject property (Lot B) is held for the purposes of bridge maintenance.
Staff recommend that this right-of-way be consolidated with the
easterly, City-owned Lot C. Hence it would become available for an
improved Greenway pedestrian connection. Staff also recommend that the
treatment and landscaping of the east side of the subject property be
appropriately designed to be safe and attractive for the public pathway.
CONCLUSION
Planning staff support the proposed rezoning of 1005 Beach Avenue from
RM-5A to CD-1 to accommodate a high-rise multiple dwelling at 2.90 FSR,
and recommend that the application be referred to a Public Hearing with
a recommendation from the Director of Central Area Planning that it be
approved, subject to draft CD-1 By-law provisions generally as shown in
Appendix A, and to proposed conditions of approval as presented in
Appendix B.
* * * * *
APPENDIX A
OUTLINE OF DRAFT CD-1 BY-LAW PROVISIONS
1005 Beach Avenue
Uses: Multiple Dwelling; and
Accessory Uses customarily ancillary to the above use.
Density: Maximum FSR of 2.90
Maximum Tower
Floorplate: 520.0 m2 (5,600 sq. ft.) net
Maximum Tower
Height: 82.3 m (270 ft.)
Maximum Height
Floor-to-floor
per Residential
Floor: 3.0 m (10 ft.)
Setbacks: Front Yard - 7.6 m (25 ft.)
Rear Yard - 24.4 m (80 ft.)
Side Yard - westerly - 15.6 m (51 ft.)
- easterly - 23.7 m (78 ft.), with
intrusions into the setback area of up to
1.5 m (5 ft.) over one third of the west
facade and 3.0 m (10 ft.) over another
third (intrusions must not block a
45 degree sight line from the bridge deck
to the southeast corner of the building)
(See Diagram 1)
Parking: As per RM-5A standard cited in the Parking By-law
Loading: Minimum of one loading space
Acoustics: As per RM-5A acoustical standards
DIAGRAM 1: SITING PLAN
APPENDIX B
PROPOSED CONDITIONS OF APPROVAL
(a) THAT, prior to enactment of the CD-1 By-law, the registered owner
shall, at no cost to the City:
(i) make suitable arrangements, to the satisfaction of the Social
Planning Department, for the relocation of the existing day
care spaces to an appropriate site in the West End;
(ii) execute an agreement, to the satisfaction of the Director of
Legal Services, to not discriminate against families with
children in the sale of residential units; and
(iii) make suitable arrangements to the satisfaction of the
General Manager of Engineering Services for the
conveyance and thence consolidation of the easterly 3.00
metres of Lot B, Plan 12302 with the abutting Lot C,
Block 14, District Lot 185, Plan 12302.
Note to applicant: The applicant is advised to consider the
registration of an option to purchase over the subject area
for future conveyance and consolidation as an alternative to
conveyance at this time. The applicant should consult with the
City Surveyor and the Director of Legal Services in regards to
the structure of any such option to purchase.
(b) THAT, prior to approval by Council of a form of development, an
applicant shall obtain approval of a development application by the
Director of Planning or the Development Permit Board, who shall
have particular regard to the following:
(i) make suitable arrangements, to the satisfaction of the General
Manager of Engineering Services, for any new electrical and
telephone services to be undergrounded within and adjacent to
the site from the closest, existing suitable service point;
(ii) make suitable arrangements, to the satisfaction of the Fire
Protection Engineer, for the provision of a standard City fire
hydrant within 45 m of the site and west of the Burrard
Bridge;
(iii) make suitable arrangements, to the satisfaction of the
General Manager of Engineering Services, for the future
provision of garbage and recycling facilities in the
proposed development;
(iv) make suitable arrangements, to the satisfaction of the General
Manager of Engineering Services, for the provision of parking
and bicycle parking as per the RM-5A standards of the
Vancouver Parking By-Law, and for the provision of one
standard loading bay;
(v) make suitable arrangements, to the satisfaction of the
Director of Planning, to ensure that the design development
takes into consideration the principles of CPTED having
particular regard to reducing opportunities for: break and
enter to ground level units; theft in the underground; and,
ensuring visibility and surveillance by residents of areas
under the bridge and walkway from the bridge;
(vi) that an Acoustical Consultant s Report be completed, to the
satisfaction of the Health Department, which assesses noise
impacts on the site and recommends noise mitigating measures;
and
(vii) that an Arborist Report be completed that: outlines the
type and condition of the existing trees on the site;
recommends those trees for retention in thecontext of the
proposed plan; stipulates the requirements to protect
these trees during construction and any ongoing
maintenance program.
Note to applicant: Every effort should be made to retain
significant healthy trees, especially along the property line,
with slight adjustments to the parking structure if necessary.
APPENDIX C
SITE, SURROUNDING DEVELOPMENT, PROPOSED DEVELOPMENT
AND NON-MAJOR ELEMENTS
SITE
This 0.4 ha (0.9 ac.) irregularly shaped site comprises a single parcel
located on the north side of Beach Avenue immediately west of the
Burrard Bridge. The site slopes down about 7.8 m (25.6 ft.) from north
to south, with a steep berm adjacent to Beach Avenue. Some mature trees
and shrubs exist within and around the edges of the site. North of the
site, secondary access is available from the existing lane.
The site currently accommodates two temporary, one-storey, child day
care buildings which the City leases to the YMCA on a monthly basis.
Arrangements are underway to relocate the child day care spaces.
SURROUNDING DEVELOPMENT
The site is located at the southeast corner of an RM-5A Multiple
Dwelling District. Immediately to the west is a 31-storey residential
rental building (Martello Tower). Further to the west are similar
high-rise point towers characterized with large entrance ways and ground
level open spaces to maximize views to the water from apartment units.
To the south, across Beach Avenue, is the Vancouver Aquatic Centre,
behind which is a paved seawall walkway providing linkages to Science
World and Stanley Park. A passenger ferry dock is also located there,
providing access to points on the south shore of False Creek. To the
north, across the lane, are two, seven-storey, multiple dwellings.
Immediately to the east is a City-owned parcel used for parking, which
includes a public footpath between Pacific Street and Beach Avenue.
Maintenance access to the Burrard Bridge is provided in this parcel and
on a 3.0 m (10 ft.) right-of-way across the east edge of the development
site. To the east of the bridge is the Granville Slopes neighbourhood,
which has been undergoing redevelopment with various forms of higher
density buildings, including high-rise towers.
PROPOSED DEVELOPMENT
CD-1 rezonings typically propose a specific form of development for a
given site. However, because the City intends to market the site, a
specific form of development is not being proposed at this time.
Rather, the applicant has proposed a maximum building envelope as
reflected in the draft CD-1 By-law (Appendix A). This envelope includes
maximum height, required setbacks, maximum density and tower floorplate
area.
The applicant has undertaken several massing and built form options at
varying densities to determine the optimum building envelope parameters
for this site, resulting in the proposed envelope that would permit a
point tower at 2.90 FSR. The proposed building envelope safeguards the
building's locational aspects while enabling a prospective purchaser to
custom design a slim, sculpted tower which takes advantage of water
views, while maintaining partial views of the water for residents of
buildings to the north of the site. The building would also provide a
significant focal point for arrival on the downtown peninsula, given
that the site is adjacent to the head of the Burrard Bridge.
Since completion of the Downtown Bridgeheads Study, the applicant has
revised the proposed building envelope to meet the objectives and
policies adopted by Council.
If the rezoning is approved, a specific tower design would be negotiated
and established through the development permit process. Processing of
this development application would be subject to the normal design
review and public processes, and the form of development would need
Council approval.
NON-MAJOR ELEMENTS
Use: Staff support the proposed multiple dwelling use which is in
accordance with the goals and objectives of the Central Area Plan to
provide additional housing opportunities in close proximity to shopping,
public transit and community facilities.
Building Form and Siting: There is no specific form of development for
this CD-1 rezoning. However, the proposed building envelope, adjusted
from that originally proposed following input from the Downtown
Bridgeheads Study and discussions with the public, the Urban Design
Panel and staff, specifies maximum density, height and minimum setbacks.
The resulting building envelope permits a point tower to be built,
optimally located on the site, with priority given to preserving public
views from the Burrard Bridge.
Some view loss and shadowing is anticipated with this or virtually any
development of the site. However, staff conclude that a slim, carefully
located tower would result in less view loss and shadowing than a low
and wide building that could be built under the current outright RM-5A
zoning.
The proposed building envelope and siting is therefore supported for the
following reasons:
- The proposed tower form would present a slender profile to the
street, which would achieve a more compatible fit with neighbouring
properties along Beach Avenue than if the site was developed with a
wide, low-rise form under the existing RM-5A zoning.
- Viewed from Vanier Park and the water, the proposed tower would fit
with the predominant built-form character along Beach Avenue, both
east and west of the Burrard Bridge.
- The maximum floorplate is relatively small, being equal to or
smaller than recent projects in the Concord Pacific development and
comparable to those in the Granville Slopes neighbourhood.
- The low site coverage of about 13.7%, compared to the 50%
achievable under the RM-5A zoning, results in substantial open
space which can be visually shared by residents of adjacent
buildings.
- The setbacks proposed are acceptable and include a westerly setback
of 15.6 m (51 ft.), and a rear setback of 24.4 m (80 ft.) that
maintains a distance of about 40.5 m (133 ft.) from the building at
1040 Pacific Street.
- The front yard setback is similar to that of the Martello Tower and
other towers along Beach Avenue to the west.
- The Urban Design Panel preferred a tall, slim tower with a small
floorplate in this location.
- Tower separation of about 30.0 m (100 ft.) is maintained between
the proposed building and the Martello Tower immediately to the
west. While this separation distance is less than proposed in the
original application and results in greater loss of private views,
it is still greater than the more typical minimum 24.4 m (80 ft.)
separation specified between high-rise residential towers.
- The proposed tower would maintain partial westerly views from the
Burrard Bridge deck as prescribed by the Bridgeheads Study
policies, which require that structures rising above the bridge
deck be set back 30.0 m (100 ft.) from the bridge. A six- to
seven-storey building built under RM-5A zoning would also be
constrained by these policies. The high-rise building form is much
more amenable to allowing the full density of 2.90 FSR to be
achieved on the site.
- The proposed tower would complement the important role and stature
of Burrard Street in the downtown peninsula, reflected by several
substantial existing or permitted residential towers on the west
side of Burrard Street between Davie Street and Pacific Street, and continued further north with development such as the Wall Centre.
- The proposed tower would act as a gateway both to and from the
downtown. Viewed from the south, it would emphasise the beginning
of the high-rise form noted above. Viewed from the north, it would
identify the culmination of leaving the downtown peninsula and
gaining access to the bridge. As well, the tower would provide a
built form pivot between the bridge axis and the Burrard Street
axis.
Parking and Loading: The proposed development would provide parking,
loading and bicycle spaces in accordance with the Vancouver Parking
By-law standards. The building form would include two levels of
underground parking.
Landscape Resources: The proposed development would be required to
provide landscaping, trees and plant material around the perimeter of
the site to provide both a noise and a privacy barrier for the
residents. The landscaping should also provide a safe and attractive
adjacency for the public pedestrian pathway to the east of the site.
There are several significant trees on the site which the developer
would be encouraged to retain. An arborist report would be a requirement
of a development application.
Day Care Facility Relocation: Arrangements are underway to ensure that
the existing child day care spaces presently on the site are relocated.
Satisfactory arrangements for the relocation is a recommended condition
to be met prior to enactment of the CD-1 By-law.
PUBLIC CONTRIBUTIONS
Community Amenity Contribution (CAC): Community amenity contributions
are required for privately initiated, site-specific residential
rezonings in the Central Area. The purpose is to provide funds for
additional community amenities, such as parks, social housing and
community centres, needed as a result of increased population in a
neighbourhood
A CAC is not required of this rezoning because a similar contribution
toward a community amenity is already being achieved. The value of the
extra density proposed for the site would permit the City to offset the
cost of a nearby park recently built in Granville Slopes.
Public Art Contribution: A public art contribution is not required for
this CD-1 rezoning proposal because the total floor area proposed is
less than the required minimum floor area of 15 000 m2 (161,463 sq. ft.)
subject to such a contribution.
APPENDIX D
COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANT
NOTIFICATION
Sign erected on site: February 27, 1995
Sign amended: June 5, 1997
1,140 initial notification letters mailed: January 6, 1995
1,115 notification letters of revised
application mailed: May 22, 1997
PUBLIC COMMENTS
During the processing of the initial application in early 1995, staff
received about 13 telephone enquiries and two letters, all in opposition
to the rezoning proposal. The main concerns expressed include private
view loss, loss of sunlight, whether an additional tower is needed in
the West End, a possible decrease in property values and the loss of a
child day care facility.
On March 13, 1995, also during the previous application process, the
applicant held a public information meeting at the False Creek Yacht
Club, to which about 25 persons attended. Some of the above concerns
were expressed, however most people who attended the meeting indicated
general support for the proposed rezoning. The originally proposed
location for the tower had addressed loss of view concerns of the
neighbouring residents after many options had been studied by the
applicant.
During the processing of the revised application in May 1997, staff
received two telephone enquiries and one letter, all in opposition to
the rezoning proposal. The concerns expressed were loss of private views
from neighbouring properties and a sense that there was already enough
condominium units in the area.
On May 29, 1997, the applicant held public information meeting for the
revised application at the Vancouver Aquatic Centre, to which about 18
persons attended. The main concerns expressed include private view loss,
loss of sunlight, whether an additional tower is needed in this area,
and a possible decrease in property values. Local residents stated that
traffic congestion on Beach Avenue and noise, especially from the
Burrard Bridge, made them question whether a building should be built in
this location. A number of people suggested alternate uses for the site
including parkland, expanded day care facilities and co-op housing.
Opponents to the rezoning expressed a preference for a greatly reduced
density and scale of development, to even less than that which the
current zoning permits. No one suggested that the density be reduced
marginally to 2.20 or 2.75 FSR. Those who spoke of density said that the
neighbourhood already carried too much density.
When asked about a preference for a low- or high-rise building form,
opinions varied depending on whether the form blocked low- or high-rise
views from private residences. Although residents of 1040 Pacific Street
were not pleased that the proposed tower location had been relocated
further to the west, they recognized that an alternative low-rise slab
form of development on the site would result in more severe view loss
from their building.
Some of the neighbours asked what amenity would be achieved through
development of the site. They requested that existing trees on the site
be preserved and that their overlook of the property be toward an
attractively landscaped site.
REVIEWING AGENCY COMMENTS
Department of Permits and Licenses: The Environmental Protection Branch
advises that an assessment for soil contamination is not required.
Health Department: The Health Department has reviewed this rezoning
application and provides the following comments:
"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."
*[Note: The report would be submitted at the development application
stage.]
Engineering Services: "Engineering Services has no objections to the
proposed rezoning provided the following issues are addressed either
prior-to By-law enactment or prior-to issuance of a Development Permit,
as required by the Director of Land Use and Development:
1. Bicycle parking is to be provided as per the Vancouver Parking
By-Law.
2. Parking is to be provided as per the RM-5A standards of the
Vancouver Parking By-Law.
3. A standard loading bay is to be provided.
4. Arrangements are to be made to the satisfaction of the General
Manager of Engineering Services and the Director of Legal Services
for the provision of a greenways corridor adjacent the Burrard
St. Bridge.
5. All electrical and telephone services are to be undergrounded from
the closest existing suitable service point."
Police Department: The Police Department has reviewed this rezoning
application and offers the following comments:
"Entrances/Exits: The door between the parkade and the lower lobby
should be secured to get into the parkade.
Stairwells: Exit stairs from underground parking require further
design development to increase surveillance from the
tower. Grade change may aid in increasing
natural/informal surveillance opportunities by simply
rotating the stairwell around. This serves to make the
area more observable, but also places an additional
access point closer to the main structure thus allowing a
greater opportunity to create a sense of territoriality
versus exiting to a large piece of asphalt/concrete.
Stairwell on exterior wall in upper/lobby appears
opposite. Is there glazing on the exterior wall side to
permit natural light and surveillance into the area?
Parking Area/
Refuse/Storage: Sightlines into bike storage area from lower lobby
and parkade."
[Note: These elements would be considered at the development
application stage.]
Fire and Rescue Services: Fire and Rescue Services has reviewed this
rezoning application and offers the following comments:
"1. The building is remote (approximately 90 m) from existing Fire
Hydrants in the area. The closest hydrant is also to the east of the
Burrard Bridge overhead. Standard City hydrant layouts for downtown
provide a mid-block hydrant for blocks of this length. Vancouver Fire &
Rescue Services requires a hydrant within 45 m of the proposed
development, west of Burrard Bridge.
2. Building siting is acceptable in principle for Re-zoning."
URBAN DESIGN PANEL
On May 21, 1997, the Urban Design Panel reviewed the revised rezoning
application and offered the following comments:
"The Panel supported this rezoning application and generally saw no
problem with the envelope proposed, given a specific development
proposal would come to the Panel for review at a later date.
Support was offered for the proposed height and density.
The Panel unanimously supported the taller, slimmer option within
the envelope presented, noting it has the least impact in terms of
views and shadowing. Some Panel members were concerned that such a
tightly defined envelope might prevent a creative solution, and
urged for flexibility while preserving the objective of achieving
the slender tower form. There was some support offered for firmly
establishing the east-west tower dimension of the taller envelope
while leaving some flexibility in the north-south direction.
It was stressed that the public views from the Burrard Street bridge are
more important than private views. One Panel member was especially
concerned that the character of the proposal in no way reflects its
location next to the bridge. There was some disappointment expressed
that this proposal fails to follow through on the promise of the
Downtown Bridgeheads Study. With respect to the general site plan
itself, it was felt this building could be anywhere. There were serious
concerns that the City is missing the opportunity to integrate
pedestrian and bicycle circulation around the base and on both sides of
the Burrard Bridge. The City was urged to improve this whole area as
part of a master plan to develop the needed linkages. Completion of the
planning of Granville Slopes is long overdue."
APPLICANT'S COMMENTS
The applicant reviewed a copy of this report and provides the following
comments:
"James K.M. Cheng Architects, Inc. concur with the contents of this
report."
APPENDIX E
SCHEMATIC OF SITE CONTEXT
DIAGRAM HERE
Scheme A 520 m2 (5,600 sq. ft.) floorplate
DIAGRAM HERE
Scheme B 427 m2 (4,600 sq. ft.) floorplate
BRIDGEHEADS STUDY APPENDIX F
CONSULTANT RECOMMENDATIONS
DOWNTOWN BRIDGEHEADS STUDY City of Vancouver
BRIDGEHEADS STUDY POLICIES APPENDIX G
(Adopted by Council April 24, 1997) Page 1 of 1
View/Shadow Analysis APPENDIX H
SCHEME A
SCHEME B
8 PAGES OF DIAGRAMS/PICTURES HERE
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 1005 Beach Avenue
Legal Description Lot B, Block 14, D.L. 185, Plan
12302
Applicant James K.M. Cheng Architects Inc.
Property Owner City of Vancouver
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 3 791.5 m2 N/A 3 791.5 m2
(40,812.7 sq. (40,812.7
ft.) sq.ft.)
DEVELOPMENT STATISTICS
RECOMMEN
DEVELOPMENT PERMITTED DED
UNDER EXISTING ZONING PROPOSED DEVELOPM
DEVELOPMENT ENT (if
differen
t than
proposed
)
ZONING RM-5A CD-1
USES Cultural & Multiple
Recreational Uses Dwelling
Dwelling Uses Accessory Uses
Institutional Uses
Office Uses
Retail Uses
Service Uses
Utility &
Communication Uses
Accessory Uses MAX. FLOOR 2.2 2.9
SPACE RATIO
GROSS FLOOR 8 341.3 m2 10 995.4 m2
AREA (89,787.9 sq.ft.) (118,357.4
sq.ft.)
MAX. SITE 50% 13.7%
COVERAGE
MAXIMUM HEIGHT 58.0 m (190 ft.) 82.3 m (270
ft.)
MAX. NO. OF N/A 28
STOREYS
FRONT YARD 3.7 m (12.1 ft.) 7.6 m (25 ft.)
SETBACK
SIDE YARD 2.1 m (6.9 ft.) Westerly -
SETBACK 15.6 m
(51 ft.)
Easterly -
23.7 m
(78 ft.)
REAR YARD 2.1 m (6.9 ft.) 24.4 m (80
SETBACK ft.)