CD-1 Text Amendment - 6475 Elliott Street

POLICY REPORT
DEVELOPMENT AND BUILDING

Date: July 15, 1997
Dept. File No. 96040-PEM
CC File: 2604

TO: Vancouver City Council

FROM: Director of Central Area Planning on behalf of the Director of
Land Use and Development

SUBJECT: CD-1 Text Amendment - 6475 Elliott Street

RECOMMENDATION

THAT the application by Lloyd Plishka, Architect, to amend CD-1
By-law No. 3914 (13B) for 6475 Elliott Street (Lot 2 of 3, Block C,
D & E, D.L. 336, NW 1/4, Plan 10861) to permit 100 non-market
seniors rental dwellings and 90 market dwellings be referred to a
Public Hearing, together with:

(i) revised plans received March 21, 1997;

(ii) draft CD-1 amending by-law provisions, generally as
contained in Appendix A; and

(iii) the recommendation of the Director of Central Area
Planning on behalf of the Director of Land Use and
Development 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 Public Hearing.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of
the foregoing.

COUNCIL POLICY

CD-1 By-law No. 3914 for this site was enacted on April 25, 1961. The
By-law has no regulations. The use of the site is limited to
CMHC-assisted rental dwellings for seniors and a personal care home
(originally a boarding home). The approved form of development has a
height of two storeys and a floor space ratio of 0.75.

Under the provisions of the Rezoning Policy - Before and During CityPlan
Neighbourhood Visioning (January, 1996), this application qualifies
under three considerations:

the proposed rezoning and redevelopment was given favourable staff
response prior to Council adoption of the rezoning policy [Policy
1];

the application involves a project providing non-profit, affordable
housing [Policy 4(b)]; and

the application involves the redevelopment of a non-profit,
institutional site which would continue to provide 100 affordable
seniors rental dwellings [Policy 4(c)].

PURPOSE AND SUMMARY

This report assesses an application to amend the existing CD-1 By-law to
permit redevelopment of the site at maximum floor space ratio of 1.25
for 100 non-market seniors rental dwellings and 90 market dwellings.
Through joint market/non-market development, the Baptist Housing Society
which owns and manages the site would maintain the same amount of
affordable seniors rental housing on the site and provide larger, more
accessible dwellings. (See site on map below, plans of proposed
development in Appendix E and statistics in Appendix F.)

Staff assessment of the application concluded that the site continues to
offer a desirable location for seniors-oriented multiple dwellings and
that the proposed development along with off-site services provided at
the property owner's expense can accommodate additional housing with
little undesirable impact on the surrounding neighbourhood. Planning
staff support the proposed uses, floor space ratio and form of
development. Staff recommend that the application be referred to a
Public Hearing, with a recommendation from the Director of Central Area
Planning on behalf of the Director of Land Use and Development that the
application be approved, subject to conditions.

DISCUSSION

Neighbourhood Concerns about Density and Traffic: The principal issue
facing this application is the lack of community support, generally
expressed in neighbourhood concerns about density and traffic and their
related impacts (see comments in Appendix D). In response to these
concerns and a staff request, the applicant commissioned a traffic and
parking analysis of proposed development (see discussion in Appendix C).
Staff took this analysis and public comments into account in the
assessment of the application (see discussion in Appendix C). Staff
believe that the revised application, and the recommended CD-1 By-law
provisions and conditions of rezoning approval, appropriately and
adequately address most neighbourhood concerns.

The applicant was also advised to undertake further public consultation
to bring concerned neighbours up to date on the proposed rezoning. The
applicant held a public information meeting on July 7, 1997 to which 335
property owners in the surrounding notification area were invited. Of
33 people who attended, 17 remain opposed to the application, largely
due to continued concerns about increased traffic and parking, and the
overall effect of increased density.

Planning staff believe that the recommended draft CD-1 By-law provisions
in Appendix A and proposed conditions of rezoning approval recommended
in Appendix B will further reduce the various objections to the proposed
rezoning. The neighbourhood will be informed of these by the applicant
through an ongoing public consultation program.

Staff Concerns about the Proposed Form of Development: A secondary
issue raised by this application involves Urban Design Panel and
Planning staff concerns about aspects of the proposed form of
development (see further staff discussion in Appendix C and Panel
comments in Appendix D).

In general, Planning staff support the proposed form of development as
revised. Building heights of three and four storeys are proposed but
the four-storey buildings would be confined to the south and south-east
parts of the site, overlooking the church south of the lane and facing
the shopping centre across Elliott Street, to minimize view obstruction
for the one-family dwellings south-west of the site on East 48th Avenue.
The proposed development would have sloping roofs, gables and porches
similar to the shapes of many houses in the broader area surrounding the
site. Each building would have a distinctive entrance canopy and/or
porch to provide a sense of address and identity.

Concerns remain about the appearance of the apartment buildings,
particularly their elevation design and treatment and roof design, the
relationship to the church south of the lane and the parking entrance at
the south-east corner of the site. Planning staff also do not support
the proposed development of the first storey 0.6 m (2 ft.) below grade
which would be out of character in this area. CD-1 By-law provisions
and conditions of approval are recommended to address these various
concerns at the development application stage.

CONCLUSION

Planning staff support the uses, floor space ratio and form of
development proposed in this application. The site continues to offer a
desirable location for seniors-oriented multiple dwellings and it can
accommodate additional housing in proposed redevelopment with little
undesirable impact on the surrounding neighbourhood. Staff recommend
that the application be referred to a Public Hearing, with a
recommendation from the Director of Central Area Planning on behalf of
the Director of Land Use and Development that the application be
approved, subject to conditions.

* * * * *
APPENDIX A

DRAFT CD-1 BY-LAW AMENDMENT PROVISIONS
6475 Elliott Street

USES

Multiple Dwellings, provided that in sub-area A shown in the diagram
below multiple dwellings will be limited to dwellings eligible for
government funding and limited to occupancy by at least one person that
meets the age criteria of the senior government subsidized housing
program for seniors, and

Accessory Uses customarily ancillary to the foregoing.

Note: A non-stratification covenant is recommended to be registered on
property title of Sub-Area A and also a Housing Agreement to ensure that
the seniors rental dwellings will continue to qualify for assistance
under the B.C.H.M.C. SAFER (Shelter Assistance For Elderly Renters)
Program.

FLOOR SPACE RATIO

Maximum of 1.25. Computation of the floor space ratio shall be
generally based on the provisions of Sections 4.7.2 and 4.7.3 of the
RM-4 District Schedule (as of this date), except that Section 4.7.3 (a)
of the RM-3A District Schedule will also apply.

For the purpose of computing floor space ratio, the site is all parcels
covered by this By-law, and is deemed to be 11 073 m2 (119,193 sq. ft.),
being the site size at time of application for rezoning, prior to any
dedications. [Note: The site is proposed to be subdivided to create two
parcels: Sub-Area A would be 5 421 m2 (58,352 sq. ft.) in size and
Sub-Area A would be 5 653 m2 (60,846 sq. ft.).]

See diagram

BUILDING HEIGHT

Maximum of 3 storeys and 10.5 m (35 ft.), except that the Director
of Planning may relax this height to 4 storeys and 12.8 m (42 ft.)
for apartment buildings fronting Elliott Street and abutting the
lane generally in accordance with plans shown at Public Hearing.
Note: These buildings will have setbacks on the 4th storey at their
north and west ends respectively to minimize view obstruction for
neighbours to the south-west of the site.

BUILDING GRADE

The first storey of all buildings will be on average no more than
0.3 m (1 foot) below finished grade, except that this may be
relaxed to 1.0 m (3 ft.) at the southwest corner of the site for
the apartment building abutting the lane due to the topography at
this location.

FRONT YARD SETBACKS

Minimum setbacks of 6.0 m (20 ft.) will be provided from Elliott
and Clarendon Streets and Waverley Avenue, which may be relaxed to
5.5 m (18 ft.) for the provision of bay windows and bay
projections, porches, stairs, balconies and similar projections.

REAR YARD SETBACK

A minimum setback of 4.6 m (15 ft.) will be provided from the rear
property line (City lane south of the site).

SITE COVERAGE

Maximum of 45 percent.

OFF-STREET PARKING, LOADING AND BICYCLE SPACES

As per Parking By-law, except that parking spaces are to be
provided at the rate of 0.85 space per dwelling unit plus 1.0 space
for every 250 m2 (2,700 sq. ft.) of total floor area for market
dwellings and 0.50 space for every non-market seniors rental
dwelling.

* * * * *

APPENDIX B

PROPOSED CONDITIONS OF REZONING APPROVAL
6475 Elliott Street

(a) THAT the proposed form of development be approved by Council in
principle, generally as prepared by Lloyd Plishka, Architect, and
stamped "Received City Planning Department, March 21, 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, including the advice of the Urban Design Panel as may be
necessary:

(i) further design development as follows:

1. to minimize the depth of first storey below grade,
2. to remove the dog-leg and cantilevering of the south
building over the parking entrance at the south-east
corner of the site as this takes up too much space on too
significant a part of the site and because proximity to
the shopping centre suggests a more public outdoor
amenity space be provided there,
3. to give the south building a more appropriate and
prominent principal entrance and a better relationship to
the church south of the lane,
4. to eliminate or separate the townhouse dwellings in the
corners at the interior of the site to improve their
livability (sunlight access and privacy),
5. to reconsider the elevations of the apartment buildings
so as to improve their visual relationship to the
proposed townhouses and surrounding development, and
6. to reduce the obtrusiveness of the underground parking
entrance ramp on Waverley Avenue;

(ii) principles of crime prevention through environmental design
(CPTED), having regard to reducing opportunities for:

1. theft in the undergrounding parking areas by securing
ramp access and by locating exits so they less visible
from the street (Note: Whitepainting the underground
areas will also make them feel safer.), and
2. breaking and entering by minimizing concealed areas on
the site;

(iii) a landscape plan prepared by the applicant showing:

1. the existing trees which are noted on the Tree Survey and
which are to be retained or relocated,
2. the open spaces for market and non-market housing at the
interior of the site to be combined or coordinated to
provide shared, more useable space, and
3. annotations to describe how the landscaping will mature
and be maintained over the long term (with reference to
principles for crime prevention through environmental
design);

(iv) "aging in place" principles, including:

1. "aging in place" features in the seniors housing,
including the provision of adequate kitchen facilities in
the fourth-storey amenity room, weather protection for
the walkway which joins the two seniors buildings, and
handicapped parking spaces in visitor and resident
parking areas both at-grade and underground, and
2. consideration of similar "aging in place" features in the
market housing, and
3. a relocation plan for the existing tenants; and

(v) fire prevention measures to include relocation of the
principal entrance to the apartment building adjacent to lane
to ensure that it is no more than 15 m (50 ft.) from Clarendon
or Elliott Streets.

(i) make arrangements, to the satisfaction of the Director of
Legal Services and the Manager of the Housing Centre, to execute the following:

1. a covenant to be registered on property title,
restricting subdivision or strata-titling of the seniors
rental buildings,
2. a Housing Agreement to ensure that the seniors housing
will be eligible for SAFER assistance and will be
operated by a non-profit reporting society registered in
the Province of B. C., and
3. a legal agreement providing that a meeting shall be
convened in each calendar year for the purpose of
organizing a resident's council in the seniors rental
housing buildings;

(ii) make arrangements to the satisfaction of the Director of Legal
Services and General Manager of Engineering Services, at no
cost to the City, for:

1. the extension of an 8-inch water main 350 ft. west
of Elliott Street along Waverley Avenue to Clarendon
Street and a water hydrant on Waverley Avenue
(estimated cost of $54,000),
2. the provision of curb, gutter and pavement on Waverley
Avenue (both sides) between Elliott and Clarendon
Streets,
3. the provision of street trees adjacent the site on
Elliott and Clarendon Streets and Waverley Avenue where
space permits, including the north side of Waverley
Avenue between Elliott and Clarendon Streets, and
4. the undergrounding of all utilities from the closest
existing suitable service point;

(iii) make arrangements to the satisfaction of the Subdivision
Approving Officer and the Director of Legal Services for
subdivision of the site; and

(iv) execute a legal agreement, to the satisfaction of the Director
of Legal Services, to not discriminate against families with
children in the sale of market dwelling units.

* * * * *

CHRONOLOGY, SITE, SURROUNDING AREA, PROPOSED DEVELOPMENT AND DETAILED
STAFF ASSESSMENT

Chronology: The following lists the key events in the preparation and
processing of this application:

Jan. & Oct., 1996 --- applicant holds information meetings with
residents of Clarendon Court
Feb. & July, 1996 --- applicant holds public information meetings
with neighbours surrounding the site
October 29, 1996 --- rezoning application is submitted
December, 1996 --- Urban Design Panel reviews application for the
first time (non-support)
March, 1997 --- neighbours submit 431-signature petition
opposed to the application
March 21, 1997 --- revised application is submitted
April, 1997 --- Urban Design Panel supports revised application
April, 1997 --- Housing Sub-Committee of Seniors Advisory
Committee reviews application and has several
questions and concerns
May, 1997 --- Housing Sub-Committee of Seniors Advisory
Committee reviews application a second time and
supports
July, 1997 --- applicant holds public information meeting

Site and Existing Zoning and Development: The site is a large one, with
an area of 11 073.87 m2 or 1.197 ha (119,198 sq. ft. or 2.74 acres).
The site fronts on three streets (Waverley Avenue, Clarendon Street and
Elliott Street) and abuts a City lane.

The site was rezoned from RS-1 to CD-1 in April 1961. It was developed
in 1966 and 1967 with a 66-bed, two-storey boarding home (Waverley
Manor) at the north end of the site (which subsequently became a
personal care home) and six two-storey apartment buildings (Clarendon
Court) on the balance of the site. The development is served by 25
surface parking spaces. The site and development are owned and managed
by the Baptist Housing Society.

The apartment buildings are CMHC-financed and provide 100 rental
dwellings for seniors aged 55 years and older (average age is 70 years).
The dwellings consist primarily of small bachelor units approximately 32
m2 (345 sq. ft.) in size. Because the B.C. Ministry of Health s
Personal Care Programme has been discontinued and because the personal
care home no longer meets contemporary standards, it has been used in
recent years as a transitional facility for residents of other
Intermediate Care facilities undergoing upgrading or expansion. The
building is currently empty and is no longer required by the Ministry of
Health.

Surrounding Zoning and Development: The site is located in the
Victoria-Fraserview Local Area near the intersection of East 49th Avenue
and Elliott Street. The surrounding area is generally zoned RS-1
One-Family Dwelling District, although one-family dwelling development
does not abut the site and adjoins only at the south-west and north-east
corners. Less than 23 percent of the site perimeter faces one-family
dwellings (the sides of two dwellings on Elliott Street and one on
Clarendon Street).

A site to the south-east, at the north-east corner of East 49th Avenue
and Elliott Street, is zoned C-2 and is developed with a small shopping
centre, Killarney Centre. A large site at the south-east corner of East
49th Avenue and Elliott Street is zoned CD-1 (7b) and is developed with
apartments (6620-80 Elliott, BCHMC). A site further east at the
north-west corner of East 49th Avenue and Vivian Street is zoned CD-1
(7a) and is developed with 90 seniors apartments (2691 East 49th) and a
107-bed intermediate care facility (2720 East 48th Avenue). A rezoning
application to amend the CD-1 By-law (7a) for this site, for the
proposed redevelopment of a multi-level care facility, is on hold.

South of the site, across a City lane, is Faith Fellowship Baptist
Church (2551 East 49th Avenue). To the west is Corpus Christi Roman
Catholic Church (6300 Nanaimo Street), Elementary School and Convent.
To the north is Waverley Elementary School and Nanaimo Park. A
local-serving shopping district is located three blocks to the west at
East 49th and Victoria Drive. Killarney Park and Community Centre are
located about 4-5 blocks to the east.

Proposed Development:

(1) Land Use and Tenure: The application proposes to demolish the seven
existing buildings on the site and replace them as follows (see plans in
Appendix E):

90 market (strata-title) dwellings (36 townhouses and 54
apartments) on the north/east part of the site (fronting primarily
on Waverley Avenue and Elliott Street), and

100 non-market seniors rental apartments in two buildings on the
south/west part of the site (fronting primarily on Clarendon Street
and abutting the lane).

The two rental buildings would be owned and managed by the Baptist
Housing Society. The dwellings would be affordable, more accessible and
larger than those now provided. They would be increased in size from 32
m2 (345 sq. ft.) to 56 m2 (600 sq. ft.).

Redevelopment of the seniors housing must maintain the existing number
of rental dwellings due to senior government financial participation in
the original development of the property. However, because there is no
readily available funding for the development or redevelopment of
non-market seniors housing, the Baptist Housing society proposes a
public-private partnership with a developer so that the Society s land
equity in the site can be combined with borrowing and Society funds to
undertake the proposed redevelopment.

Planning staff, with advice from the Manager of the Housing Centre and
the Special Advisory Committee on Seniors, supports the proposed use as
the site continues to offer a desirable location for seniors-oriented
multiple dwellings. Staff recommend CD-1 By-law provisions (in Appendix
A) and approval conditions [b(iv), c(i), c(iii) and c(iv) in Appendix B]
to implement various staff recommendations pertaining to "aging in
place" principles, provision of guaranteed rental, seniors, affordable
housing, subdivision of the site and non-discrimination in the sale of
strata dwellings.

(2) Floor Space Ratio and Density: A total floor area of 13 842.34 m2
(149,002.5 sq. ft. is proposed. This is a floor space ratio (FSR) of
1.25, as compared to 0.75 for existing development, i.e. an increase of
66.6 percent. The FSR would be the same on both parts of the site.

In terms of number of dwellings per unit of land, the proposed
development would have 71.5 DUA (dwelling units per acres). The
existing development has a density of 36.5 DUA. Located in an area of
40-foot lots, the large site could be subdivided to provide a
north-south lane and 12-13 lots on either side, for a total of 24-26
one-family dwellings. This represents 9.5-10.3 DUA, about one-third of
existing development on the site.

The surrounding RS-1 District generally allows a maximum FSR of 0.6.
The nearby C-2 site allows a maximum of 3.0, but is presently
under-utilized. Staff acknowledge there is little precedent in the area
for the requested increase in FSR. However, the site is uniquely
situated: it is bounded by three streets and a lane and has very few
one-family dwellings that directly adjoin the site. In this context,
staff believe that the site can accommodate additional development,
depending on the potential impacts of the proposed form of development
and anticipated traffic (see further discussion below).

(3) Form of Development: Three- and four-storey buildings are proposed.
The three-storey buildings would be 9.8 m (32.1 ft.) in height and
four-storey development would be 12.5 m (41.0 ft.).

The existing buildings have a roof line which is about 1.8 m (6 ft.)
above the second storey and the first storey is about 0.3 m (1 ft.)
above grade. The new buildings are proposed to be developed 0.6 m
(2 ft.) below grade but with a height of 3 and 4 storeys. The
four-storey development would be confined to the south and south-east
parts of the site, overlooking the church south of the lane and facing
the shopping centre across Elliott Street, to minimize view obstruction
for the one-family dwellings south-west of the site on East 48th Avenue
(see Roof Plan on page 3 of Appendix E).

The proposed development would have sloping roofs, gables and porches
similar to the shapes of many houses in the broader area surrounding the
site. Each building would have a distinctive entrance canopy and/or
porch to provide a sense of address and identity.

In general, Planning staff support the revised form of development which
is proposed. However, staff have concerns about the proposed appearance
of the apartment buildings, particularly the design and treatment of
elevations, design of some portions of the roof form, the relationship
to the church south of the lane, and the parking entrance at the
south-east corner of the site.

Staff also do not support the proposed development of the first storey
0.6 m (2 ft.) below grade. This is a character of development which is
both unprecedented in the surrounding one-family dwelling district and a
feature which is not supported in this context according to CPTED
principles (Crime Prevention Through Environmental Design). It is
therefore recommended that the depth of the first storey below grade be
reduced to 0.3 m (1 ft.). Staff propose a slight increase in maximum
building height to accommodate this adjustment.

The Panel supported (6-0) a revised application in a review on
April 9, 1997 as showing significant improvement, but with remaining
concerns about the proposed form of development (see comments in
Appendix D). Planning staff share these concerns and recommend further
design development at the development application stage to address them.
[See draft CD-1 By-law provisions in Appendix A and condition b(i and
ii) in Appendix B.]

(4) Landscaping: The site coverage of proposed development would not
exceed 45 percent. The remaining site area would provide open space
and pedestrian paths (most of the parking would be provided
underground).

Several paths are proposed to connect principal and secondary entrances
to sitting and activity spaces which provide a variety of outdoor
experiences and social opportunities. Ground-oriented patio spaces are
proposed for most first-storey dwellings throughout the site. The
largest open space, at the centre of the site, would not be excavated
for underground parking and this would remove constraints on the trees
which could be provided there.

Staff support the proposed landscape concept and recommend the related
condition of approval b(iii) in Appendix B.

(5) Phasing: Redevelopment would occur in phases to minimize disruption
to existing residents on the site (see also the site plan on page 1 of
Appendix E):

Phase Demolish Construct

1 Personal Care Home Townhouses

2 2 apartment rental apartments
buildings
3 2 apartment market apartments
buildings

4 2 apartment rental apartments
buildings

The applicant proposes that existing residents would be relocated to new
buildings or other seniors residences owned and managed by the Baptist
Housing Society during redevelopment. At no time would existing tenants
be without accommodation. To ensure this, staff recommend a relocation
plan be provided at the development application stage [see condition
b(iv)(3) in Appendix B].

(6) Traffic and Parking: In June, 1997, the applicant submitted a
traffic and parking analysis of the proposed development (report by Ward
Consulting Group on file in the Land Use and Development Division). The
study reviewed traffic and parking conditions in and adjacent the
proposed development to identify likely impacts and to recommend
appropriate mitigation measures. Matters addressed included road
conditions and capacities, sidewalks and pedestrian crosswalks, traffic
volumes, access to the site, transit, parking and trip generation.

The transportation consultant's review concluded that although the
proposed development would generate some additional traffic, the number
of additional vehicles will be comparatively small and will have little
or no impact on the area west of Clarendon Street. Furthermore, as the
new traffic generated will be primarily during the morning and afternoon
peak hours, it will not conflict with existing traffic in the area which
is generated primarily by two churches, two schools and a park.
Vehicular access is proposed on Waverley Avenue and on the lane south of
the site, thereby avoiding Elliott Street (an arterial street) and
Clarendon Street (a quiet residential street).

The proposed parking provision to serve proposed development would
exceed Parking By-law requirements (see table on the following page).
Most significantly, it is proposed to provide three times as much
parking for the non-market senior dwellings, i.e. 50 spaces rather than
17. The number of loading and bicycle spaces are proposed to meet
Parking By-law requirements.

Multiple Seniors
Housing Housing TOTAL

Dwellings 90 100 190
Proposed Standard 0.85/dwelling + 1/2
1/250 m2 (2,700 dwellings
sq. ft.)

Proposed Number of 106 50 156
Spaces

Required Standard 0.85/dwelling + 1/6
1/250 m2 (2,700 dwellings
sq. ft.)

Required Number of 106 17 122
Spaces

Engineering staff advise that the Traffic and Parking Analysis performed
by Ward Consulting Group for the proposed redevelopment accurately
assesses the traffic and parking impacts of the proposal. Traffic
impacts will be easily handled by surrounding streets and the abutting
lane and will cause negligible impact for nearby residents.

Engineering staff support the proposed parking provision as it will be
adequate in supply, underground, and better distributed around the site
than at present. This should reduce the likelihood of on-street parking
problems. The consultant has also noted that Waverley Avenue is in poor condition,
lacking curb and gutter and having shoulders which are only partly
paved. The General Manager of Engineering Services recommends the
provision of curb, gutter and pavement to both sides of Waverley Avenue
between Elliott and Clarendon Streets [see condition c(ii)(2) in
Appendix B].

Environmental Implications: The proposed rezoning will contribute to
the objective of reducing atmospheric pollution by providing increased
housing supply in a location which is within convenient walking distance
to shopping and two transit routes (on East 49th Avenue and on Elliott
Street), resulting in a likely reduction of automobile use as compared
to development on alternative sites.

Social Implications: The proposed rezoning would have no implications
with respect to Council's Children's Policy or Statement of Children's
Entitlements. Planning staff recommend that a legal agreement be
executed whereby families with children will not be discriminated
against in the sale of strata dwelling units [see condition c(iv) in
Appendix B].

* * * * *

COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANT

Public Input: Planning staff mailed a notification letter to the 355
property owners in the surrounding area on November 29, 1996, and a
further letter of clarification on December 5, 1996. The applicant
installed three requested information signs on the large site on
December 4, 1996.

Several telephone calls were received which indicated that some
neighbours were opposed to the proposed rezoning. Subsequently, on
March 12, 1997, a petition was delivered with 431 people opposed to the
application of 470 households canvased (196 from addresses within the
notification area). Form letters were also received from 267 households
expressing opposition to the application (40 from residents in the
seniors housing development and care facility on the CD-1 site half a
block east of the site, and from outside the notification area). Also
received were three individual letters from residents near the site.
Staff note there is considerable overlap between the people who signed
the petition and those who sent form letters (within the notification
area, 121 form letters were received from petitioners).

Concerns raised by the neighbourhood involved several factors:

1. density -- the requested increase in FSR is unprecedented in the
area,
2. traffic -- the proposed FSR will significantly increase local
traffic, to the detriment of pedestrian safety,
3. parking -- the proposed FSR will significantly increase the demand
for on-street parking which is already overloaded during various
times during the week due to nearby schools, churches, park and
shopping centre,
4. character of the neighbourhood -- the proposed development will
negatively affect the look and character of the single-family
neighbourhood,
5. community facilities -- the increased population will put
considerable demands on local schools, community centre and parks,
6. phasing -- the 3-4 year redevelopment program will excessively
disrupt existing nearby residents, schools and churches through
truck traffic, noise, dust and detours, and
7. views -- three and four storey buildings will have negative impact
on views for residents south-west of the site.

The main concern appeared to be traffic and parking, particulary in
light of the number of people opposed to the application who reside
beyond the site's notification area boundaries. In response to these
concerns and a staff request, the applicant commissioned a traffic and
parking analysis of proposed development (see discussion in Appendix C).
Staff also took these comments into account in the assessment of the
proposed form of development (see discussion in Appendix C).

The applicant was also advised to undertake further public consultation
to bring concerned neighbours up to date on the redevelopment which is
proposed. The applicant held a public information meeting on July 7,
1997. Invitations were mailed to all 335 property owners in the
surrounding notification area. Thirty-three people representing 29
households attended the meeting and 28 completed a questionnaire: 10 in
support of the proposal as now presented and 17 opposed. Of those
opposed to the application, 15 and 14 respectively are concerned about
increased traffic/parking and increased density. Several other factors,
such as building height and noise, each drew concerns from one to three
households.

Comments of the General Manager of Engineering Services: The General
Manager of Engineering Services has no objections to the proposed
rezoning provided that the applicant complies with draft CD-1 By-law
provisions in Appendix A and condition c(ii) in Appendix B. Note:
Engineering staff originally recommended an upgrading of only the south
side of Waverley Avenue adjoining the site. Based on public input, and
on the major vehicular access/egress role anticipated for Waverley
Avenue, Planning staff recommend that upgrading be undertaken on both
sides of Waverley Avenue [see condition c(ii)(2) in Appendix B].

Comments of the Assistant Chief, Fire Prevention: The Assistant Chief,
Fire Prevention, has no objections to the proposed rezoning provided
that fire prevention measures are provided, including improved water
service to the site [see condition b(v) and c(ii)(1) in Appendix B].

Urban Design Panel: The Panel did not support the initial application
on December 4, 1996 (0-6). The Panel supported use and density but had
several concerns about the form of development, particularly the
following:

1. the site plan seemed arbitrary, with no comprehensive approach and
with artificial boundaries within the site,
2. the proposed open spaces provided no large, useable area at
interior of the site,
3. a proposed entered from Waverley Avenue seemed a waste of site
space, and
4. livability concerns were raised for several interior units.

The Panel supported (6-0) a revised application in a review on
April 9, 1997 as showing significant improvement, but with remaining
concerns about the proposed form of development. Planning staff share
these concerns and recommend further design development at the
development application stage to address them [see approval conditions
b(i, ii and iii) in Appendix B.]:

1. minimize depth of first storey below grade,
2. remove dog-leg and cantilevering of building over the parking
entrance at south-east corner as this takes up too much space on
too significant a part of the site and because proximity to the
shopping centre suggests a more public outdoor amenity space be
provided here,
3. give south building a more prominent principal entrance and a
better relationship to the church south of the lane,
4. eliminate or separate the townhouse dwellings in the corners at the
interior of the site to improve their livability (sunlight access
and privacy),
5. reconsider the elevations of the apartment buildings, including the
mansard-like roof on part of one building, to improve their visual
relationship to the townhouses and surrounding development, and
6. reduce the obtrusiveness of the underground parking entrance ramp
on Waverley Avenue.

Staff note that the applicant has recently undertaken some exploration
of the recommended further design development and staff and Urban Design
Panel concerns can be addressed.

Comments of the Housing Centre: The Manager of the Housing Centre
supports this application. The two seniors buildings which would be
owned and managed by the Baptist Housing Society would provide more
accessible and larger affordable, rental dwellings than now exist on the
site.

Redevelopment is required to maintain the existing number of rental
dwellings due to senior government financial participation in the
original development of the property. Because there is no readily
available funding for the development or redevelopment of non-market
seniors housing, this would be achieved through a public-private
partnership such that the Society's land equity in the site can be
combined with borrowing and Society funds to undertake the proposed
redevelopment.

A Housing Agreement is recommended to ensure that the seniors rental
dwellings will qualify for assistance under the B.C.H.M.C. SAFER
(Shelter Assistance For Elderly Renters) Program as proposed by the
applicant [see condition of approval c(i) in Appendix A]. Planning
staff also recommend a non-stratification covenant to be registered on
property title for the seniors housing.

Comments of the Special Advisory Committee on Seniors: The Committee
raised several questions and concerns when it first reviewed the
application in April, 1997. In a second review in May 1997, when the
applicant, Housing Centre staff and B.C.H.M.C. staff were on hand to
provide clarifications, the Committee supported the proposed
development. It also provided recommendations for implementing "aging
in place" principles and requested a relocation plan for the existing
tenants. Planning staff also recommend that the applicant consider
"aging in place" principles for the proposed market housing. Both
Committee and staff recommendations are contained in condition b(iv) in
Appendix B.

Applicant's Comment: The applicant has been given a copy of this report
and provides the following comments in a letter dated July 15, 1997:

"We are in general agreement with the report and look forward to
resolving issues arising from comments contained therein. There are
some pint which we wish to address in particular, however; they are as
follows:

1. Improvements to both sides of Waverley Avenue - It has been
suggested that the project should pay for improvements to both
sides of Waverley Avenue. Originally Engineering requested
improvements to only the Clarendon Court side. Since the project
is a public/private partnership to redevelop social housing for
seniors budget issues are crucial to the feasibility of the
proposal. We feel, therefore, the project should pay for only the
improvements to the south side of Waverley. We seek Council's
support of this position.

2. Strata Titling Agreement - Planning has requested a
non-stratification agreement for the seniors housing. The project
already has a strong covenant registered against its title by the
Provincial Government; this covenant is administered by the B.C.
Housing Management Commission. This existing legal restriction
ensures that the project will not be stratified. We feel any
further covenants will be redundant and an unnecessary extra
expense. We therefore seek Council's support to waive the
requirement for a non-stratification agreement."

* * * * *

APPENDIX F

APPLICANT, PROPERTY OWNER AND DEVELOPER INFORMATION

APPLICANT Lloyd Plishka, Architect
PROPERTY OWNER Baptist Housing Society

DEVELOPER Baptist Housing Society

SITE INFORMATION AND STATISTICS

STREET ADDRESS 6475 Elliott Street

LEGAL DESCRIPTION Lot 2 of 3, Block C, D, + E, D.L. 336, NW
1/4, Plan 10861
SITE AREA 11 073.87 m2 (119,198 sq. ft. or 2.74
acres)

AVERAGE WIDTH 77 m (252 ft.)

AVERAGE DEPTH 144 m (473 ft.)

DEVELOPMENT STATISTICS

PERMITTED PROPOSED DEVELOPMENT
DEVELOPMENT

LAND USES Multiple Dwelling Multiple Dwelling
(Seniors (Market and Seniors
Non-Market) Non-Market)
Care Facility
DWELLINGS 66 care beds 36 market townhouses
100 seniors rental 54 market apartments
apartments 100 seniors rental
apartments

NET FLOOR AREA 8 305 m2 (89,401 13 842 m2 (149,003
sq. ft.) sq. ft.)

MAX. FLOOR SPACE 0.75 1.25
RATIO
MAX. BUILDING 2 storeys 4 storeys / 12.5 m
HEIGHT (41 ft.)

BUILDING GRADE 1st storey 0.6 m (2
ft.) below grade
(average)

MAXIMUM SITE 45 percent
COVERAGE

FRONT YARD 6.0 m (20 ft.)
SETBACKS
REAR YARD SETBACK 4.6 m (15 ft.)

PARKING SPACES 25 106 spaces for market
dwellings (0.85/unit
+ 1/250 m2 (2,700 sq.
ft.))

50 spaces for seniors
dwellings (1/2 units)
156 total spaces