POLICY REPORT
DEVELOPMENT AND BUILDING
TO: Vancouver City Council
FROM: Director of Central Area Planning on behalf
of Land Use and Development
SUBJECT: CD-1 Text Amendment - 3330 S.E. Marine
Drive
RECOMMENDATION
THAT the application by Howard/Bingham/Hill
Architects to amend CD-1 By-law No. 5381 for 3330 S.E. Marine Drive (Lot 190 except part
shown in explanatory plan LMP 6475, District Lot 330, Plan LMP 2011) to allow an addition
to the Fraser Lands Church for uses accessory to the church, be referred to a Public
Hearing, together with:
(i) plans received January 21 , 1998;
(ii) draft CD-1 By-law amendments, generally as
contained in Appendix A; and
(iii) the recommendation of the Director of
Central Area Planning on behalf of Land Use and Development to approve, subject to
conditions contained in Appendix B.
FURTHER THAT the Director of Legal Services be
instructed to prepare the necessary CD-1 By-law for consideration at Public Hearing.
GENERAL MANAGER'S COMMENTS
COUNCIL POLICY
Relevant Council Policies for this site include:
CD-1 By-law No. 5381, enacted
August 12, 1980.
Champlain Heights South CD-1
Guidelines (Sub-Area 1, Church Site), adopted July 31, 1990, which provide design criteria
to ensure compatibility with adjacent land uses and to enhance the quality of the
development.
PURPOSE AND SUMMARY
This report assesses an application to amend CD-1
By-law No. 5381 which applies to sub-area 1 of Champlain Heights South, being the subject
site at 3330 S.E. Marine Drive (see map below). The application seeks to allow a 2-storey
addition to the Fraser Lands Church for accessory uses which would include a chapel,
offices, classrooms and a gymnasium.
Staff support the proposed additional space
which, as a result of the sloping site, can be accomplished relatively unobtrusively. In
addition, surface parking would be reduced and expanded programming would be available to
the community.
Staff recommend that the application be referred
to a Public Hearing, with a recommendation that it be approved subject to conditions.
Figure 1
DISCUSSION
Density: When Champlain Heights South was
rezoned to CD-1 in 1980, an FSR of 0.25 was approved for sub-area 1, the church site. This
density was related to the amount of surface parking that could be accommodated on the
site. The application proposes to increase the density to 0.61 to allow for additional
accessory uses. Staff consider the proposed density acceptable as:
the added density would be located on the
lowest portion of the site where it would not obscure the visibility of the existing
church, and would have the least amount of impact on the remainder of the site in terms of
views and shadowing;
it is less than the density of 0.77 FSR that
is permitted in the residential sub-areas of Champlain Heights South; and
underground parking would be provided which
reduces the area of the site required for surface parking.
Height: The proposed maximum height of the
addition is approximately 15.0 m (50 ft.) which is significantly greater than the 10.7 m
(35 ft.) permitted under the CD-1 By-law. The additional height is required for a
gymnasium which has higher roof requirements than the other uses being proposed. Due to
the slope of the site, the overheight portion of the building would be limited to the
extreme southern edge of the addition. A small portion of the overheight roof which
encroaches into the treed reserve area where no development is permitted will be removed
with further design development of the roof form. Staff support the additional height.
Site Coverage: In sub-area 1, the CD-1
By-law permits 30% site coverage for buildings. A further 30%, relaxable to 40%, site
coverage is permitted for off-street parking, loading and manoeuvring aisles. The
residential sub-areas of Champlain Heights South are permitted 50% site coverage for
buildings and up to 30% site coverage for parking and manoeuvring.
The proposed development would bring the site
coverage for buildings up to 49% but would reduce the site coverage for parking and
manoeuvring down to 27%. Overall, the combined site coverage would increase from 70% to
76%. Staff find this increase acceptable as the building site coverage would be the same
as in the other sub-areas of Champlain Heights South and there would be a decrease in the
amount of site coverage by surface parking.
Form of Development: The existing church has
a strong form and dominance on the site. The addition reinforces this identity and
reflects the shape of the existing church by including roof forms that respond to the
sloping "shell" form of the original building.
Besides exceeding the permitted height and site
coverage, the proposed form of development also extends into the required 8.0 m (26.2 ft.)
landscape setback along the southern boundary of the site. The CD-1 By-law allows
relaxation of this landscape setback requirement, if the intent and effect of the setback
can otherwise be achieved. Staff and the Urban Design Panel agree that the intrusion can
be supported if the relationship between the addition and the reserve area is
satisfactorily addressed at the development application staff (see Appendices B:
Proposed Conditions of Approval and D: Urban Design Panel Comments). Staff support the
form of development and recommend it be approved in principle (Appendix B).
Parking and Traffic: There are presently
73 surface parking spaces on the site which meets the parking requirement for the existing
church which has a maximum seating capacity of 700. If the church reaches it maximum
congregation size (presently 300 people) there would be considerable spillover onto
surrounding streets. The City's parking requirement for church use recognizes that parking
demand is most significant on the principal day of worship. The requirement is intended to
provide some, but not all, of the parking needed to keep overflow parking away from
neighbouring streets, as a requirement to fully meet this need is considered too onerous
for a weekly activity.
While no increase is proposed to the seating
capacity of the sanctuary, the application proposes to increase the number of parking
spaces to 134. The additional 61 spaces (equivalent to 1 space per 35 m2 gross
floor area) is more than typically secured through the Parking By-law, but is being
proposed in response to concerns from the adjacent residents about on-street parking,
especially during Sunday Services (see Appendix D: Public Input). Any increase in parking
demand created by the gymnasium and other accessory space would likely occur at separate
times to the church services. Therefore, the additional parking spaces will also provide
more off-street parking during church services.
The neighbours have also expressed concerns about
the traffic access to Marine Drive. However, conflicts are generally minimized, since peak
activity times at the church occur at off-peak times for general traffic. A check of
accident records for this location found that there is a very good safety record at this
segment of S.E. Marine Drive.
CONCLUSION
Staff support the proposed amendments to the
existing CD-1 By-law to increase the floor space ratio, height and site coverage for
sub-area 1, the church site. These increases can all be accommodated with minimal impact
and the amendments will allow the church to increase its programming that is also
available to the local community. Staff recommend that the application be referred to a
Public Hearing with a recommendation from the Director of Central Area Planning on behalf
of Land Use and Development that it be approved, subject to draft CD-1 By-law provisions
generally as shown in Appendix A, and proposed conditions of approval as listed in
Appendix B.
* * * * *
DRAFT AMENDMENTS TO CD-1 BY-LAW
NO. 5381
1. Amend Section 3.1, Uses, by inserting
immediately after the use "church", the following new use:
2. Amend Table 1 in Section 3.3, Uses, by
inserting after the line beginning with the word "Church", a new line commencing
with the words "Child Day Care Facility" and followed by the symbol
"X" in the column headed by the sub-area number "1".
3. Amend Section 4.3.1, Floor Space Ratio, by
deleting the figure "0.25" and replacing with the figure "0.61".
4. Amend clause (a) of Section 4.4.1, Site
Coverage, by deleting the figure "30" and replacing with the figure
"50".
5. Amend Section 4.6, Off-Street Parking and
Loading, by renumbering sections 4.6.2 and 4.6.3 to 4.6.3 and 4.6.4 respectively and
inserting the following new section 4.6.2:
6. Amend Section 4.7.1, Building Envelope, by
deleting clause (c) and replacing with the following new clause (c):
PROPOSED CONDITIONS OF APPROVAL
(a) That the proposed form of development be
approved by Council in principle, generally as prepared by Howard/Bingham/Hill Architects,
and stamped "Received City Planning Department, January 21, 1998", 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:
(i) design development to simplify and unify new
roof forms;
(ii) design development to the southeast corner
of the building to decrease its height and reduce its impact on the adjacent park and to
soften its transition to the adjacent landscape;
(iii) design development to the roof decks and
patios adjacent to the Reserve and the park to increase the landscaping at the edges, both
at the base of the walls and at the guards;
(iv) design development to the entrance to the
parking structure to improve its relationship to the patio and deck above;
(v) design development to take into consideration
the concepts of CPTED (Crime Prevention Through Environmental Design) having particular
regard for reducing opportunities for:
(A) theft in the underground. The underground
area should be gated during non-operating hours. Exit stairs from the underground should
be kept within the envelope of the building with the door flush with the wall;
(B) mischief in the stairs to and on the patio
deck. The stairs leading to the deck should be visibly open;
(C) graffiti on open walls. Graffiti is prevalent
and its removal is an expense to building owners. Opportunities can be mitigated by
reducing areas of exposed wall, by covering these walls with vines, hedges, lattice or
steel mesh or by using a protective coating material. [Contact Helen Chomolok, Graffiti
Coordinator at 873-7162 for further information and resources.]
Note to applicant: Clarification is needed
regarding the function of the exterior patio stairs. Will there be access to the
classrooms from the patio?
(vi) provide a detailed Landscape Plan
illustrating both common and botanical name, size and quantity of all proposed plant
material. Proposed plant material should be clearly illustrated on the Landscape Plan.
Specifically, planting proposed along east and west elevations of the gymnasium, and areas
to be landscaped along the west elevation of the Chapel;
(vii) provide a legal survey illustrating the
existing trees 20 cm caliper or greater on the development site and all existing
neighbouring trees 20 cm caliper or greater located within 2 m of the property line, and
an Arborist's report to minimize the impact of construction on adjacent trees in the
reserve area.
ADDITIONAL INFORMATION
Site, Surrounding Zoning and Development:
The .59 h (1.45 ac.), triangular-shaped site is located at the junction of S.E. Marine
Drive and Marine Way and is the westerly sub-area in the Champlain Heights South CD-1. The
CD-1 includes 5 sub-areas located between Marine Drive, Marine Way and Boundary Road and
specifies uses and regulations for each sub-area.
The site slopes down from north to south with a
change in elevation of approximately 10.0 m (33 ft.) on the east side of the
property. East of the site is the 1.2 h (2.9 ac.) Kinross Ravine Park which includes a
natural ravine and a trail connecting Marine Drive and Marine Way. Further east is the
remainder of the Champlain Heights South CD-1 which is developed with multiple dwellings,
most of which are townhouses. The church site is located south of Everett Crowley Nature
Park and the Champlain Heights neighbourhood. Immediately south, between the site and
Marine Way, is a 30.5 m (100 ft.) reserve area of mature tree growth. No development is
permitted in the reserve area which buffers all of the development in Champlain Heights
South from Marine Way. South of Marine Way is industrially-zoned land which includes uses
primarily related to the forest industry.
The Champlain Heights South CD-1 recognized the
demand for church land in Vancouver and included a site (sub-area 1) for this purpose. In
1991, the Fraser Lands Church obtained the City-owned property through a 99-year lease.
The Fraser Lands Church, which is associated with the Vancouver Chinese Alliance Church on
Fraser Street, was built in 1994 and occupies the northeast portion of the site. The
church has seating for over 700 people, although the current congregation is just over
300. The existing building also includes a small amount of space for offices,
multi-purpose rooms and a nursery. Surface parking for 73 vehicles is located on the site.
Proposed Development: The application
proposes a 2 085 m2 (22,445 sq. ft.) addition to the existing church [currently
1 467 m2 (15,790 sq. ft.)] to provide space for accessory uses to the church,
including a small chapel, offices, classrooms, a foyer and a gymnasium. The church
anticipates phased redevelopment, with the chapel and foyer being built first. The skylit
foyer would connect the old and the new buildings and would allow for natural light into
the sanctuary. The chapel would be built at the southwest corner of the existing building.
The remainder of the addition would be built as funding becomes available. The gymnasium
would be located in the lowest portion of the site to reduce its impact on the total
development. Seventy-one underground parking spaces would be provided under the addition.
The main floor structure over the parking would be extended westward outside theclassrooms
and chapel to create a patio deck with planters for usable outdoor open space.
Uses: The church has suggested that the
additional uses would be accessory to the existing church, and staff concur. Some of the
programming proposed in the new space includes: gym nights, coffee houses, Christian
education programs, boys and girls club and other children's activities, all of which will
be available to the community as well as church members.
The Director of Social Planning has requested
that Child Day Care Facility be included as a separate principal use to provide Fraser
Lands Church the future potential for this use and to avoid the need for another text
amendment. Child Day Care Facility is proposed as a principal use because it is considered
too significant to be considered an accessory use.
Social and Environmental Implications: The
proposed addition would further augment the existing community facilities. There are no
implications with respect to the Vancouver Children's Policy or Statement of Children's
Entitlements. The proposed rezoning neither contributes to nor detracts from the objective
of reducing atmospheric pollution.
COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES AND
THE APPLICANT
Public Input: A notification letter was
sent to 178 nearby property owners on July 4, 1997, and a rezoning information sign was
posted on the site on July 8, 1997. Four phone calls and 11 form letters were received
expressing concern about the traffic and parking impact of additional development on the
site.
The applicant held a Community Open House on June
7, 1997, prior to submission of the rezoning application. Of the approximately 200 people
who attended the Open House, 50 were non-church members. A Public Information Meeting held
at the church on November 25, 1997 was attended by approximately 10 local residents
and 50 church members, many of whom also live in the area. The principal issues raised
were the impacts of church traffic and parking; maintenance of the church site;
preservation of the reserve area; and additional programming to further utilize the
church's facilities.
Comments of the General Manager of Engineering
Services: "The General Manager of Engineering Services has no objection to the
proposed rezoning."
Social Planning Comments: "Include
provision for child care as a conditional use so that there is future potential for this
use and to avoid another amendment at a later date if the church or a society wants to
provide a child care service on this site."
Urban Design Panel Comment: The Urban
Design Panel reviewed this proposed rezoning on three occasions. At the first review on
July 16, 1997, the Panel was unable to support the application due to the following
specific concerns:
the integration of the addition with the
composition (geometry and form) of the original church;
the relationship of the height and scale of the
gymnasium to the adjacent ravine park;
the lack of usable outdoor open space.
At the second review on November 19, 1997, the
Panel acknowledged the improvements to the proposal but was still unable to support the
application due to remaining concerns about the integration of the addition with the
existing church.
At the third review on February 11, 1998, the Panel
reviewed the revised proposal and offered the following comments:
"The Panel considered the clarity of the
plan and general legibility of the organization to be significantly improved. The
application for rezoning was unanimously supported.
Several areas require major design development,
particularly the roof forms and articulation of the masses. The chapel and its
relationship to the main church entry is not quite resolved, and several Panel members
found the gymnasium roof forms overly complex and working against the integrity of the
church. There were no major problems raised about the proposed FSR and, with one
exception, no concerns about height.
The Panel had serious concerns about the
southeast corner and its relationship to the adjacent park. Several Panel members thought
it was "brutal" and needed serious reconsideration to find a more positive
solution. The workability of the parkade may need to be looked at again, which may result
in a softening of the corner. The entry to the underground parking and its relationship to
the plaza and chapel needs careful consideration.
A comment was made that it appears the gymnasium
cannot be constructed without destroying part of the reserve, and the relationship of the
reserve becomes critical with the reduced setback. At the development application stage it
will be important to provide results of a survey indicating the size and condition of the
trees to indicate whether or not it will be possible to build close to the reserve."
Comments of the Applicant: The applicant
has been provided with a copy of this report and has provided the following comments:
"We have reviewed with the Owner (Fraser
Lands Church) the Policy Report, dated March 31, 1998, and the Owner concurs with its
findings and recommendations."
APPENDIX F
APPLICANT, PROPERTY, AND
DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
| Street Address |
3330 S.E. Marine Drive |
| Legal Description |
Lot 190 except part
shown in explanatory plan LMP 6475, District Lot 330, Plan LMP 2011 |
| Applicant |
Howard/Binghom/Hill
Architects |
| Architect |
Howard/Binghom/Hill
Architects |
| Property Owner |
City of Vancouver
(Leased to Fraser Lands Church)
|
SITE STATISTICS
| |
GROSS |
DEDICATIONS |
NET |
| SITE AREA |
0.59
h (1.45 ac.) |
--- |
0.59
h (1.45 ac.) |
DEVELOPMENT STATISTICS
| |
PERMITTED
DEVELOPMENT
(Sub-area 1) |
PROPOSED
DEVELOPMENT
(Sub-area 1) |
RECOMMENDED
DEVELOPMENT (if different than proposed) |
| ZONING |
CD-1 |
CD-1
Text Amendment |
|
| USES |
Church,
Accessory Uses |
Church,
Accessory Uses |
Church,
Child Day Care Facility, Accessory Uses |
| MAX. FLOOR SPACE RATIO |
0.25 |
0.61 |
|
| MAXIMUM HEIGHT |
10.67 m
(35 ft.) |
15.0 m
(50 ft.) |
|
| SITE COVERAGE |
30%
building only
30-40% parking |
50%
building only
30% parking |
|
| PARKING SPACES |
73
(surface) |
63
(surface)
71 (underground)
134 total |
|
R:\CC\REPORTS\COUNCIL\1998\APR21\P1.
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