Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO: Vancouver City Council

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

SUBJECT: Proposed Rezoning - 6111 Cambie Street (St. John Ambulance)

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Council has considered the following initiatives related to the Oakridge/Langara study area, with dates of approval noted:

· Oakridge Langara Policy Statement (OLPS), approved July 25, 1995;
· Oakridge Langara Public Benefit Strategy, approved June 13, 1996;
· Oakridge Langara Traffic Management Plan, approved June 13, 1996; and
· Development Cost Levy By-law, adopted September 25, 1996.

The following policy from the OLPS applies to existing institutional uses in the area:

Increases in overall site density beyond the residential FSR outlined in Chapter 3 (‘Residential Location and Density’) may be considered in order to retain the institutional use, but only if the mixed-use proposal is shown to minimize impact on the community while providing city-desired public benefits in return.

On January 8, 1998, in considering an issues report on the OLPS Institutional Replacement Policy, Council clarified the policy as follows:

“That the OLPS Institutional FSR Replacement Policy be interpreted to allow only replacement of existing institutional floor space and no other substitution.”

PURPOSE AND SUMMARY

This report assesses a rezoning application to allow redevelopment of the site at 6111 Cambie Street with two buildings, six and four storeys in height, at 2.10 FSR, containing the following uses:

· a replacement facility for St. John Ambulance, presently occupying the site; and

· 56 dwelling units, with 51 two-bedroom units or larger and 5 one-bedroom units.

As the proposal is generally in keeping with the OLPS, staff recommend that the applicationbe referred to Public Hearing and be approved at 2.10 FSR, or at 1.86 FSR if the applicant is unwilling to provide the necessary public benefit.

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DISCUSSION

Site description, project description and other background information is contained in Appendix C.

Use: The Oakridge Langara Policy Statement (OLPS) supports the redevelopment of this site for multiple dwelling and encourages the retention of the existing institutional use.

Residential Density

Residential Density Proposed by Applicant: The applicant proposes 1.51 FSR in residential use in a mixed-use building totalling 2.10 FSR.

Basic Supportable Residential Density: The OLPS provides for the consideration of rezoning of this site for multiple dwellings up to 1.20 FSR ("could range from 1.0-1.2 FSR"). In accordance with the policy, a basic residential density of 1.20 FSR is supported by staff.

Supportable Marginal Increase to the Basic Residential Density: The OLPS provides for residential densities ranging marginally above or below the density targets, based upon the detailed design process and the extent that residential livability concerns, as well as other public objectives, are satisfied. The proposed marginal increase in residential density is from 1.2 FSR to 1.27 FSR, representing an increase of 0.07 FSR, or less than 5%. This increase is supported by staff, based on a design which is sympathetic with the existing neighbourhood and minimizes community impacts.

Supportable 20% Increase to the Basic Residential Density: The OLPS provides for a 20% increase in residential density in exchange for the provision of City desired public benefits in the form of Community Amenity Contributions (CACs) in cash or in kind to provide for amenities including daycare, park, community centre space or rental housing. With the 20% increase, the basic residential density rises to 1.44 FSR, plus the marginal increase of 0.07, for a total residential density of 1.51 FSR.

However, in accordance with the policy, staff do not support the 20% increase if the applicant is not willing to provide a public benefit (as indicated to staff). A separate report will outline the financial issues with respect to a CAC. Without the CAC, the residential density supported would be reduced to 1.27 FSR (a loss amounting to 0.24 FSR equal to the 20% increase).

Institutional Density

Institutional Density Proposed by the Applicant: The applicant proposes 0.59 FSR in institutional use.

Basic Supportable Institutional Density: The OLPS provides that for sites with existing institutions, increases in density may be considered in order to retain the existing institutional use, but only if the mixed-use proposal is shown to minimize impact on the community while providing city-desired public benefits in return. In accordance with the policy, a basicinstitutional density of 0.34 FSR, reflecting the size of the existing St. John facility, is supported by staff.

Further Increase in Institutional Density: The applicant proposes to construct extra fully below-grade floor area, resulting in a facility which is 73% larger than the existing St. John facility, to contain an emergency response centre, permanent storage and temporary storage/future classrooms. This would add another 0.24 FSR, for a total of 0.59 FSR (see Appendix C for a breakdown of these floor areas).

This extra institutional floor space generates no financial benefit to the developer, and would be permitted within the (unused) FSR provision for this use under the current CD-1 By-law. Staff reviewed the requested increase against Council’s resolution of January 8, 1998, in response to the Lubavitch Centre proposal, that clarified Council’s OLPS Institutional Replacement Policy. Staff concluded that the current proposal, on a site with CD-1 rezoning that already permits institutional use at a higher FSR than was built on this site, differs significantly from the Lubavitch Centre where a substitution to residential space was proposed. Given, also, that the proposed extra institutional floor space is fully below grade, this increase in density is therefore supported by staff.

Note: The CD-1 permits 0.635 FSR for institutional uses to be shared by the institutions within the CD-1 zone (see Appendix C). Two of the institutions (the Chinese Presbyterian Church and the Alliance Francaise) have already built to their maximum, but their remains unused FSR sufficient to accommodate the additional institutional space proposed both for the St. John’s site and the adjacent Peretz Institute site which is the subject of a separate but concurrent rezoning application.

With the provision of a public benefit, staff support a mixed-use development of 2.10 FSR, comprised of 1.51 FSR in residential use, and 0.59 FSR in institutional use. Without the provision of a public benefit, staff support a mixed-use development of 1.86 FSR.

CONCLUSION

Assessment of the rezoning application for the St. John Ambulance site indicates that theproposal is, subject to the provision of a public benefit, in keeping with the OLPS. Staff recommend that the application be referred to Public Hearing and be approved at 2.10 FSR including the provision of a CAC.

* * * * *

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APPENDIX A

DRAFT CD-1 BY-LAW PARAMETERS

A. FOR 6111 CAMBIE STREET (ST. JOHN AMBULANCE)

B. FOR EXISTING CD-1 BY-LAW NO. 3907 (#12)

APPENDIX B
Page 1 of 2

PROPOSED CONDITIONS OF APPROVAL

FOR 6111 CAMBIE STREET

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by Hancock Brückner Eng & Wright Partners, Architects and stamped "Received City Planning Department - May 4, 1998", provided the Director of Planning may allow minor changes to this form of development when approving the detailed scheme as outlined in (b) below; and

(b) THAT prior to the final approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning. In considering the development application, the Director will have regard for the following considerations:

Prior to enactment of the CD-1 by-law, the owner shall undertake the following, at no cost to the City:

(c) Make arrangements to the satisfaction of the General Manager of Engineering Services:

APPENDIX B
Page 2 of 2

(d) Execute an agreement, satisfactory to the Director of Legal Services and Manager of the Housing Centre, providing that occupancy or possession of dwelling units shall not be denied to families with children, with the exception of units that may be designated as senior citizens' housing*; and

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(e) Contribute $21,000 towards traffic calming measures along West 45th Avenue and Ash Street; and

(f) Pay to the City a Community Amenity Contribution to provide for City-desired public benefits in an amount to be determined by City Council in a separate report.

*NOTE: Senior citizens’ housing not presently part of proposal.

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ADDITIONAL INFORMATION

Site And Surrounding Development: The site is located on the south side of West 45th Avenue between Cambie and Oak Streets. It has a frontage along Cambie Street of 50.1 m (164.33 ft.) and a depth along West 45th Avenue of 85.4 m (280.14 ft.). The total site area is 4 370.6 m² (47,046 sq. ft.)

The St. John Ambulance site is part of a larger CD-1 District, approved in 1962, governing five institutional sites:

· St. John Ambulance, 6111 Cambie Street;
· the Chinese Presbyterian Church, at 6137 Cambie Street (initially occupied by the Y.W.C.A.);
· the Alliance Francaise de Vancouver, at 6161 Cambie Street;
· a portion of the Oakridge Regular Baptist Church, at 6261 Cambie Street; and
· the Vancouver Peretz Institute, at 6184 Ash Street.

This site is one of many created as part of the subdivision and rezoning of CPR holdings in the Oakridge/Langara area in the mid-1950s. Almost all development in the area, including the Oakridge Shopping Centre and many apartment buildings, were developed in the late-1950s or early-1960s.

To the west of the site, across Ash Street, is the site of the former Oakridge Vancouver Police Sub-station for which a rezoning to permit 95 dwelling units was enacted by Council on October 7, 1997 in accordance with the OLPS. The development is under construction. A rezoning application is currently in process for the Peretz Institute. North of the site, across West 45th Avenue, is the Oakridge Shopping Centre. The Policy Statement provides for residential development up to 18.3 to 24.4 m (60 to 80 ft.) in height on the south-east corner of the Shopping Centre site.

Lands immediately across Cambie Street to the east may be rezoned for multiple dwellings through privately-initiated applications, pursuant to the Policy Statement. A rezoning application for 6118-38 Cambie is in process. To the south of the CD-1 District, on both sides of Cambie Street, properties are zoned RT-1 and developed with two-family dwellings. Under the Policy Statement, these sites are defined as a “reserve sub-area”, where rezoning may be considered subject to the unanimous support of the property owners or if a decision occurs with respect to transit along Cambie Street.

Policy Statement: Table 1, below, outlines the possible density established in the Oakridge Langara Policy Statement (OLPS) for the St. John Ambulance site.

Table 1 Oakridge Langara FSR Parameters

FSR Component

Basis for FSR

1.0 to 1.2

To be achieved on the basis of "an acceptable form of development which is sympathetic with the existing neighbourhood, minimizes community impacts, and provides significant public benefits", as outlined in the Policy Statement.

0.24

Potential for up to a 20% increase for the provision of City-desired public benefits.

0.34

Increases in overall site density beyond the residential FSR outlined in Chapter 3 may be considered in order to retain the institutional use, but only if the mixed-use proposal is shown to minimize impact on the community while providing City-desired public benefits in return for existing institution.

Total: 1.78 FSR

Maximum achievable (St. John Ambulance site)

Background to Revised Application: This application was submitted in January 1996. A report was prepared and submitted to the City Clerk for Council’s consideration on December 10, 1996, in conjunction with the rezoning application for 620 West 45th Avenue (former Oakridge Vancouver Police Sub-station). It was intended that the two applications would proceed to the same Public Hearing in January 1997.

A letter was received on December 10, 1997 from the applicant requesting that the report not be considered by Council on that day. The application for 620 West 45th Avenue proceeded to a Public Hearing on January 16, 1997 and was approved.

Staff have met periodically with Greystone representatives. Revised sketch plans were received in early June of 1997. Further meetings were held between staff and the applicant, the result being submission of a revised application on May 4, 1998. Table 2, on the following page, shows the differences between the January 1996 application and the current revised submission.

Table 2

Component

January 1996
Proposal

May 1998
Proposal

St. John Ambulance
Floor Space Ratio (FSR)

0.34

0.59
(0.25 fully below grade)

Residential FSR

1.87

1.51

Total FSR

2.21

2.10

Height

8 storeys and
4 storeys

6 storeys and
4 storeys

Proposed Development: The proposed density is 2.10, with the following components:

· 2 573.33 m² (27,700 sq. ft.) for St. John Ambulance facility (0.59 FSR).

Description

FSR

Floor Area

ERC

0.04

193.70 m² (2,085 sq. ft.)

Permanent Storage

0.09

392.97 m² (4,230 sq. ft.)

Temporary Storage/Future Classrooms

0.11

490.98 m² (5,285 sq. ft.)

Total Increase

0.24

1 077.65 m² (11,600 sq. ft.)

· 6 600 m² (71,040 sq. ft.) for 56 dwelling units (1.51 FSR). Intended are 51 units two-bedroom or larger, and 5 one-bedroom units.

Total floor space is 9 178.5 m² (98,800 sq. ft.). Two building components are proposed. The St. John Ambulance will occupy two floors of a six storey building fronting Cambie Street, 21.5 m (70.5 ft.) in height, with dwelling units completing the remainder of the building. Afour-storey multiple dwelling will face onto Ash Street, 15.24 m (50 ft.) in height. Parking for 134 cars is to be provided underground, with access from the lane.

Details of the proposed development are shown in Appendix D.

Planning staff propose separating the St. John site from its existing CD-1 which governs five sites in total by creating a new CD-1 for this site while amending the existing CD-1 to delete references to this site. This is an opportunity to begin providing each of the respective sites with individual regulations; however, each site will be dealt with as rezoning is initiated for each one.

Public Benefit Contributions: This site will be subject to the Oakridge Development Cost Levy (DCL) established by Council on June 13, 1996 ($34.98 /m² or $3.25/sq. ft.). The applicant initially proposed the inclusion of a community office; however discussion with City Departments and the Park Board indicates no identified need for such space. Some individuals within the community have expressed interest in Crime Prevention Office (CPO) or a "neighbourhood meeting place".

In considering the need for community office or a CPO, staff undertook a thorough inventory of existing facilities in the community early in 1996 as part of the Public Benefit Strategy and concluded that neither is needed. Some individuals have indicated that the relocation of the Oakridge Vancouver Police Sub-station has led to less security because police are no longer in the neighbourhood with the equivalent frequency and that the previous Police presence needs to be re-established. The Police Department notes that, relative to other areas, Oakridge/Langara has one of the lowest crime rates in the city.

With respect to a "neighbourhood meeting place", City staff believe that there are sufficient existing facilities owned both by the City and privately, and that funds should be spent on other amenities to meet higher priorities identified as part of the Public Benefits Strategy that was developed with broad community input and support. In particular, recreation needs in parks and walking pathways in the community are listed as a high priority.

A separate "in camera" report will address the matter of community amenity contributions(CACs) which will accrue to this rezoning proposal.

APPENDIX D

FORM OF DEVELOPMENT

FOR 6111 CAMBIE STREET

PUBLIC AND OTHER INPUT

Public Input: Rezoning notification signs were posted on site on February 19, 1996. On March 12, 1996, 366 early notification letters were sent to surrounding property owners.

Two letters, one unsigned, have been received to date, objecting to the rezoning. The first suggests that St. John Ambulance be relocated elsewhere and that generally the author is dissatisfied with the Oakridge Langara process and the rezoning. The second letter requests that the building’s height be reduced, with four to six storeys suggested (now proposed).

On February 27, 1996, the applicant sponsored an open house which was attended by approximately 100 people. All were supportive of St. John Ambulance continuing to exist on site. Many people were interested in the possible purchase of units. A small number of individuals were unhappy with both the density and the height.

As the revised proposal calls for a reduction in height and FSR, no further notification was carried out.

Engineering Department: The Engineering Department has no objections to the proposed text amendment provided the following issues are addressed prior to by-law enactment:

· arrangements to the satisfaction of the General Manager of Engineering Services for removal/relocation of the existing wood pole in the lane, and corresponding easement on Lot 1, which affects access to the parking and loading;

· arrangements to the satisfaction of the General Manger of Engineering Services for provision of concrete sidewalk on the east of Ash Street from West 45th Avenue, south, to the south property line of the site;

· parking requirement is to be as per the RM-4 standard of the Vancouver Parking By-law and institutional parking requirement is to be as per the Vancouver Parking By-law; and

· undergrounding of all services for this site is to be from the closest existing suitable pole.

Permits and Licenses: Permits and Licenses has undertaken an historical check of land uses on this site and indicated no soils assessment is required.

Fire Services: Building must comply with hi-rise requirements. Separate addresses required to all principal entrances. Drawing is not dimensioned. The distance from curb to principal entrance must be less than 15 m (49 ft.). New hydrant may be required. Subject to meeting above requirements at the development application stage, project is supportable.

Social Planning: Public art contributions apply to rezoning of 15 000 m² (161,463 sq. ft.) or greater. The above rezoning is smaller in aggregate than this area and a contribution is not required.

Health: The City's acoustical criteria shall form part of the Zoning By-law, and an Acoustical Consultant's report shall be required to assess noise impacts on the site and recommend noise mitigating measures.

The Noise Control By-law does not require amendment.

CPTED: This development is located on a major arterial street, close to Oakridge Mall. The mall has the dubious distinction of having the highest theft from and theft of auto rate in Vancouver. It also generates robberies (purse-snatching, as well as retail armed robberies) thefts and mischiefs. Although crime in the surrounding neighbourhood is low, the proposed residential units and the St. John Ambulance Institution border natural pathways to the Oakridge and will be tested by the users. With this in mind, the following CPTED remarks are submitted.

Design development to take into consideration the principles of CPTED (Crime Prevention Through Environmental Design) with particular regard to reducing opportunities for:

Break and Enter:

(a) Full resolution of exit stairs from the underground for differing user groups must be implemented. Institution users should exit directly outside, not into the residential building.

(b) Semi-private open space should be secured from access by non-residents while remaining visually open. (Note to Planner: the architectural plan indicates a pathway from the lane to the common area, landscape plans show no lane access to this area.)

(c) Residential access to the St. John Ambulance’s exit stairs on the second level is not supported.

(Note to Applicant: The use of the underground parking entrance ramp is a natural barrier to a potential cut-through pathway is considered positive.)

Theft in the Underground: Theft from and of auto has the potential for being a serious problem due to the proximity of the Oakridge Mall. Full separation of user groups including gating, stairs and elevators should be implemented and consideration given to gating the St. John Ambulance parking after hours. The stairs accessing the terrace from Cambie Street and the underground ramp create an unacceptable pathway which interacts with potential crime sites, i.e., bicycle storage and unsecured underground parking.

Reducing fear in the underground by improving security and visibility in the underground in accordance with section 4.12 of the Parking By-law and consideration to painting the walls white.

Graffiti: Vancouver is regarded as a graffiti mecca by “practitioners” across Canada. It’s removal is an expense to building owners and strata councils. Opportunities for graffiti 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 resource.

Skateboarding on Open Spaces: In certain circumstances, skateboarding can become a nuisance for residents and legitimate users. This problem can be mitigated with the use of non-smooth paving material and planting walls that step or have reveals cast into concrete planter sitting edges.

(Note to Planner: The town home in building “A” has no interior entrance.)

Urban Design Panel (Minutes of Meeting of February 28, 1996):

“Evaluation: Support (10 - 0)

Introduction: The Rezoning Planner, Rob Whitlock, presented this application for a Text Amendment to the existing CD-1 on the site which was part of the original rezoning for the area. The proposal, a joint venture project between St. John Ambulance and Greystone Properties, is for a new 2-storey facility for St. John Ambulance (along Cambie Street) with six floors of residential above, plus a 4-storey residential component along Ash Street, fora total of 67 residential units. Proposed density is 2.21 FSR and the height ranges from 60-80 ft. on Cambie Street and 40 ft. on Ash Street. The project also includes an 1,800 sq. ft. community space at grade.

Noting the prevailing policy statement provides for the crafting of an FSR in the order of 1.85, the areas of concern identified by staff relate to the implications on the massing of the requested 2.21 FSR. In addition to overall comments, the advice of the Panel is sought on the bulkiness of the West 45th Avenue frontage, whether the massing on the lane to the south should be broken down, and shadow impact on West 45th Avenue.

Applicant's Opening Comments: Allan Gjernes, Greystone Properties, provided some background to the proposal and Wally Pierce explained St. John Ambulance involvement in the project. Martin Brückner, Architect, described the design rationale and Randal Sharp reviewed the landscape plan.

Urban Design Panel's Comments: After reviewing the model and posted drawings, the Panel commented as follows:

“The Panel unanimously supported this application.

The Panel strongly supported the proposed use and thought the project would be beneficial to the community. The Panel also considered the general massing to be appropriate in this location, although a lot of refinement will be necessary at the next stage of development. Some Panel members suggested the massing could be higher on Cambie Street.

The concerns expressed by the Panel related to the form of development, mainly that the proposal looks like two separate projects. There needs to be much better integration between the commercial and residential uses, and the principles of view and sun should be addressed as design development proceeds. A comment was made that while the West 45th Avenue and Ash facades seem appropriate they do not yet read as townhouses. A stronger residential expression is needed.

A recommendation was made by one Panel member that if it is decided to have enclosed balconies on the Cambie Street side, then this should be taken into account in the early stages of the exterior design.

With respect to materials and finishes, it was recommended the project reflect what is in thearea, especially on Cambie Street. There was a strong recommendation for the use of brick on facade, including at the higher levels of the building.

Separating the buildings at the lane was not seen to be an issue. It was noted the parking lot site across the street (Oakridge Shopping Centre site) will likely be ultimately redeveloped up to 80 ft.

With respect to landscaping, concerns were expressed about the ramp and it was recommended this be reworked on at the next stage. The courtyard should be maximized. One Panel member questioned whether the visual connection with the park will work, suggesting it might be better to internalize the courtyard.”

Applicant’s Comments:

“The applicants, St. John Ambulance and Greystone Properties concur with the recommendations put forward by the Planning Staff in the Policy Report dated July 15, 1998. The proposed development will facilitate St. John Ambulance in continuing to provide their valuable training and services to the overall Vancouver community.

We look forward to City Council’s referral of our application to a Public Hearing in September 1998.”

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

6111 Cambie Street

Legal Description

Lot 1, Sub. B, Block 1008, D.L. 526, Plan 10803

Applicant

Greystone Properties Ltd.

Architect

Hancock Brückner Eng and Wright Architects

Property Owner

St. John Ambulance

Developer

Greystone Properties Ltd.

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

4 371 m²
(47,051 sq. ft.)

-

4 371 m²
(47,051 sq. ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED
DEVELOPMENT

ZONING

CD-1 (#12) (4 Sites)

New CD-1

USES

Accessory uses: Child Day Care Facility; Church; Institutional Use of Religious, Philanthropic or Charitable Character; Parking Area Ancillary to a principle use on an adjacent site

Institutional Use of Philanthropic or Charitable character, including St. John Ambulance; Dwelling Units; Child Day Care

DWELLING UNITS

Not Permitted

56 units

MAX. FLOOR SPACE RATIO

0.635

2.10

MAXIMUM HEIGHT

9.1 m (30 ft.)

24.4 m (80 ft.)

MAX. NO. OF STOREYS

Not specified

6 Storeys east half,
4 Storeys west half

PARKING SPACES

As Existing

134

* * * *

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