POLICY REPORT
DEVELOPMENT AND BUILDING

Date: June 19, 1998
Author/Local: RWhitlock/7814
CC File No. 5308

TO: Vancouver City Council

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

SUBJECT: CD-1 Text Amendment - 1925 West 33rd Avenue (Arbutus Gardens)

RECOMMENDATION

THAT the application by John Northey of Arbutus Holdings Ltd. to amend the text of CD-1 By-law No. 4037 for 1925 West 33rd Arbutus Street (Arbutus Gardens) (Block 77, DL 526, Plan 11305, NWD) to allow the number of dwelling units to be increased from 302 to 750, be referred to a Public Hearing, together with:

(i) plans received January 30, 1998;

(ii) draft CD-1 By-law amendments, generally as contained in Appendix A; and

(iii) the recommendation of the Director 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 text amendments for consideration at Public Hearing .

GENERAL MANAGER'S COMMENTS

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

COUNCIL POLICY

Rezoning Policy - Before and During CityPlan Neighbourhood Visioning, adopted by City Council January 18, 1996.

At the Mayor’s Housing Symposium of May 8, 1989, Council approved the following community development objectives for Vancouver:

- facilitate the provision of a wide range of housing forms and shelter costs to meet the housing needs of existing and future Vancouver residents of all backgrounds and lifestyles; and

- encourage the distribution of acceptable housing forms and affordable shelter costs equally among all residential neighbourhoods of Vancouver, rather than concentrating them in a few areas.

Also in 1989, Council established Rate of Change Guidelines for rental housing to assess the potential loss of existing stock. When and where the rate of demolitions or conversions in a neighbourhood would, if approved, exceed 2%, Council is able to seek mitigation.

On June 6, 1995, when setting CityPlan directions, Council approved the following policies to address housing costs:

- use incentives to encourage the private sector to provide lower cost housing, or require a percentage of new units to be more affordable;

- maintain a stock of rental housing; and

- support actions to increase the housing supply, helping to minimize price increases due to scarcity.

PURPOSE AND SUMMARY

This report assesses an application to amend the existing CD-1 zoning of Arbutus Gardens, allowing redevelopment of the existing 302 rental dwelling units with 750 dwelling units. The overall site plan calls for retention of a high percentage of existing landscape, building heights between two and nine storeys, and all parking to be underground.

Staff recommend that the application be referred to Public Hearing and approved.

map

DISCUSSION

Responses from Neighbouring Residents: Details of the nature and extent of community response is outlined in Appendix F of this report.

Supporters of the project like the architecture and believe the development will add to the community. The desire of a number of people to sell existing single family dwellings in the area in order to buy a new condominium in the same area was noticeable among supporters of the project.

Limited opposition had been expressed through the process, with a moderate influx of letters received following the two open houses in mid-April. On May 19th, staff received a petition of 133 signatures representing 124 properties opposing the application. Concerns are as follows (with staff response following in italics):

1. Precedent: The density and height will serve as a precedent for rezoning of other similar sites in the area.

Staff believe that each of the six CD-1-zoned sites in this area should be assessed on their individual characteristics, and that staff support for, and Council approval of a redevelopment proposal on one site in no way guarantees support and approval of a similar proposal on another site. It is felt that this site is large enough to warrant both increased height and density because of its large size and topography, which limit the effect of the height and allow taller buildings to be located at a distance from existing single family areas.

2. Height: Some of those opposed to the rezoning believe that the height should be limited to three storeys, which is permitted under the existing zoning (permitted but not built).

Building heights have been carefully managed, ranging from two storeys along West 33rd Avenue to nine storeys adjacent to Valley Drive, at a point furthest away from existing single family areas, to reduce the impact of building height on surrounding areas and views across the site from the south. The slope of the site from south to north permits higher buildings at the centre of the site, without blocking distant mountain views, particularly for those properties at higher elevation south of West 33rd Avenue.

3. Density: The more than doubling of density will increase activity and traffic to and from the site.

The approved density under the existing CD-1 By-law is 0.75 FSR. This was approved in 1993 as part of a previous amendment to the CD-1 which would have allowed a third storey to be added to the existing development. The text amendments allowing for the third storey were approved at Public Hearing and enacted but the construction never occurred.

The proposed 1.45 FSR represents over twice the existing development (at 0.68 FSR) on the site. This translates into an increase in units from 302 to more than 700, with a likely doubling of real population on the site. The significant point of assessment for staff is the site’s ability to successfully manage this density without significant detriment to on-site livability to future residents and off-site impacts to surrounding residents, such as traffic, view obstruction and reduction in surrounding livability.

Staff’s overall assessment is that the large size of the site and arterial streets on two sides and a park on the third side of this triangular site allows for the management of both on- and off-site impacts, such as livability, views and traffic.

4. Views: Buildings over four-to six-storeys will affect fore-ground views of the park, and place buildings within the view lines of properties south of West 33rd Avenue, where no buildings can now be seen.

Impacts on views from residential areas to the south have been carefully assessed and little impact will be created by the new development. Staff have spot-checked view analysis provided by the applicant and believe the information to be accurate in portraying the impact on views. For those close to the site south of West 33rd Avenue, the impacts are reduced by the fact that buildings along the south portion of the site will be two to three storeys in height. Taller buildings will be visible, but the effect will be relatively insignificant because of the distance to those buildings. For residents up the hill, the impacts are limited to the loss of some fore-ground views, where buildings will appear and possible loss of views to Quilchena Park. Distant views of the Vancouver ridge and the mountains beyond will not be appreciably affected. A description of the view analysis and techniques is provided by the applicant, and can be found in Appendix F.

5. Traffic and Parking: Access to the park and walking in the area will become less safe because of increased traffic and parking on surrounding streets, particularly on Valley Drive, where a problem already exists from the Hellenic Community Centre. A pedestrian-activated light at Valley Drive and West 33rd Avenue was suggested by several residents.

Engineering Services reports:

“Traffic has frequently been cited as a concern by those in the neighbourhood. The intersection of Arbutus Street and West 33rd Avenue is becoming congested during peak periods, and the transportation consultant (Ward Consulting Group) documented the shortcutting problem along Valley Drive due to drivers avoiding the Arbutus Street and West 33rd Avenue intersection. The consultant also assessed changes in conditions expected in five years, when the project could be completed, and prepared potential designs for laning treatment of West 33rd Avenue at Arbutus and widening of Arbutus at Valley Drive to provide left-turn bays.

Staff believe that traffic added to the local street network from the additional 450 housing units will be significant and must be carefully managed to satisfy City and neighbourhood objectives. Shortcutting along Valley Drive must be curtailed to preserve livability and safety, particularly with much of Valley Drive’s length bordering Quilchena Park. Thus, a condition of the rezoning requires that the

applicant make a payment ($75,000.00 recommended) for unspecified traffic calmingmeasures to be installed once the redeveloped site is occupied. Staff will work with residents to determine a traffic calming plan. It is recommended that a southbound left-turn bay be installed on Arbutus Street at Valley Drive to remove the obstruction to straight-through movement caused by left-turning vehicles, thereby facilitating the use of Arbutus Street to reach West 33rd Avenue. The left-turn bay would also improve safety for locally-destined traffic, which will increase due to the greater number of households that will be taking access from Valley Drive. Since non-site traffic will also benefit from the new bay, it is recommended that the cost be shared equally between the developer and the City.

The added traffic pressure on the Arbutus Street and West 33rd Avenue intersection is a concern. While the building line along Arbutus could provide for longer-term capacity improvement on that major arterial, options are limited in the short-term. For West 33rd Avenue, its status and design will be examined as part of the downgrading review called for in the Transportation Plan. This process will proceed within a few years, in time for the abutting phases' development. In the interim, it is not appropriate to modify the West 33rd Avenue roadway, either in terms of widening, narrowing, or striping. This retains the informal arrangement whereby left-turning vehicles can be bypassed by straight-through traffic. The consultant has demonstrated that if the roadway were to operate as a true one-lane approach (i.e. as a result of pavement narrowing) the intersection's capacity would be exceeded. In this case, Valley Drive would be forced into service as a bypass route, and it could result in noticeable increases in traffic on streets such as Nanton Drive and West 37th Avenue. In the absence of any physical modifications at Arbutus Street and West 33rd Avenue, and with the increased housing proposed, staff conclude that the intersection will still perform acceptably through suitable management of curb zones and traffic signal timing.”

Parking for the proposed development will be provided in an appropriate amount to accommodate on-site demands. Staff expect to review parking in the area and other measures such as pedestrian-signals as part of the monitoring which is to occur in the next 5 years (see conditions of approval in Appendix B).

Housing: Arbutus Gardens, built in the early 1960s, contains 302 rental dwelling units. Units and tenants are described in point form below:

Most units (90%) are one- and two-bedroom units with a few studio and some three-bedroom units. The average one-bedroom unit is about 70 m² (750 sq. ft.) and the average two-bedroom unit is about 87 m² (940 sq. ft.);

On average, a one-bedroom unit rents for $950 per month, a two-bedroom for $1,350 per month, and a three-bedroom for $1,800 per month;

In total, approximately 450 people live at Arbutus Gardens;

About 60% of the rental units are occupied by single persons. The remaining 40% are occupied mostly by couples with no children. Few families with children live at Arbutus Gardens, although some of the larger units are shared by UBC students;

Thirty-six percent (36%) of all tenants are retired;

Sixty-five percent (65%) of all tenants have lived at Arbutus Gardens less than 5 years. Twenty-six percent (26%) have lived there more than 10 years; and

Every year, about a third of the units change hands.

The applicant proposes that of the 750 proposed dwelling units, 100 would be rental. The matter of the number of rental or City-owned units and the form of security will be discussed in the separate CAC In Camera report to Council, in advance of the Public Hearing.

The developer is also proposing a substantial package of tenant compensation and incentives. The applicant, Arbutus Gardens Holding Ltd., has outlined three programs for existing tenants:

1. incentive programs for tenants, which provide either a “Residency Bonus” (moving expenses plus a cash remuneration based on length of residency for those relocating into a new rental unit) or a “Rental Guarantee” (no rent increase during the first two years in new suite [applies only if new suite has the same number of bedrooms as current residence; if tenant is retired and if tenant has lived at Arbutus Gardens for at least 10 years]);

2. a Purchase Bonus for Tenants, which offers a discount of up to 5% of the purchase price of a unit, based on the length of residency; and

3. for those who decide to leave, moving expenses totaling one month’s rent plus a cash remuneration based on length of residency will be offered.

These are similar to those offered when rental projects are stratified and converted to condominiums. They are appropriate for this project.

Details of these incentive programs are reprinted in Appendix G.

Stipulations regarding housing agreements and requirements are contained in the conditions of approval in Appendix B.

Community Amenity Contributions (CAC): Proforma analysis and conclusions regarding CACs will be presented to Council through a separate report. The conditions of approval will subsequently be amended to reflect Council’s decision on this matter.

On-site Amenities: Residents of Arbutus Gardens currently benefit from a number of on-site amenities, including walkways, meeting rooms and two outdoor swimming pools. At present, the applicant has indicated provision of communal amenity rooms and walkways, but has made no clear commitment on redevelopment of the swimming pools. At a meeting with existing tenants, the pools were identified as an important social focus for existing residents and their loss would be a detriment to the development.

The applicant has replied as follows:

“With regard to amenities, since each Phase is intended to serve a discrete market segment, each building will have its own amenity scheme, geared to the demographic and income profile being served. Facilities will range from social and fitness centres to a complete retirement condominium package --which will include at least one indoor swimming pool. Studies are underway on the provision of a common outdoor pool for Phases 1A, 1B, 4 and 5.”

The provision of on-site owner/tenant amenities and their securement by phase or grouping of phases will need to be addressed at the development application stage by the applicant, to the satisfaction of the Director of Planning.

Exterior Wall Rain Protection Considerations: Late discussions between the applicant and City staff have resulted in a request by the applicant for two provisions in the CD-1 by-law pertaining to exterior wall rain protection, both of which have been the subject of debate. Staff conclude:

1. Extra Deep Roof Overhangs: The Zoning By-law limits overhang to 53 cm (21 inches); however, the adjacent RS-5 zoning district incorporates an exclusion allowing up to a 1 m (3.3 ft.) overhang. Given the architecture is attempting to imitate building styles found in the RS-5 district (South Shaughnessy), staff support a similar relaxation clause in the draft CD-1 by-law contained in Appendix A;

2. Exclusion for Extra Depth on Wall Construction: The applicant wishes to provide a “rain screen” wall construction that will be deeper than a normal wall construction, and has requested an exclusion for the added depth. On-going discussions have occurred internally about this matter as it relates to the serious problem of leaking exterior building walls across the city, however, no conclusion has yet been reached. Staff are generally of the opinion that the current measurement of floor space ratio to the “extreme outer limits of the building” should be maintained, and therefore the applicant’s request is not supported. A decision by Council to support such anexclusion in advance of full analysis of implications for all development across the city may be seen as precedent setting by the industry, placing Council is a difficult position in the future, should Council choose not to support such exclusions.

CONCLUSION

Planning staff conclude that the impacts of this proposed redevelopment can be successfully managed, and that the rezoning should be referred to Public Hearing, and approved.

* * * * *

TABLES OF APPENDICES

APPENDIX A - Draft CD-1 By-law Amendments
APPENDIX B - Conditions of Approval
APPENDIX C - Site, Zoning and Development Description
APPENDIX D - Development Plans
APPENDIX E - Guidelines
APPENDIX F - Input from the Public, other Departments and the

Applicant

APPENDIX G - Tenant Rental and Purchase Incentives
APPENDIX H - Ownership/Development Statistics

APPENDIX A
Page 1 of 2

DRAFT CD-1 BY-LAW PROVISIONS

The following parameters may be further developed by the Director of Central Area Planning, on behalf of Land Use and Development, in preparation for the Public Hearing:

Use · Child Day Care Facility

· Multiple dwellings containing a maximum of 750 dwelling units, of which 25% will be suitable for families.

Parcels · See Diagram on following page (for illustrative purposes only).

Density · Maximum floor space ratio (FSR) for entire site shall not exceed 1.45, based on calculation provisions of the RM-4 District Schedule. See Table below for individual parcel FSRs. Provision for extra depth on roof overhangs will be included in the draft by-law.

Height · See Table below.

Parking · See Table below. Note that the relaxation provisions of the Parking By-law shall apply.

Loading · Minimum rate of one space for each 200 units for the overall site. Relaxation provisions will be applied.

Acoustics · In accordance with the RM-4N District Schedule.

Parcel1	FSR²	Maximum Height	Parking Standard
1	1.63	23 m and 4-storeys	RM-4
2	1.39	23 m and 4-storeys	RM-4
3	1.89	31 m and 8-storeys	RM-3
4	2.14	34 m and 9-storeys	RM-3
5	1.36	30 m and 6-storeys	RM-3
6	1.35	23 m and 2- to 4-storeys	RM-4
7	0.62	23 m and 2- to 4-storeys	RM-4

1Parcel sizes may vary.
²Individual parcel FSRs may vary at the Development Permit stage; however, the overall site FSR shall not exceed 1.45.

APPENDIX A
Page 2 of 2

PARCEL DESCRIPTIONS

PROPOSED CONDITIONS OF APPROVAL

(a) THAT the proposed schematic development be approved by Council in principle, generally as prepared by Paul Merrick Architects Limited and dated January 30, 1998, provided that the Director of Planning may allow alterations when approving the detailed scheme of development in clause (c), in accordance with guidelines adopted in clause (b).

(b) THAT the CD-1 By-law be accompanied, at the time of enactment, by the “Arbutus Gardens CD-1 Guidelines” to be adopted by resolution of Council (see Appendix E).

(c) THAT, prior to final approval by Council of the form of development for each phase, the applicant shall obtain approval of development applications by the Director of Planning, who shall have regard to the following:

Engineering

(i) lay-bys, porte-cocheres, and other boulevard crossings are to be minimized to the satisfaction of the General Manager of Engineering Services and the Director of Planning;

(ii) on-site maneuvering is to be provided for all loading spaces;

(iii) the temporary southern most parking access on Arbutus Street is not to remain open as future loading access (Phase 5 loading can be served from the proposed private cul-de-sac accessed from West 33rd Avenue); and

(vi) clarification of the charges shown on title is required (a charge summary should be provided).

CPTED

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

1. Theft in the underground: Theft from auto and bicycle theft is prevalent in Vancouver. These problems can be mitigated by completely separating different user groups including gating, exit stairs and elevators.

2. Fear in the underground: Security and visibility issues in the underground can be improved with adherence to section 4.12 of the Parking By-law.

3. Break and enters: Ground floor units are especially susceptible to break and enters. This can be mitigated by deleting areas of concealment in and around windows, doorways and patios.

4. Graffiti: Graffiti is prevalent in Vancouver. Graffiti artists across Canada view Vancouver as the Graffiti Mecca of Canada. Removal is costly for businesses and strata owners. Contact the City’s Graffiti Coordinator at873-7162 for further information and resource.

5. Skateboarding: This can be achieved using non-smooth paving material and planter walls that step or have reveals cast into concrete planter sitting edges.

Seniors’ Committee

(vi) design development to accommodate comments of the Special Advisory Committee on Seniors resulting from a review by the Committee of development application drawings;

Subdivision

(vii) subdivide the site in a form satisfactory to the Approving Officer, in accordance with the rezoning and the proposed phases of development, including:

1. regard for retention of existing buildings in remaining phases;

2. clear identification of shared pathways among and between buildings, shared underground parking garages and other common site amenities; and

3. ensure that appropriate legal agreements are struck which guarantee unimpeded access of registered owners and any tenant among and between the buildings on the site, and any shared or common on-site facilities or amenities.

On-site Tenant/Owner Amenities

(viii) the provision of on-site owner/tenant amenities and their securement by phase or grouping of phases will need to be addressed by the applicant, to the satisfaction of the Director of Planning.

(d) THAT, prior to enactment of the CD-1 By-law, the registered owner shall, at no cost to the City:

(i) Engineering: Enter into agreement(s) to the satisfaction of the General Manager of Engineering Services and the Director of Legal Services for the following:

1. improvements to West 33rd Avenue between Arbutus Street and Valley Drive as prescribed in a separate review process, with 100% of the cost to be paid by the applicant;

(Note: this will include, but may not be limited to, the installation of sidewalk, curb and gutter, pavement, and provision of street trees.)

2. improvements to the Arbutus and Valley Drive intersection to provide a left-turn bay, with 50% of the cost to be paid by the applicant;

3. provision of traffic management measures on Valley Drive to discourage “thru” traffic, within five (5) years of occupancy of the final phase of thisdevelopment, with 100% of the cost to be paid by the applicant;

4. provision of street trees adjacent the site where space permits, with 100% of the cost borne by the applicant; and

5. undergrounding of all new services for this development from the closest existing suitable service point.

(Note: Items 1, 2 and 3 will be subject to the approval of City Council in future.)

(ii) Fire: Prior to enactment, the applicant must demonstrate to Fire and Engineering Services staff the following:

1. indicate the ability to comply with Vancouver Building By-law requirements since there are no site difficulties on a new building, specifically in clause 3.2.5.2.(2) on distance from curb to principle entrance to be maximum 15 m.

(Note: The applicant has indicated there will be a feasible solution.)

2. determine the location of the required fire hydrants to the site. This information is necessary up-front to flag any main difficulties with Engineering or any unforeseen traffic problems which may involve closing off Arbutus Street for construction.

(iii) Landscape: Enter into agreement(s) to the satisfaction of the Director of Planning and the Director of Legal Services for the following:

1. submission of a comprehensive Tree Management Plan (indicating retention, relocation and replacement) at the time of the development application. This Tree Management Plan will include a tree tagging program (e.g., red for removal, yellow for possible removal and green for retention) and signs informing the public of the tree management intentions, prior to, during, and after construction;

2. determine the location of required to contact the Park Board with respect to any trees located on the City Boulevard. The Park Board will determine the tree retention, relocation or replacement program in consultation with Engineering Services and the Planning Department;

3. a Letter of Credit is required for those trees to be retained prior to the issuance of the development permit. The value of the Letter of Credit will be determined through assessment by a Certified Arborist based on the International Society of Arboriculture tree evaluation method;

4. a Certified Arborist will be retained by the applicant during construction to ensure that the retained trees are protected in accordance with the Private Property Tree By-law and the City’s guidelines for tree retention, relocation and replacement;

5. the applicant is required to apply for the appropriate Tree Removal and Replacement Permit(s), in accordance with the Private Property Tree By-law, prior to receiving their Development Permit;

6. a Landscape Plan is required at the time of Development Application that includes existing trees, along with other proposed landscape improvements. A plant list illustrating proposed species, quantity and size, as well as any construction details necessary to retain existing trees is also required; and

7. consideration of relocating site trees to the City Boulevard, in cases where the trees cannot be retained as a result of development, to satisfaction of the Park Board, Engineering Services and the Planning Department.

(iv) Non-Discrimination: Enter into an agreement, to the satisfaction of the Director of Legal Services, preventing discrimination against families with children in the sale and/or occupancy of residential units.

(v) Public Art: Enter into a legal agreement, satisfactory to the Director of Legal Services, committing the applicant to participate in the City Public Art Program, and obtain approval by the Director of Cultural Affairs of a Preliminary Public Art Plan.

(vi) CAC: To be paid to the City in an amount, manner and terms to be determined by City Council under separate report.

(vii) Housing: Enter into agreement(s) to the satisfaction of the Manager of the Housing Centre and the Director of Legal Services, for the following:

1. that any residential units which form part of Council’s CAC consideration in (vi) above, including exclusive use of a parking stall in the same building for each unit, to be secured through a Housing Agreement and any other legal instruments to the satisfaction of the Manager of the Housing Centre and the Director of Legal Services; and

2. a relocation plan, including a survey of all existing residents and an assessment of their housing needs and plans to the satisfaction of the Manager of the Housing Centre, will be required prior to issuance of the first development permit for the site.

APPENDIX C
Page 1 of 3

ADDITIONAL INFORMATION

Site History:

Site was originally part of the Quilchena Golf Course.

January 1963: CD-1 zoning was enacted; FSR of 0.45; height two storeys and 30 ft.
January 1965: CD-1 amended to increase FSR to 0.68; site developed with 302 rental units, two storeys in height.

January 1993: Public Hearing to increase FSR from 0.68 to 0.75, increase height from two to three storeys (permitted on five of seven buildings); changes were enacted November 2, 1993.

At this Public Hearing, some members of Council supported the application, conditional upon the building remaining as a rental facility, and not being re-sold or changed to strata title.

June 1994: Correspondence was received by staff and by Council regarding a proposal to sell units in Arbutus Gardens. Several tenants wrote or called to express concerns.

July 26, 1994: As a result of a staff report, Council instructed the Director of Planning to make application to reduce the allowable FSR from 0.75 to 0.68 plus other actions intended to alert the public of this initiative, which was seen to contravene the City’s strata title conversion regulations.

October 4, 1994: The proposal to sell units did not proceed and Council rescinded the decision to proceed to public hearing with the CD-1 changes, with an instruction that staff report to Council if this or a similar proposal was revived.

October 1995: The owners of Arbutus Gardens advised that they were proceeding with the sale of the units outside of the Condominium Act similar to the 1994 co-ownership proposal. The then owners claimed that they had sold one unit before the Province had amended legislation requiring co-ownership to conform to the regulations in the Condominium Act, including municipal approval and building upgrade.

February 1996: Staff again reported the matter to Council, and the previously-proposed amendment to decrease the FSR from 0.75 to 0.68 was again referred to Public Hearing.

March 19, 1996: The Director of Planning made application to amend the CD-1 as previously noted.

April 1996: The owners committed to the City that they would provide notice before commencing to sell units; on the basis of the letter, the Public Hearing was indefinitely postponed.

July 1996: The Province ruled that the owners must seek the approval of the City of Vancouver before “shared interests” in Arbutus Gardens could be marketed.

The owners then filed an appeal with the Commercial Appeals Commission (it is not known whether this appeal was successful or not);

November 1996: Polygon initiated purchase of the site, leading to the current application.

APPENDIX C
Page 2 of 3

Site: The existing site is a large single triangular parcel, bounded by Arbutus Street on the west, West 33rd Avenue along the south, and Valley Drive along the north-east boundary.
The site has a frontage of 305 m (1,000 ft.) along Arbutus Street and a frontage along West 33rd Avenue of 257 m (842 ft.).

Existing Development: Current development consists of seven two-storey buildings, containing 302 rental dwelling units, built in the early 1970s. Existing unit types and size ranges are shown in the following table:

Type of Unit	No.of units	Size Range
Bachelor and Studio	6	41.8 m² (450 sq.ft.) to 50 m² (540 sq.ft.)
One-bedroom	103	50 m² (540 sq.ft). to 68.7 m² (740 sq.ft.)
Two-bedroom	171	77 m² (832 sq.ft.) to 96.6 m² (1,040 sq.ft)
Three-bedroom	22	124.5 m² (1,340 sq.ft.) to 161.6 m² (1,740 sq.ft.)
Total	302	n/a

Proposed Development: The proposed development will redevelop the entire site in six phases, with a possible 750 dwellings units at completion. One hundred (100) units are proposed as rental. Plans are shown in Appendix D. The following table outlines the prospective unit sizes:

Parcel	No. of Units	No. of Floors	Avg. Unit Size
1A	130	4	90 m² (970 sq.ft.)
1B	100	4	83 m² (890 sq.ft.)
2	140	5 to 8	123 m² (1,325 sq.ft.)
3	106	4 to 9	120 m² (1,275 sq.ft.)
4	92	4 to 6	106 m² (1,135 sq.ft.)
5	125	4	88 m² (945 sq.ft.)
6	22	2 to 2 1/2	230 m² (2,500 sq.ft.)
Totals	Up to 750 maximum	2 to 9	n/a

APPENDIX C
Page 3 of 3

CityPlan Rezoning Policy: The “Rezoning Policy - Before and During the CityPlan Neighbourhood Visioning” outlines six categories under which rezoning applications may be considered before neighbourhood visioning has occurred. Staff assessment of this current proposal indicates that the application qualifies under two categories:

· “projects involving social or affordable housing (i.e., non-profit, Bill 57 Housing Agreement, SNRF)...”;

The 100 proposed rental units will be secured through a Bill 57 Housing Agreement, which will guarantee the rental tenure of the units for a defined period of time; and

· “Rezoning application(s) which do not fall into (other) categories will be individually assessed as to whether the proposal sets significant new directions and/or precludes options for the neighbourhood visioning process. If so, it will not be considered. . . .”

“Examples that would be considered:

· multi-family proposals within the boundaries of an established multi-family area, such as Arbutus Village proposal...”

Arbutus Village Shopping Centre and Arbutus Gardens are both contained within a cluster of six CD-1s between West 25th and 33rd Avenues, abutting Arbutus Street. The Policy suggests that within this area, applications may proceed in advance of a neighbourhood visioning exercise.

APPENDIX F
Page 1 of 7

INPUT FROM THE PUBLIC, OTHER DEPARTMENTS AND THE APPLICANT

Public Input: An early notification letter was sent out on March 18, 1998, inviting property owners in the notification area to attend two open houses, which were held on Tuesday, April 14th and Thursday, April 16, 1998, at the Hellenic Community Centre.

Rezoning application signs were posted on the site on March 18, 1998.

The form of responses is summarized as follows:

(a) six letters and two e-mail messages received;
(b) six phone calls received in response to the early notification letters and signs;
(c) over 150 tenants attended three evening sessions (April 7th, 8th and 9th);
(d) approximately 100 individuals attended the two open houses (April 14th and 16th); and
(e) a petition with 133 signatures was submitted opposing the rezoning (May 19, 1998).

Comments can be summarized as follows:

Of the 100 people attending the open houses, less than one quarter spoke in opposition to a planning staff representative present for both evenings. Those in support, indicated preference for the strong architecture and preservation of existing trees. Many indicated interest in purchasing a unit.

Letters, e-mail messages and phone calls were mostly opposed to the rezoning, as well as 25% of those who attended the open houses. Those in opposition expressed the following concerns:

(a) excessive density;
(b) no support for the nine-storey buildings heights, arguing loss of views of the park, loss of views to English Bay;
(c) doubling of activity on site;
(d) increased traffic, safety problems on Valley Drive and in regard to the Quilchena Park; and
(e) parking problems associated with existing developments in area, notably Hellenic Church and Community Centre.

The petition states that the undersigned strongly object to the rezoning:

“To replace the existing 302 dwelling units with 750 dwelling units is simply too high for this quiet area. Of particular concern is the height of the development at up to nine storeys which will have a direct impact on views by surrounding residents. There are no other buildings of this size in our area and this would be a bad precedent to set. We request the rezoning application be rejected.”

APPENDIX F
Page 2 of 7

Copies of questionnaires filled out at the Open Houses are on file with the City Clerk along with a copy of the petition.

Comments of the Manager of Engineering Services: Engineering Services has no objections provided that the applicant complies with conditions as shown in Appendix B. Further comments on traffic implications appear in the body of this report.

Fire: The Fire and Safety Group has identified requirements which are contained in Appendix B.

Health: The Health Department requests that the City’s acoustical criteria form part of the CD-1 bylaw (see Appendix A, draft by-law), and an Acoustical Consultant’s report shall be required which assesses noise impacts on the site and recommends noise mitigating measures. The acoustic requirement will be primarily to assess any traffic impact from West 33rd Avenue, and shielding effect of any structures on Arbutus Street.

Crime Prevention Through Environmental Design (CPTED) Review: The following comments are noted:

Few problems are foreseen with this development. The southwest section of Vancouver has the dubious distinction of carrying the highest residential break-and-enter rate by area. This is the largest police-defined District, and carries a larger residential area than the two North Districts. Most of the property crimes occur within a 5-10 block north/south radius along Broadway, a natural crime pathway. This area has the lowest rate of crimes against people (i.e., robberies, strong-armings, home invasions, etc.).

In general, from a CPTED point of view, police have to look at the reality of an increase in youth population, and future pathways they will create. The location of high schools, the
Arbutus Mall, and other shopping areas or chosen “hang-outs” should be considered in future developments here. Staff would also be interested in any changes Engineering is considering for traffic treatment.

The only concern is the possible difficulty emergency services may have locating certain addresses, but this can be dealt with when the individual developments come in for approval. Overall, staff think this development, if designed property, will be great for the area.

Seniors' Advisory Committee Comments: The Seniors’ Committee will review the individual phases at the development application stages.

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Public Art: Appropriate conditions have been established in Appendix B regarding the City’s Public Art policy.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on February 25, 1998 and supports the proposed use, density and form of development. Detailed comments are as follows:

Evaluation Support (5-3):

· Introduction: Rob Whitlock, Rezoning Planner, presented this application to amend an existing CD-1 zone. Amendments to the zoning were made in 1993 and 1994 to allow an increase in FSR from the existing 0.68 to 0.75 by adding a third storey to five of the existing seven apartment buildings, but this additional development never occurred. The proposed text amendment will enable the replacement of the existing 302 rental residential units with 110 rental units and up to 640 market units. This largeredevelopment would take place in phases over six years, allowing existing residents to move within the project or to be relocated elsewhere, for which rental and purchase incentives will be offered. The plan follows existing building footprints as a means to preserve as much as possible of the mature vegetation and trees on the site. Over 90 percent of the existing trees will be retained. The proposed FSR is 1.45. Building heights will range from two storeys along West 33rd Avenue and up to nine storeys elsewhere on the site. Parking will be accommodated in two levels of underground parking with access restricted generally to existing access points around the site. A thorough public involvement process has been undertaken by the applicant. Individual phases of the project will be reviewed by the Panel at development application stage.

· Applicant’s Opening Comments: John Northey briefly reviewed the project rationale, noting the existing units are now obsolete. Paul Merrick, Architect, described the proposal, stressing the value that has been placed on the established landscape on the site. Bruce Hemstock reviewed the landscape plan.

· Panel’s Comments: After reviewing the model and posted drawings, the Panel commented as follows:

The Panel supported this rezoning application and supported densification of this site. The applicant was commended for the efforts made to retain the trees and to sensitively accommodate the density within the existing building footprints.

Support for the proposed distribution of the density over the site was not unanimous. One suggestion was to move the higher density to the northwest corner, and another was to have more five- or six-storey buildings in order to reduce the footprints and offset the impact of the density.

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The Panel had a serious concern about the lack of address for many of the units and stressed the importance of ease of access for both residents and visitors. In such a high density environment it is important for buildings to have identity on streets.

The Panel felt there needed to be some kind of community focus or “heart” in this very large site which is almost a neighbourhood in itself. A shared amenity such as recreational facility was suggested by several Panel Members and there was one suggestion for an open space focus. A recommendation was also made to consider collaborating with other developments in the area to look at a shared neighbourhood recreation facility. It was noted that a site of this size could well be broken down into precincts. The Panel cautioned that the architectural treatment, despite the variety of heights, could become somewhat relentless without some differentiation of character.

· Applicant’s Response: Mr. Merrick stressed that this proposal is intended to portray only use, form and density at this state and the Panel will have the opportunity to review each phase at development application stage. Regarding the distribution of density on the site, he acknowledged there may be some justification for considering greater density further north. The apparent lack of addresses may be the result of insufficient information. He explained there are essentially seven groupings on the site, each of which has its own address. With respect to amenities, the intent is for a common space within each increment of the project, which is in response to the wishes of the current residents.

Views: The following description of view analysis is provided by the applicant:

“The proposed redevelopment of Arbutus Gardens considered various factors in establishing an appropriate design response to the immediate context and the surrounding neighbourhood. A significant component in assessing the potential impact was the initiation of a series of view studies, taken from various vantage points surrounding the site.

Initial studies, prior to the particular positioning of massing and height were based on photographs taken from carefully chosen positions within the public domain, where the site could be fully or partially viewed.

These photographs assisted the client and architect in gaining an understanding of how the site was situated geographically in a bowl surrounded on the east and south by ridges, and nestled in a slight dip or depression. Viewing the site at all proved difficult due to the abundant foliage in the neighbourhood. The identity of the property itself was defined by the high concentration of mature foliage on site, often creating a canopy of growth above and between the existing buildings.

Accepting that any proposed redevelopment would be more visible, an approach was developed to demonstrate the following:

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Extent to which massing would penetrate the tree canopy;

Position of taller massing within overall site;

Extent to which the overall massing would extend above adjacent ridge lines from low-lying elevations;

impact on potential views of the North Shore mountains from higher elevations;

General impact and massing within any available panoramic vistas; and

Character of the proposed redevelopment in an overlook situation from elevated streets immediately south of Arbutus Gardens.

Methodology: To illustrate the above, composite panorama photographs were electronically scanned into a computer as an electronic file. For the initial studies, hand-drawn sketches based on the evolving massing concepts were scanned separately and electronically positioned within the photographic image, using the program ‘Photoshop’. Prior to scanning, and using the actual photograph as a base, the proposed buildings were sketched based on the scale of the existing buildings and trees while using surrounding landmarks as cues to establish as accurate a representation as possible.

Once both images were electronically overlaid, each view was electronically fine-tuned to add clarity through colour and minor graphic adjustments and to create a relatively seamless composite image. The images were then printed by means of an electronic colour printer.

As the overall design developed, later view studies took advantage of increasingly accurate three-dimensional information. In addition to using the photographs as a basis for overly
drawings, an intermediate electronic step established a volumetric ‘wire frame’ template for the sketches. Using electronic format plans and known heights and elevations, a one-point electronically-generated perspective framework was projected upwards, printed from the planon acetate and subsequently adjusted for scale to match that of the photograph. Actual elevation points from civil survey datum were used to position both vantage point and proposed building ground level in the process of arranging elements for the wire frame orientation. This middle step was an important test of the earlier studies in establishing levels of accuracy in all subsequent view studies.

Following meetings with the community, several concerned residents requested more particular view studies, originating from windows, or decks in their homes. These late images are based on the most accurate information available to date, within the previously established method and technique. Future requests for view studies from other possible vantage points may be created and illustrated using a similar process.

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Environmental implications: The proposed rezoning more than doubles the number of housing units situated along a transit line, which serves both the downtown and Kerrisdale shopping areas. The site also is situated within walking distance of the district serving Arbutus Village Shopping Centre.

Social implications: There are no major positive or negative social implications to this proposal. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

Comments of the applicant: The applicant has been provided with a copy of this report and has provided the following comments:

“This letter is in response to your request for the applicant’s comments as part of Appendix F, and follows my May 11th comments on the earlier draft of this report.

We note the following:

On page 8 in the first paragraph under Exterior Wall Rain Protection Considerations, it is proposed that a 1.0 m overhang be permitted, similar to RS-5. We strongly request that such arbitrary limits not be imposed, and that overhangs be flexible, depending upon the height of the wall, the location, and the roof type and pitch. RS-5 standards are intended for houses, not large four storey and higher buildings.

Page 1 of Appendix A requires an RM-3 parking standard for the concrete mid-rise structures of Parcels 3, 4 and 5. Our request was for the RM-5 standard, which is supported by the results of our westside of Vancouver parking demand study for buildings which have demographic profiles similar to our purchasers. This study was designed and completed by our traffic consultant after consultation with City staff.

Clause (d) (iv) of Appendix B requires a Non-Discrimination Agreement. We see no reason why the Statutory requirements of the Province of B.C. should be varied.

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Paragraph 2 of Appendix B, clause (d) (vii) makes reference to a “relocation plan” and “survey” of all existing residents “. . . prior to issuance of the first development permit for the site. . . ”. Since redevelopment will be phased over six years (approximately 50 existing suites per year) and the resident base has a 35% annual turnover under normal circumstances, such relocation planning is impractical for those who would move of their own accord within one or two years in any event. As noted in the staff report, 55% of the present residents have been in place for less than five years. We suggest that our management strategy for moving tenants within the complex meet your need for a relocation plan, with updates as part of each Phase development permit.”

APPENDIX H

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address	1925 West 33rd Avenue
Legal Description	Block 77, DL 526, Plan 11305, NWD
Applicant	John Northey, Arbutus Holdings Ltd.
Architect	Paul Merrick, Architect
Property Owner	Arbutus Holdings Ltd.
Developer	Arbutus Holdings Ltd.

SITE STATISTICS

	GROSS	DEDICATIONS	NET
SITE AREA	4.83 Ha (11.93 acres)	None	4.83 Ha (11.93 acres)

DEVELOPMENT STATISTICS

	DEVELOPMENT PERMITTED UNDER EXISTING ZONING	PROPOSED DEVELOPMENT
ZONING	CD-1	CD-1 Amended
USES	Residential	Same
DWELLING UNITS	302 Rental	100 rental, up to 650 market units
MAX. FLOOR SPACE RATIO	0.75	1.45
MAXIMUM HEIGHT	11.7 m
MAX. NO. OF STOREYS	3 storeys	2- to 9-storeys
PARKING SPACES	one space for each 70 m² of gross floor area	still under discussion

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(c) 1998 City of Vancouver