Under the Bridges - Theatre Complex Proposal

POLICY REPORT
BUILDING AND DEVELOPMENT

Date: February 16, 1998

Author/Local: RWhitlock/7814

CC File No.: 8208

TO:

Standing Committee on Planning and Environment

FROM:

Director of Central Area Planning on behalf of
Land Use and Development

SUBJECT:

Process for Considering a Development Proposal for
1405 Anderson Street on Granville Island
("Under the Bridges" Theatre Complex Proposal)

RECOMMENDATION

THAT the development proposal for 1405 Anderson Street ("Under the Bridges") and related amendments to the Granville Island Reference Document be dealt with as follows:

i)Reference Document amendments be processed similarly to an amendment to an official development plan whereby Council may consider such changes, along with the principles of the development, at a special meeting of Council, similar to a Public Hearing, following a report including staff analysis and recommendations; and

ii)should the necessary amendments to the Reference Document be approved, the detailed proposal be processed similarly to a development application by the Development Permit Board.

GENERAL MANAGER'S COMMENTS

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

COUNCIL POLICY

On April 18, 1978, City Council adopted the following motion:

"THAT the draft Reference Document for Granville Island, False Creek - Area 9, as amended April 1978, be approved for use by persons involved in the preparation of plans and proposals for the redevelopment of the Island, including the Development Permit Board."

On July 29, 1997, Council requested that the Development Permit Board refer this application to Council for advice, prior to making a final decision.
PURPOSE
This report advises Council of a theatre complex proposal for Granville Island which would require adjustments to the "Reference Document for Granville Island", and seeks Council direction on an appropriate process for handling the potential amendments and ultimately the specific proposal.
BACKGROUND
A preliminary development application has been submitted and a request to amend the Reference Document for Granville Island will be received shortly for a six theatre plus retail/restaurant complex for a site situated on Anderson Street, on Granville Island. A preliminary analysis of the development statistics indicates that adjustments would be needed to the Reference Document for Granville Island in order for this proposal to proceed further, as the proposal exceeds current allowances in several key aspects, even though it does not, at face value, appear fundamentally inconsistent with the intent of the Document.
As Granville Island is Crown land under the jurisdiction of the Federal Government, City zoning by-laws do not apply. However, Canada Mortgage and Housing Corporation (CMHC),who administers the Island, has agreed to follow standard City approval processes. Development proposals for Granville Island are analysed in the context of the Reference Document for Granville Island, which can be seen to be similar to an official development plan.
DISCUSSION
Proposal The proposal for 1405 Anderson Street features:
-redevelopment of the decommissioned Granville Island brewery (Building 55; immediately north of the newly renovated building occupied by the Granville Island Brewery Co.) and a portion of Building 35, currently used for parking;
-a total floor area of 4 757 m² (51,205 sq. ft.);
-a ground floor and mezzanine of 2 459 m² (26,469 sq. ft.) of retail (arts, crafts, antiques and collectables) and restaurant;
-a second floor of 2 298 m² (24,736 sq. ft.) comprising six motion picture theatres, ranging in size from 122 to 255 seats;
-display space for the B.C. Film Industry;
-a third floor for projection needs; and
-an overall height within the specified limits for Granville Island (16.76 m/55 ft.).
Consistency With Reference Document Staff’s initial review indicates that the proposal may result in overages in two land use categories ("Restaurants and entertainment" and "Retail") in the Reference Document beyond the 10% flexibility set out therein (see Appendix A). Further discussion with CMHC officials indicates that other overages have occurred in the past and these are shown in Appendix A.
The theatre proposal has stirred significant community debate, both in support and in opposition. This response, combined with Council’s expressed interest in the proposal, suggests a process is needed comparable to that associated with the rezoning process applied to text amendments of official development plans, where Council receives direct, formal input from the public, as in the case of a Public Hearing. Thereafter, if Council and CMHC together approve the amendments, the specific proposal would be dealt with by the Development Permit Board similar to a development application.
It is agreed between City and CMHC staff that the Reference Document is due for a major review. This is especially true if the theatre complex proceeds because very little further development allowance, overall, will remain as set out in the Reference Document. However, such a review is not on the Planning Department’s work program, and in any event would first be the responsibility of CMHC to convene. Such a review by CMHC would be expected to take a year or more to complete, in co-operation with the City.
Under the circumstances, it seems equitable to deal with the proposal in hand now, but through a public process, with Council decision on the principles of the development, before details are handled at the staff level.
The merits of the specific proposal would be evaluated against the existing policy framework provided by the Reference Document. If the general use and magnitude of development is found to be acceptable, then Council and CMHC could approve the necessary amendments to the Reference Document to permit the final processing of the development application. Previous overages to the Reference Document would also be brought up-to-date through the amendment process.
The specific process steps are outlined in detail in Appendix B.
Public Input Public awareness of the proposal has so far occurred through several means. Proponents of the development held a press conference in early October. Articles and advertisements have been appearing in local newspapers and petitions both for and against the development have been circulating. On November 25, 1997, the Granville Island Business and Community Association sponsored a forum to discuss the proposal, to which more than 150 people attended. Concerns were expressed about the commercial nature of the operation and the potential impacts on traffic and parking.
To date, 51 letters have been received by staff, with 31 opposed and 20 in support. Many of the letters are similar in substance, and some are form letters. Copies of the individual letters are on file with the City Clerk.
CONCLUSION
As the proposed development does not fit the technical limitations of the Reference Document for Granville Island, staff recommend that amendments to the Reference Document be considered through a process similar to that for amending an official development plan. The Development Permit Board would then subsequently deal with the particular development on the basis of the allowances in the Reference Document, following well established practice.
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APPENDIX A
Theatre Proposal and Reference Document for Granville Island Comparisons
No electronic copy available.
Table on file in City Clerk’s Office.
APPENDIX B
Page 1 of 1
Process Steps for Amendments to Reference Document for Granville Island
1.Request to applicant to place notification sign on site (format similar to a standard rezoning sign);
2.Staff undertake mail notification of registered property owners, tenants and businesses within an approximate two-block radius (to include all of Granville Island and foreshore area surrounding entrance to Island)
3.Circulation of proposal and Reference Document changes internally, seeking staff input;
4.Discussion with CMHC officials;
5.Public information meeting or open house;
6.Preparation of staff report to Council;
7.Council referral of Reference Document changes to special meeting, for public delegations, which would be handled in a manner similar to a Public Hearing;
8.Notification of the special meeting, including letters to those previously notified in (2) above and advertisement pursuant to normal Public Hearing procedures;
9.Council will hear delegations regarding proposed Reference Document changes (the theatre proposal would be shown for information purposes only);
10.Council decision at conclusion of delegations or at subsequent meeting of Council (normal Council procedure);
11.Final processing of detailed development application for consideration by the Development Permit Board, if Council approves the changes to the Reference Document;
12.If Council refuses changes to the Reference Document, the applicant withdraws the preliminary development application or the Director of Planning may refuse the application.
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	Date: February 16, 1998
	Author/Local: RWhitlock/7814
	CC File No.: 8208