POLICY REPORT
URBAN STRUCTURE

Date: July 14, 1998

Author/Local: R.Jenkins\7082

CC File No. 6007

TO:	Standing Committee on Planning and Environment
FROM:	Director of Central Area Planning, in consultation with the General Manager of Engineering Services and Director of Community Services, Social Planning
SUBJECT:	New Trade and Convention Facilities Review Program: Portside Development Agreement Application - Issues and Current Status

RECOMMENDATION

A. THAT, in order to achieve hotel tower massing that will improve the urban design and views to the north through the Portside site, Council is prepared to consider a maximum height of 350' and a slight intrusion of this tower into the edge of the `Science World to Lions' View Cone.

B. THAT the applicant's request for a reduced standard for childcare not be supported and that, consistent with the approved Central Waterfront Port Lands Policy Statement, the application comply with the City's standard childcare requirements.

C. THAT a pedestrian overpass at the foot of Cambie Street not be required as part of the Portside application but that alternative pedestrian access across the CP Railyards be addressed by the applicant.

GENERAL MANAGERS' COMMENTS

The General Managers of Community Services and Engineering Services RECOMMEND approval of A, B and C.

COUNCIL POLICY

· Central Waterfront Port Lands planning and approval process (1992);
· Central Waterfront Port Lands Policy Statement (1994);
· In Stage One (1996) of the New Trade and Convention Facilities Review Program Council endorsed the three site proponents proceeding to Stage Two with conditions for evaluation of Stage Two proposals;
· In Stage Two (1997), Council endorsed submission to the Province of the City staff's evaluation of Greystone's Stage Two proposal including conditions to be addressed in Stage Three;
· Central Area Plan (1991); and
· Views Policy (1989 with subsequent amendments).

PURPOSE

This report summarizes the Portside Development Agreement application submission, requests Council's consideration of three policy issues and highlights other aspects of the application review.

BACKGROUND

In November 1997, the Province announced the selection of Greystone Properties as the `preferred' proponent to proceed to Stage Three of the New Trade and Convention Facilities Review Program. Preliminary scoping occurred early in 1998 and on April 30 Council approved a budget and resources to undertake the City component of the application review.

On May 17, Greystone submitted to the City and the Port of Vancouver an application for a Development Agreement, the equivalent of a rezoning application on Port of Vancouver lands. A companion application, the equivalent of an Official Development Plan (ODP) for the East Lands of the Central Waterfront Port Lands, was also anticipated but was not submitted. Greystone has delayed submission until later this year or early in 1999.

Initial staff review and public consultation has occurred and is summarized in this report.

DESCRIPTION OF THE APPLICATION
(Map and Development Statistics - Appendix A)

The application is on Port land, directly east of Canada Place and also includes a proposed extension of the Canada Place pier. Proposed new development includes:

- trade and convention facilities - 39 240 m² (422, 390 sq.ft.);
- 3rd cruise ship berth - 3 480 m² (37 460 sq.ft.);
- 1000-room hotel - 75 200 m² (809 475 sq.ft.);
- Canada Place Way commercial/retail building - 12 800 m² (137,780 sq.ft.);
- other commercial/retail space - 11 220 m² (120,775 sq.ft.);
- relocated SeaBus terminal;
- phase two 500-room hotel/office building - 37 200 m² (400,430 sq.ft.);
- plaza - 1.56 hectares (3.85 acres);
- other open space/walkways - .85 hectares (2.1 acres);
- related parking, infrastructure and servicing; and
- new street connecting Canada Place Way to Cordova Street over the CP tracks (Cordova connector).

(Note: gross floor area and site area statistics are quoted as stated in the application
submission - these will be confirmed through the staff review.)

Principal changes to the development proposal from earlier Stage One and Two submissions include:

- a reduction in hotel height from 375 ft. (Stage One) and 450 ft. (Stage Two) to 350 ft., consistent with Council's expressed preference;
- a decrease in area and reconfiguration of the exhibition hall footprint;
- an increase in the amount of retail/commercial space in the Canada Place Way building and surrounding the Plaza from approximately 75,000 sq.ft. to 150,000 sq.ft.;
- a decrease in the Plaza area of approximately one third;
- a phase two hotel/office building; and
- the earlier Stage Two pier extension included the use `entertainment facility' (80,000 sq.ft.). This is now described as `pier commercial' (88,000 sq.ft.).

The equivalent of a development application review will take place with respect to the retrofit of the existing Canada Place structure.

Greystone is currently undertaking geotechnical and environmental testing of the site and has applied to the Port, City and BC Transit for temporary relocation of the SeaBus pedestrian link and terminal. A City building permit application is being reviewed for life and fire safety.

While Greystone has delayed submission of an application for the East Lands, they have submitted preliminary site context drawings and thematic concept materials for the East Lands which will assist in the City's review of the Portside application and provide preliminary information leading up to an amendment to the development agreement which would address the East Lands.

DISCUSSION

In the initial staff review it has been found that most aspects of the proposal are consistent with City policy. However, three policy issues have been identified for which Council advice at this early stage is required. Other aspects of the application review are summarized for Council's information.

Tower Height and Massing - `Science World to Lions' View Cone

The Central Waterfront Port Lands Policy Statement provides for a single landmark tower of maximum height of 300 ft. In response to the applicant's Stage  Two submission incorporating a 450 ft. high hotel tower, Council emphasized the need for adherence to the Policy Statement although indicating it would consider up to 350 ft. in height if advantages could be demonstrated. The Stage Two conditions, in addition to a height reduction and minimization of tower width, called for the hotel tower to be shifted east so as not to block the Seymour street-end view and to open up grade level views for Gastown along the proposed Cordova Connector.

The current submission has shifted the hotel tower east, as called for, and lowered the tower to 350 ft. to more closely comply with the Policy Statement maximum height while maintaining the hotelier's program requirement for 1000 hotel rooms. This has resulted in a relatively slim 350 ft. high main tower element with a 240 ft. high "wing" extending eastwards from the main tower to form an "L"-shaped footprint up to this height. It is noted that apart from the City's height maximums, the applicant advises the hotelier's program does not support a building higher than 350 feet.

Staff support the 350 ft. height. However, further massing adjustments are needed to diminish the width of the "wing" which is generating an overall building width of 180 ft. ± and blocking an excessive amount of near views through the site from the downtown and Gastown. Typical hotel tower widths are in the range of 85-120 ft. albeit for towers containing 300-600 hotel rooms. Staff and Greystone have investigated a redistribution of tower mass from the "wing" to the main tower element which maintains the desired 1000 hotel room program. This redistribution would diminish overall tower width in the order of 20-30 ft. but would necessitate a slight reduction of the `Science World to Lions' View Cone as illustrated in Appendix B . Staff believe this degree of view corridor reduction will not compromise its overall quality and is a worthwhile trade-off for the resulting expansion of near views.

While the Seymour street-end view is a unique view of the mountains over the CP Station Building, it is not a view which was specifically identified in the Port Lands Policy Statement (likely because lower elevation views of the water are obstructed by the Station). Further, while the `Science World to Lions' View Cone was included in the late 1980s North Park Area Development Plan and the Council-approved 1991 International Village CD-1 Guidelines - due to an oversight it was omitted from the 1994 City and Port approved Central Waterfront Port Lands Policy Statement. While not protected by the Port Lands Policy Statement, staff continue to seek substantial compliance with these views. The current application and recommended adjustments respect these views.

Staff therefore recommend Council confirm it is prepared to consider the proposed 350 ft. hotel tower height and indicate it is prepared to consider a slight intrusion into the edge of the `Science World to Lions' View Cone to allow the flexibility needed in refining tower massing to improve near views through the site.

Childcare Policy

The Central Waterfront Port Lands Policy Statement (Section 7.4) calls for childcare to be provided to City standards based on the needs of commercial and residential populations. It also calls for the delivery of community facilities concurrently with each phase of development to meet the demands of that phase (Section 7.3). The City standard for commercial, retail and hotel development is 1 childcare space per 23,400 square feet of revenue generating floor area. This standard has been applied consistently in hotel rezonings including Bayshore, Coal Harbour - Marathon, False Creek North and Bentall V and was identified in the New Trade and Convention Facilities, Stage Two - City's Site and Community Context Evaluation.

In recognition of the unique nature of uses such as convention facilities and the cruise ship terminal (i.e., extraordinarily large assembly areas) a lesser standard was identified by staff for these areas of '1 childcare space per 100 employees'.

Greystone's application seeks to apply this lesser standard to other components of their application, not just the unusual uses. This results in a significant difference in the total number of childcare spaces calculated. City staff estimate that application of City childcare standards results in the requirement for about 56 spaces for the Portside development (phases one and two), subject to confirmation of applicable floor area. Greystone's preliminary application assessed a demand for only 10 spaces of childcare related to the phase one component.

In subsequent discussions, Greystone proposed revised estimates of 21-33 spaces with inclusion of phase two and in recognition of the City's standard for commercial and retail development, but they continue to argue that the hotel should be assessed at the lesser City standard associated with "unusual use" because of a relatively low employee to floor area ratio. Further review by staff indicates that the existing City standard of 1 childcare space per 23,400 square feet is appropriate albeit conservative, noting that hotel employees have a relatively high need for childcare services. (Research indicates that if the City switched to an employee-based childcare space calculation for hotels, at least 5 spaces per 100 employees would be required.)

Greystone also wishes to explore pay-in-lieu and/or off-site solutions to the provision of childcare, noting the difficulties in locating a facility on-site. Staff have advised that childcare needs will be high from the outset and to be useful to the employees of the development should be located near the facility, which is also close to transit. Staff will continue to explore these aspects with Greystone.

Finally, Greystone notes that the hotel operator, Marriott, has a good track record with childcare and will be the operator of the childcare facilities. Marriott has concerns with the lack of flexibility of the application of the City's childcare space standards. Staff have no objections to Marriott operating the childcare facilities and support creative alternatives provided they match or exceed City standards.

Staff therefore recommend that the applicant's request for a reduced standard not be supported and that, consistent with the approved Central Waterfront Port Lands Policy Statement, the application comply with the City's standard childcare requirements interpreted in a way that remains consistent with other major rezoning projects.

Cambie Street Pedestrian Overpass

The Central Waterfront Port Lands Policy Statement (Section 2.9) notes that the CP railyards are expected to stay for the foreseeable future. Development of the Port Lands must deal with the barrier of the railyards. Section 8.0 of the Policy Statement notes that in order to ensure adequate access for all modes across the CP railyards, a number of pedestrian and vehicular links are proposed - one near the foot of Cambie Street.

In 1995, the City negotiated, as part of a subdivision application (Lot 7), rights to access the lands beyond Lot 7. The rights obtained by the City are in the form of options to purchase, at a nominal cost, so the viaduct structures can be constructed across the CP railyard and above portions of the Port roadway. The options contain some restrictions, as we must not interfere with the operation of the CP railyard facilities which service the Port Lands. The key restriction, which applies to Cambie Street, is that support columns for any overhead structure cannot be located within the railyard. This means spanning over 120 meters for any overpass, which is not practical. Construction of an overpass on this alignment would only be possible when CP Rail declare portions of the railyard surplus to their needs. This is not likely to happen at any time soon.

The importance of the railyard was recognized during negotiations and Marathon and CP Rail recognized also the City's wish for additional access rights. Therefore, it was agreed to go beyond the subdivision and access rights were obtained at Carrall Street, where the span over the tracks is less and it is feasible to construct a pedestrian link to the Port Lands.

In addition, staff will be pursuing with the land owners affected by the exercise of the Cordova extension option to purchase, the expansion of the option area to enhance pedestrian access across the viaduct. Staff will report in September on the exercising of options affecting access to the Port Lands.

A traffic study is being undertaken also, which will identify all access needs of the development in time for inclusion in the final project review.

Update on Application Review

Staff are currently undertaking the initial technical review of the application. Appendix C provides a summary of those areas where technical aspects are being addressed and/or where the applicant has been asked to provide more information. These areas include transportation, infrastructure, emergency response, urban design, security of public benefits and guarantees for facilities of general public interest.

Public Consultation

Appendix D provides a summary of the public consultation process and messages from the consultation to date.

Two well-attended open house/public meetings have been held and issue-specific focus group meetings are currently underway. Comments and concerns raised relate to: impacts on low-income housing, employment opportunities, impacts on Crab Park, traffic and parking impacts, urban design, including scale of buildings, and relationship to Gastown, retail impacts and plaza design.

Additional messages will be received and recorded as the focus group meetings and other consultation proceeds. Staff will consider public comments in their assessment of the principles and public consultation messages will be forwarded to Council as the application review process proceeds.

Urban Design Panel

On July 7, 1998 the application was reviewed by the Urban Design Panel. The Panel voted in support of the proposal, with comments. A summary of Panel members' comments is provided in Appendix E.

APPLICANT'S COMMENTS

Letter from Applicant dated July 13, 1998, attached as Appendix F.

CONCLUSION

In the early stages of the review of the Portside Development Agreement application, three policy issues have been identified for Council consideration. These issues relate to tower massing, provision of childcare and pedestrian access across the CP railyards. There is considerable additional staff review to be undertaken and in a number of areas additional material and analysis is required from Greystone. It is anticipated Greystone will consider revisions to the application through August and, if revised, resubmit in September.

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APPENDIX C
Page 1 of 2

Update on Application Review

In addition to the three policy issues addressed in the main report, the following areas are those where technical aspects are being addressed and/or where the applicant has been asked to provide more information, in order that application review can be completed.

Transportation

- more information required on magnitude and mitigation of traffic impacts on nearby communities, including street geometric, signalization, and curb use modifications;
- ensure new viaducts include necessary infrastructure to accommodate heritage streetcar railway, if a Cordova connector - Canada Place Way route is chosen;
- construction and phasing plans - more information is required to ensure traffic, parking and other impacts can be satisfactorily addressed;
- improve connection between upper and lower road at eastern end of the site, including provision for emergency vehicles, buses, delivery and private vehicles, bicycles and pedestrians;
- review width of proposed Cordova connector, and increase the width if necessary to ensure adequate capacity for pedestrians, bicycles and vehicles;
- goods and passenger servicing - adequacy of bus and taxi parking and loading;
- management of Canada Place 10,000 level (2nd level) motor court and acceptance of overall loading facilities by cruiseship terminal;
- provision of adequate parking and alternative to parallel access parking ramps on the south side of Canada Place Way;
- ease of pedestrian and disabled access throughout the site;
- design development of recreational and commuter bicycle routes;
- traffic management plans for special events;
- further design development of the SeaBus link; and
- design issues (safety, function, access) associated with the parking facility.

Infrastructure

- basic utility infrastructure (e.g. sewer and water ) information is required.

APPENDIX C
Page 2 of 2

Emergency Response Plan

- related to traffic management issues above;
- usable emergency access to the water's edge;
- emergency access/egress from the exhibition hall to the north and south; and
- planning for special events, construction and phasing, filming, traffic accidents.

Other Urban Design Aspects

- design development of the plaza (thematic approaches only submitted to date);
- massing of Canada Place Way retail/commercial building;
- massing of phase two tower and separation from phase one hotel;
- relationship of eastern edge of proposal with future East Lands;
- pedestrian views from Gastown and the proposed Cordova connector through the plaza;
- Canada Place extension program and design;
- treatment of the south side of Canada Place Way (Granville 200 frontage); and
- complete a wind study to mitigate potential downdrafts on open spaces.

Security of Public Benefits

- clarity and confirmation of delivery of public benefits consistent with the Public Benefits Agreement;
- further clarity on the public art plan.

Guarantees for Facilities of General Public Interest

- plaza public access, maintenance, security and programming.

Other Areas

- retail impact assessment to be completed;
- more information is required in the areas of subdivision, geotechnical and 'downstream' related process scoping including building permits;
- more clarity on employment and training program; and
- assessment of dangerous goods on adjacent rail lands (to be coordinated by City staff).

APPENDIX D
Page 1 of 3

Public Consultation

Consistent with the public consultation process outlined in the April 30 report to Council (and illustrated on page 3), staff have proceeded with the initial steps. This included a preliminary meeting with community and business group leaders (June 11, attended by 30 representatives) and two large open houses and public meetings - the first was held at the Carnegie Centre on June 17 with an attendance of 150. The second was held at SFU Harbour Centre on July 2 with an attendance of 250.

Focus group meetings on specific issue areas are now proceeding in the areas of urban design (including relationship to Gastown) and plaza design, transportation, housing, employment, retail/commercial impacts, East Lands and other areas as they are identified.

Staff are also preparing an updated 'New Trade and Convention Facilities Review Program' Backgrounder which will be placed on the City's Web site and the Faxback line. This will encourage individual responses together with the 'comments sheets' provided at the open
houses / public meetings.

Staff have also attended two community group meetings - the Gastown Historic Area Planning Committee and Heritage Vancouver. A record will be kept of all public consultation and will be available to Council through the application review process.

The main messages from the two open houses and public meetings have been:

Downtown Eastside Impacts: Concerns were raised regarding negative impact of the project on the community and specifically concern about the amount of funds directed to address low income housing impacts - that the $5.366 million (1994 $, adjusted for inflation) approved in the Central Waterfront Port Lands Policy Statement (Public Benefits Agreement) which is earmarked for off-site social housing/and or recreational facilities is not considered to be enough. Also, that Downtown Housing Plan measures be adopted before the Greystone project goes ahead. Concerns raised regarding the type and number of jobs and job training opportunities directed to the community. Some support for the project, including employment opportunities. Concerns raised regarding loss of community access to Portside Park and handling of dangerous goods in the railyards.

APPENDIX D
Page 2 of 3

Gastown Impacts: Concerns were raised about traffic and parking impacts in Gastown. Concerns raised regarding the integration of the development with the surrounding community including the gap created by the railyards, the increased distance to the waterfront, the scale of development in relation to Gastown and view blockage through the site. Concerns also raised about the amount of retail proposed and the impact on surrounding
retail. Some support for the project, noting if it was handled well it could be a benefit to the surrounding community.

Other Issues: There was concern about the large scale and use of the plaza. Concern raised regarding increased distance to the relocated SeaBus terminal. Worry that the project might include a casino.

APPENDIX E
Page 1 of 1

Urban Design Panel

On July 7, 1998, the project was reviewed by the Urban Design Panel. The Panel voted in support of the application with comments summarized as follows:

· this project will be instrumental in defining the Central Waterfront;
· hotel "wing" massing should be redistributed to improve views through the site and better define the plaza;
· the Phase II tower needs to better respond to Gastown;
· eastern edge of project is important as it faces the East Lands;
· plaza needs strong `edge' elements to define the space and also to animate - continuous weather protection should be considered;
· further consider the relationship between port cochere and lobby entrance to trade and convention centre;
· support water elements and `grand plaza' concept, provided the space can be adaptable for large audiences and entertainment events. Plaza needs to attract people during inclement weather;
· lack of support for floating walkway -- ill defined -- consider integrating with pre-function areas;
· need to resolve pedestrian/bicycle access between upper and lower levels at the water's edge;
· need to integrate Granville Square with the plaza. Need stronger visual link to and from Granville Square;
· concern about the Canada Place extension "pinching" views from the plaza and lack of clarity on the program and design of the extension.

The complete minutes of this meeting are being prepared and will be available through the City Clerk's Office when completed.

ATTACHMENTS TO THIS DOCUMENT THAT DO NOT HAVE ELECTRONIC COPY ARE AVAILABLE ON FILE IN THE CITY CLERK'S OFFICE

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(c) 1998 City of Vancouver