POLICY REPORT
DEVELOPMENT AND BUILDING

Date: July 13, 1998
Author/Local: RWhitlock/7814

LU&D No. 98014

CC File No. 8208

TO: Vancouver City Council

FROM: Director of Central Area Planning

SUBJECT: Amendments to the Reference Document for Granville Island

RECOMMENDATION

THAT the application by Messrs. Michael Seelig and Abe Sacks to amend the Reference Document for Granville Island to permit a six-screen movie theatre, plus retail and restaurant complex, be referred to a Special Meeting of Council, similar to a Public Hearing, together with:

(i) the draft Reference Document amendments as contained in Appendix A; and

(ii) the recommendation of the Director of Central Area Planning to approve the application, subject to the conditions of approval in Appendix B.

GENERAL MANAGER'S COMMENTS

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

COUNCIL POLICY

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

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

PURPOSE AND SUMMARY

This report assesses an application to amend the Reference Document for Granville Island (hereafter called the Reference Document) which, if approved, would allow the development of a six-screen movie theatre plus retail and restaurant complex at 1405 Anderson Street. The amendments involve increasing allowable floor areas for two specific land use categories in Section 5 of the document, namely “Restaurants and entertainment” and “Retail”.

The proposal itself has generated significant controversy both on and off the Island:

… those in support believe that the movie theatre complex will add a new, positive element to the entertainment component of the Island; that the complex will bring more people to the Island, particularly in the evening; and will provide residents in the area with a local cinema;

… those opposed believe that the introduction of a multi-national chain movie theatre operation will destroy the unique arts and craft emphasis of the Island; increase traffic congestion to an intolerable level; and draw business away from the Public Market and many other businesses. Business operators are particularly concerned with matinee operations on the weekend, the fear being that movie goers will tie up parking for two or more hours, leaving shoppers with less parking.

Part of the analysis surrounding the proposal relies on evaluation of current trends in movie theatre operations in the region. Staff conclude that the proposed movie theatre complex is expected to be similar in style and operation to the Festival Cinema Theatre at West 5th Avenue and Burrard Street (hereafter referred to as 5th and Burrard), it will primarily serve the local area, and it will, along with the live theatres on the Island, add a positive dimension to night time activity. Staff recognize the concerns of residents and businesses regarding weekend matinees throughout the year and during their peak summer months, however, a review of the projected attendance numbers and patterns suggest that the impact will be limited and manageable within the Island infrastructure.

The Director of Central Area Planning recommends Council refer the proposed amendments to the Reference Document for Granville Island to a Special Meeting of Council, similar to a Public Hearing, and that the proposed amendments be approved.

BACKGROUND

On July 29, 1997, Council requested that the Development Permit Board refer this application to Council for advice, prior to making a final decision. A preliminary development application was submitted in November 1997.

On March 12, 1998, Council approved the following:

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

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

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

A request to amend the Reference Document for Granville Island was received on April 20, 1998. For the project to proceed, adjustments will be needed to the Reference Document as the proposal exceeded current allowances in several key aspects, even though it does notexceed the overall allowable development on the Island nor, at face value, appear fundamentally inconsistent with the intent of the Document.

The applicant has provided a description of the 2‡ year process resulting in Canada Mortgage and Housing Corporation (CMHC) concurrence with the proposal. (Appendix C, Applicant’s Comments.)

PROJECT DESCRIPTION

The proposal for 1405 Anderson Street features:

… redevelopment of Building 55 (the decommissioned Granville Island brewery immediately north of the newly renovated building occupied by the Granville Island Brewery Co.) and a portion of Building 35, currently used for parking;
… a total floor area of 4 757 mū (51,205 sq. ft.);
… a ground floor and mezzanine of 2 459 mū (26,469 sq. ft.) of retail (arts, crafts, antiques and collectibles indicated) and restaurant;
… a second floor of 2 298 mū (24,736 sq. ft.) comprising six motion picture theatres, ranging in size from 122 to 255 seats, with a total of 1,095 seats;
… display space for the B.C. Film Industry;
… a third floor for projection needs; and
… an overall height within the specified limits for Granville Island (16.76 m or 55 ft.).

(Diagram)

Plans for the proposed development are shown in Appendix E for information purposes only, as the form of development would be considered by the Development Permit Board if Council approves the Reference Document amendments.

REFERENCE DOCUMENT CHANGES

The principal component of the Reference Document for controlling development is Section 5, which outlines general land use categories and the amount of floor space allowed under each category (see Appendix C for a reprint of this section). Assessment of the proposal indicates that the addition of the movie theatre (defined as entertainment), retail and restaurant uses, will result in the overages shown in the following table.

Reference Document Land Use Categories	Ref. Document Allowable* (in sq. ft.)	As-built	Total with Addition of Current Proposal	Percentage increase (over and above 10% allowance)
Restaurants and entertainment	50,000	47,000	76,440	39%
Retail	35,000	34,800	53,390	39%

*Reference Document provides for plus/minus 10% increase/decrease within each category.

The second table in Appendix C points out that other land use categories have been previously exceeded, including institutional (Emily Carr School of Art) by 40%, maritime by 39% and office (88%, noting that the original category is only 25,000 sq. ft.). Monitoring of land uses has been done by CMHC staff. Further amendments to update theReference Document are therefore also included in Appendix A.

DISCUSSION

General Use Consideration: General land use categories are defined differently between the Zoning and Development By-law and the Reference Document. The Zoning By-law includes theatre use (not differentiating between live theatre and movie theatre) under the category of “Cultural and Recreational Uses”. The Reference Document lists a “Community and Recreation” category and a “Restaurants and entertainment” category. Staff have concluded that theatre more appropriately should be interpreted as an entertainment use, as it does not clearly fit either a “community” or a “recreation” descriptive. “Performing Arts” more clearly defines live theatre.

Pre-Reference Document material, particularly the document produced by Thompson Berwick, Pratt and Partners (TBP), Architects, entitled “Granville Island - a process for redevelopment” (1975) outlined five scenarios for the Island: (1) park; (2) amusement/recreation; (3) entertainment/culture; (4) culture/education; and (5)  exposition.

Options (1) and (5) were excluded from further detailed consideration. While the TBP document outlined in detail the implications of the three options in terms of “character plans”, it appears that the Reference Document is somewhat of an amalgam of options 2, 3 and 4. The TBP document did also outline a concept that Granville Island would evolve over time, through three stages: (1) Initiation: “The Beginning”; (2) Transition or Middle; and (3) “Maturity”.

Cinemas were listed as part of the entertainment/culture uses for the middle stage.

City staff conclude that movie theatres or cinemas were contemplated as a possible use in early planning for the Island and that they are allowable under the “Restaurant and entertainment” land use category.

Suitability of the Proposed Use: The applicant proposes a six-screen cinema with a total of 1,095 seats as well as ancillary retail and restaurant uses. The cinemas are intended to be similar in programming style, and by the same operators as the Fifth Avenue Cinemas (2100 Burrard Street), showing first-run commercial films in an “entertainment complex”.

The applicant, in their Cinema Impact Statement, has identified a booking policy for the proposed cinemas which will favour “family and upscale commercial films”. While this may include art films and Canadian films, they have been clear that they will operate as a commercial cinema. Film choices will be made on their assessment of market demand and product availability. The type of film shown will probably change seasonally - i.e., Fifth Avenue changes to more “Hollywood”-type films in the summer months to respond to the market. In the winter season they revert to more “art” films. If they follow this pattern on Granville Island, the cinema use in summer months, when the Island is most popular and busy, will be primarily “Hollywood”-type films.

Council should note that once approved, the City has no guarantee with respect to the type of films that are shown. Therefore, analysis of the use and its impacts and a decision regarding the application should be made on the basis that any legal film may be shown at the cinema.

The applicant has also proposed retail uses to support the cinema theme - arts, crafts, film and antique shops are suggested. This retail use will undoubtedly attract synergistic shops; however, there is no guarantee that film or art-related retail will lease the space. Staff are therefore recommending that the uses - film centre, restaurant and retail be evaluated against the “Restaurant and entertainment” and “Retail” uses in the Reference Document and not against Community/Recreation or Arts and Crafts Uses.

Impact on Local Movie Theatres: Staff have monitored trends in Greater Vancouver in an attempt to understand where movie theatres as an entertainment use are headed. The major theatre initiative regionally is the development of large, multiplex entertainment centres, such as that which exists in South Richmond, called “Silver City”. These complexes feature as many as 20 movie screens, restaurants, recreation facilities and other forms of entertainment. Similar complexes are either under development or planned in the Lansdown Shopping Centre area in Richmond, and in Metrotown, in Coquitlam and in Langley. The International Village “Tinseltown Complex” is under construction. Inquiries have been made for several other multi-screen movie operations in Downtown Vancouver in the past year.

The local trend in Vancouver has seen the closure of the Royal Centre cinemas and single-screen theatres, such as the Stanley and the Starlight (the Bay) in the West End (the Dunbar closed but has temporarily re-opened). In close proximity to Granville Island, the 5th and Burrard “Festival Cinemas” opened in the past two years, featuring 5 theatres with a total of 1,000 seats. Indications are that its emphasis on movies which are not first-run “blockbuster” features is very popular.

In discussing possible overlap with theatres in the City, Famous Players Inc. has provided the following commentary:

“The impact on the Festival Cinemas at 5th and Burrard would be minimal because the two theatres will not be playing the same films at the same time. Whereas there may be a finite number of movie-goers in the area of the two theatres, the nature of the audience at the new theatre will be somewhat different from the 5th and Burrard cinemas because more family and upscale commercial films will be the focal point of the booking policy. The periodic festival-style programming that will take place in the new theatre will not compete with the 5th and Burrard cinemas for film product.

‘Theatre Row’ would again be minimally impacted by the new theatre. First of all, the Royal Centre and the Plaza Theatres have closed, taking more than 1,500 seats and 10 screens out of the market. The new theatre will be adding about 1,050 seats and six screens. Even when factoring in the impact of the 5th and Burrard cinemas, the net increase of screens is minimal and the net increase in seats is less than 35%. So the Granville Island Theatre may be considered a replacement theatre.

. . . All of the above aside, the amount of film being produced for the more sophisticated market has been increasing every year and the attendance at such films has also been growing in recent years. So regardless of the new or existing theatres, the changing nature of the film product and the greater number of such films furthers our belief that the current market is being under served.”

This information from Famous Players provides a good summation of gains and losses of theatre seats in the vicinity. It is unclear whether or not the level of increase identified is beneficial or problematic because a full assessment has not been done of the changing demand for theatre seats or the nature in which this form of entertainment is being marketed.

City staff suggest the following:

1. that it is likely that these small five or six-screen movie theatres will replace the single-screen neighbourhood theatres;

2. that the relatively smaller movie screen venues will generally not be utilized for first-run commercial “blockbuster” movies if larger-screen venues are available; and

3. that the proposed facility will not harm the business of Vancouver’s other commercial cinemas. The most comparable and the closest commercial cinema, the Fifth and Burrard, is operated by the applicant who is confident that there will be no negative impacts. Nor do staff believe that there will be a conflict with the City’s premiere non-profit, art-film cinema - the Pacific Cinematheque Pacifique. They do not screen first-run commercial or “Hollywood” films.

Famous Players representatives have been clear that the movie theatre operation must maintain financial viability. Further, the City has no ability to control or restrict the type of films that may be shown and a decision regarding the proposal should be made on the basis that any legal film may be shown.

Matinee Movies: Concern about the Granville Island theatres has particularly focussed on Famous Players indication to run matinee movies, which generally start at 2:00 and 4:00 p.m., depending upon the specific theatres. Most movie theatres provide matinees on Saturdays, Sundays, and during holiday periods such as Christmas, Spring Break and during the summer. Many theatres place more emphasis on family and children selections during matinees than the evening fare, specifically targeted to children. Famous Players indicates that while average attendance to movies throughout the year is 28%, matinees generally are attended at a yearly average of 10%. The applicant indicates that average attendance for matinees at 5th and Burrard is 25%.

The primary concerns amongst residents and businesses are two-fold:

1. weekend and holiday matinees will occur generally at the busiest times for the Island, and could deter others from coming to the Island; and
2. traffic congestion and shortage of parking would be exacerbated at these times.

The question is whether the added congestion will prove to be detrimental to those businesses already established on the Island. The businesses are concerned that movie goers will park for two to three hours, frustrating people who come to the Island to shop.

Mr. Tom Lightburn, who has been hired by Famous Players as the Managing Director for the proposal, reports that matinee attendance works in an inverse relation to the weather. Attendance is generally low in good weather and better during rainy weather. Based on the prospect that half the people who come to Granville Island do not arrive by car, and estimating matinee attendance on a sunny day at 10% to 25%, two passengers per vehicle works out to 25 to 60 extra cars arriving for matinees. The difficulty is understanding how often a series of popular movies might attract the higher attendance, creating critical congestion levels that might turn people away from the Island. However, this situation already appears to be the case with the present success of the Island. It is expected that the theatre itself will not appreciably affect traffic congestion one way or another.

CMHC officials advise there are generally more visitors to Granville Island in good weather than in rainy weather - the inverse of matinee attendance. While this is not true for all businesses, such as the food market, it is the case for total visitors.

Staff also point out that it is likely that those attending matinee movies on the Island probably also intend to shop and/or dine on the Island. This scenario may still not gain the favour of businesses who would rather people shop, dine and/or attend the live theatre on the Island, and go elsewhere for movies.

A condition calling for monitoring of the impacts of matinees is stipulated in Appendix B, suggesting that matinees be curtailed if traffic and parking related to the theatre operation results in an unacceptable level of congestion as judged by Engineering staff from analysis of the resulting conditions and consistent with public commentary.

Traffic and Parking: CMHC may wish to comment about congestion on the Island. There are traffic issues with the Island as a whole; however, the added traffic from the theatre can still be managed without unduly impacting the Island.

Engineering Services has determined that there are presently 1,428 parking spaces on the Island, while current parking demand, or the “cumulative requirement” for approved uses is 1,329 spaces. The parking requirement for the movie theatre proposal is 109 spaces. With a 30-space credit for discontinued former-occupancies on the site, the cumulative parking requirement for Granville Island increases by 79 to a total of 1,408 parking spaces. An expected net loss of 16 existing spaces on the site would leave the Island with 1,412 or just enough to satisfy the demand/requirements.

Engineering Services notes that if this complex is built, parking would not be available for any other significant development, and there should be a traffic and parking review if any further major changes are considered. In response to concerns about parking, CMHC has indicated two possible initiatives:

1. To improve parking availability for evening movie use, pay parking has been eliminated after 6 p.m. That will enable movie and live theatre patrons to use many covered parking spaces; and

2. Redevelopment plans for the Ocean Cement site may see their occupancy reduced to half the present site, while the other half would be used for a parking garage. The applicant will be asked by CMHC to pay $200,000.00 towards the construction of this garage at the approval stage, and another $300,000.00 at the point of development.

A condition of approval is recommended in Appendix B as confirmation of this commitment.

Local Cultural Component: The applicant has offered a program of support for local cultural organizations. Staff have reviewed their submission and recommend, should Council approve this application, that the applicant enter into a Community Use Agreement to formalize the rights and terms of access for the non-profit cultural and educational community. The points of the agreement are listed in Appendix B, condition (a) (iv).

The applicant is also proposing less specific programs to provide promotional, marketing, funding, and educational initiatives and support to the cultural and film industry through the Granville Island Film Society. While staff commend the applicant for the spirit of these proposed programs, staff have not included them in the proposed community agreement as several are outside of the applicants’ sole purview (i.e., several require the ongoingparticipation of third parties - educational institutions and unions), and others are dependant on the applicant’s programming choices (talk-back nights, promotion of Canadian artists and filmmakers, etc.).

Finally, staff commend Famous Players for their proposal to formalize and expand their charitable funding to include Vancouver cultural organizations and would welcome the opportunity to work with them to develop policies and programs to equitably respond to the Granville Island and Vancouver cultural community.

Cultural Planning staff have reviewed the proposals of cinema use and cultural programs. While they are extremely supportive of initiatives to increase both screening opportunities for Canadian films, and the year-round, night-time activities on Granville Island, staff note that the City is unable to restrict or direct film choices which may or may not be compatible with Vancouver’s image of Granville Island and the spirit and intent of its founding cultural mandate. However, Council may wish to direct staff to monitor programming and report back on an annual basis.

On the basis of the applicants’ expressed interest and willingness to work with the local film industry and cultural community, on balance, staff recommend support of this application.

Building Form: The form of development received unanimous support from the Urban Design Panel. The proposal is seen to be a good example of context architecture, fitting well into the character of the Island despite the large volumes needed for the six screening rooms.

Public Input: The applicants held public Open Houses prior to submitting the proposal for City approval, and City staff have sponsored four Open Houses in May and June, 1998. The following issues have been raised:

… Precedent: Many people are concerned about the effect this particular use will have on what is considered to be a delicate balance of industry, maritime activity, arts and crafts, retail, restaurants, live theatre and the Public Market that gives Granville Island a unique small-scale character not found elsewhere in the Lower Mainland. Opponents are concerned that a national or international movie theatre chain operation may disrupt the balance by bringing to the Island one single large commercial operator, who may then be followed by others. This concern is valid and one that City staff are also concerned about. CMHC has been a good manager of the Island and the changes to date; however, it is agreed between City staff and CMHC officials that before further change occurs, it is time to review the Reference Document originally adopted in 1978 by CMHC and the City.

CMHC has provided a response to these concerns in Appendix F.

… Traffic: Residents in the vicinity and businesses on Granville Island are concerned that the new movie theatres will aggravate already congested streets leading to Granville Island, with particular concerns about the effect of matinees on weekends and holidays. Staff suggest above how this might best be handled.

… Parking: Businesses on Granville Island are particularly concerned that parking will be taken up by movie goers for about two hours, particularly with Saturday, Sunday and holiday matinees. This will reduce the available parking for shoppers. Engineering have concluded that adequate parking will remain and that for further significant development to occur, additional parking and/or other transportation improvementswould be necessary.

CONCLUSION

It is hard to judge, in definitive terms, the suitability of the proposed use within the contemporary context of Granville Island as it has evolved, both physically and functionally. Having addressed the issues of traffic, urban design, and implications for the wider theatre market, there is still the question of the fit of a movie theatre complex with the character of the Island. On the one hand, there are those who highly value the non-profit and semi-profit arts and cultural orientation of many island activities. On the other hand, others would argue the commercial tenants on the Island play a major role in its vibrancy. There are major components of both, and the balance of their impacts and contributions to Island character as commercial and other uses have been introduced or expanded is difficult to discern, although the net effect of the combination always has, and continues to work very well.

In light of CMHC and the Urban Design Panel support and acknowledging that solutions have been framed to deal with specific concerns, City staff conclude that the theatre complex proposal will not adversely affect Granville Island and is in keeping with the original intent for the Island, which was to provide for a balance between commercial and non-commercial enterprises. The form of development is in keeping with the architecture of Granville Island, and consequently the Director of Central Area Planning recommends that the proposed amendments to the Reference Document be referred to a Special Meeting of Council, and that the amendments be approved.

LIST OF APPENDICES

APPENDIX A Proposed Reference Document Changes

APPENDIX B Conditions of Approval

APPENDIX C Extract from Reference Document and

Theatre Proposal and Reference Document Comparison

APPENDIX D Additional Information

APPENDIX E Plans for Proposal (Reference Only)

APPENDIX F Responses from CMHC, the Public, Other City Departments

and Applicant’s Comments

APPENDIX G Applicant and Development Proposal Information

PROPOSED REFERENCE DOCUMENT CHANGES

1.0 Amend Subsection 5.1 (LAND USE) as follows:

1.1 Amend clause (c) [Institutional] by replacing 120,000 sq. ft. with 185,000 sq. ft.

1.2 Amend clause (d) [Maritime] by replacing 60,000 sq. ft. with 92,000 sq. ft.

1.3 Amend clause (h) [Restaurants and entertainment] by replacing 50,000 sq. ft. with 77,000 sq. ft.

1.4 Amend clause (i) [Retail] by replacing 35,000 sq. ft. with 54,000 sq. ft.

1.5 Amend clause (j) [Office] by replacing 25,000 sq. ft. with 52,000 sq. ft.

Alternatively, if Council chooses not to support the current proposal, approve only 1.1, 1.2 and 1.5 above.

APPENDIX B

CONDITIONS OF APPROVAL

(a) THAT the applicant shall obtain approval of a development application by the Development Permit Board, who shall have particular regard to the following:

(i) secure 109 parking spaces for use by the movie theatre operation, to the satisfaction of the Manager of Engineering Services and the Director of Legal Services;

(ii) provide a legal agreement to provide parking in the future, payment-in-lieu or improved transit to the Island, to the satisfaction of the General Manager of Engineering Services, the Director of Legal Services and the Director of Central Area Planning;

(iii) provide a legal agreement that matinees will be cut back for any periods where parking/traffic problems become overwhelming, as determined by the General Manager of Engineering Services; and

(iv) provide a legal agreement to the satisfaction of the Director of Cultural Affairs and Director of Legal Services, for the following:

… equal access to Vancouver’s non-profit community, cultural and educational organizations to the screening rooms and ancillary support areas for film and video screenings, readings, performances, seminars, special events, or meetings at no cost, for a minimum of 15 hours per month to include a balance of weekday, weekend and evenings hours. The agreement will also include a process for advertising and booking the space;

… in addition to the previous requirement above, equal access Vancouver non-profit community, cultural and educational organizations to the screening rooms and ancillary support areas for festival screenings of film and video, at no cost, for a minimum of three 5-day periods per year;

… equal access to Granville Island based non-profit cultural organizations to advertising opportunities including on-screen, house program and display board promotions;

… equal access to Vancouver-based visual artists and art educational organizations to opportunities for displaying their work in the cinema lobbies for a minimum of six 10-day exhibition opportunities per year. Priorityshould be given to artists and art schools based on Granville Island; and

… equal access to Vancouver-based film students to any training, mentorship and employment opportunities offered.

APPENDIX C
Page 1 of 2

EXTRACT FROM THE REFERENCE DOCUMENT

APPENDIX C
Page 2 of 2

(MOVIE) THEATRE PROPOSAL AND REFERENCE DOCUMENT

COMPARISONS

APPENDIX D
Page 1 of 3

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: This site is located on Granville Island, immediately north of the recently renovated Granville Island Brewery, which is situated on the north-east corner of Cartwright and Anderson Streets.

Proposed Cultural Content: The applicant has supplied the following overview:

“Cultural Connections: The Granville Island Film Centre will offer a program of support for local cultural organizations on Granville Island and the film industries of British Columbia. As Director of Cultural Programs for The Granville Island Film Centre, local arts advocate Elizabeth Ball is appointed to consult with the local cultural and film community to establish links, seek ideas and identify needs which could be met by the intimate cinema space planned for Granville Island.

An independent non-profit society will be created to further all the cultural activities surrounding the film centre on Granville Island. Membership of those individuals with a special interest in the development, education and promotion of Canadian film artists and related cultural organizations is actively being sought.

Education Program: In concert with the respected Pacific Cinematheque educational outreach program, the Granville Island Film Centre will develop the Film Literacy Project, an in-depth media education programme, which will satisfy a growing need for, and interest in, media literacy program in our secondary schools. Such a program will provide student audiences with FILM Study Guides which will place important films in historical and societal concert as well as making young audiences aware of the contributions of Canadian arts both in Canada and throughout the world. Speakers program, teacher training and student workshops will also be available. To illustrate the influence of Canadian directors, technicians and actors the biographies and photos of Canadian technicians and artists will be featured in the lobby while their films are playing.

In keeping with provincial education aims, student internship program will be facilitated, enabling students to fulfil their secondary school CAPP requirements.

A Mentorship Registry for youth interested in working in any aspect of the film industries including production, distribution and exhibition will be established, thereby widening job opportunities and first hand information available through connections with working professionals.

APPENDIX D
Page 2 of 3

The film centre will work closely with the Emily Carr Institute of Art and Design to assist the college with the development of student film festivals and to move forward the projected Canadian Museum of the Moving Image which is seeking a home on Granville Island.

The film centre will also work in co-operation with the education al programmes developed by the local office of the National Film board, which has recently relocated in close proximity to Granville Island.

Promotion of Canadian Talent: Each of the sic small cinema lobbies will feature the name, photo and biography of a Canadian Director celebrated throughout our film history. This will be a unique gesture of recognition for our film pioneers and will also raise an awareness in the general public of the rare talents Canada has fostered.

Regular Talk-Back Nights will be scheduled for the general public, featuring local and visiting talents who will discuss their roles in the industry and in the film that is being featured. Audience members will be given an opportunity to ask questions and will enjoy an insiders look at the making of a film.

The centre will provide Casting Call-Boards with special notice given to films by Simon Fraser University, University of British Columbia, the Vancouver Film School and the Emily Carr Institute of Art and Design film students.

Special showings and premieres of Local Independent Films will be arranged whenever possible in order to aid the individual film maker with distribution and promotional opportunities.

Regular periodic Film Festivals will be scheduled, featuring the best in student films from local professional training program. There will be a special interest in multi-cultural films developed and produced in British Columbia.

Support Programmes (sic) for Cultural Organizations and Artists: Granville Island Cultural Organizations will be granted generous use of the screening rooms during the times when films are not shown. Access at reasonable and affordable rates will be granted for performances, readings, seminars and classes appropriate to the space. Organizations who stand to benefit would include, but not be limited to the Vancouver International Writers’ Festival, the Vancouver International Comedy Festival, Arts Umbrella, Carousel Theatre Company and School, Arts Club Theatre, Playwrights Theatre Centre and the Emily Carr Institute of Art and Design.

APPENDIX D
Page 3 of 3

Island Visual Artists would be invited to display works of art inspired by film subjects in the cinema lobbies. Yearly commissions selected from the graduating class of Emily Carr and local professional artists would provide a unique opportunity for a marriage of arts disciplines and public exposure for those individual artists.

Theme Weeks with local live theatre programming and premiers of major films will be encouraged, providing rare opportunities for fund-raising and marketing opportunities for the not-for-profit arts organizations. For example, the opening of Hamlet, the film, could be tied with a local performance of Twelfth Night to provide a gala fund raiser for the producing organization.

A Granville Island Cultural Passport will be developed in co-operation with Granville Island CMHC and all the cultural agencies who wish to participate in the development of a long term marketing tool. The passport would enable attendees at one cultural event on the island to attend another event at a special offer or to receive a value added service. The passport would also be the means to develop an extremely useful mailing list available to all participating organizations for their individual marketing campaigns.

APPENDIX E
Page 1 of 4

DEVELOPMENT PROPOSAL

Shown for Information Purposes Only

RESPONSES FROM CMHC, THE PUBLIC, OTHER CITY DEPARTMENTS
AND APPLICANT’S COMMENTS

CMHC: Canada Mortgage and Housing has provided the following comments:

“As a result of the ‘Under the Bridge’ proposal for Granville Island, comments have been received from the public as this being the “thin edge of the wedge” for big box retailers to make their way onto the Island. It is more the nature of film distribution in Canada that brings a Famous Players on the scene rather than a change in development philosophy by CMHC. Famous Player’s ownership notwithstanding, the cinema will be operated independently as the Granville Island Film Centre. It is also worth noting, cinemas have always been considered a possible pursuit on Granville Island and have been documented as such as far back as 1975.

Granville Island will remain a people-place for all Vancouverites and their guests to enjoy. CMHC remains committed to maintaining that fine balance between commercial enterprise and smaller scale artisan and cultural uses that co-exist today. In fact, it is the commercial uses paying market rents that help off-set the lower rents paid by cultural tenants.

The fact that the cinemas have been placed on the second floor of the project is also consistent with Granville Island’s philosophy of placing less visible uses away from the street level. Rather than developing the ground floor uses as a ‘mall’, this is seen as an opportunity to create interesting, small-scale pedestrian-oriented uses that will give the new gateway to Railspur Alley some vitality.

Future development activity will include Building 33, further east along Railspur, as a possible series of artisan studio-workshops which will further encourage ground level pedestrian activity. Another opportunity will exist for a mixed-use development of the Morrison Steel Building at the east end of the Island.

Granville Island will change over time to reflect its changing circumstances. The principles that have guided development over its first 25 years are still expected to guide its next 25 years.”

Public Input: Notification letters were sent to nearby property owners surrounding Granville Island and delivered to businesses on Granville Island by CMHC. Four City sponsored open houses were held in May and June to which approximately 800 people attended. A notice sign was posted on the site.

Responses to the proposed threatre development have been received from a number of sources:

1. Sample Survey at Open Houses:

Planning staff provided a simple survey with choices plus room for comments at the four open houses. The following table shows the choices and the responses to each:

Choices	Number of Responses
I support the proposal	105
I oppose the proposal	142
I have not reached an opinion about the proposal	19
Total Responses	259

2. Individual Letters:

City staff have, in addition to the above, on file written responses, indicating 75 individuals in support of the proposal and 39 against. Included are a number of letters presented by the applicant in support from the operator of the 5th and Burrard Festival Cinema and a number of Granville Island operations, specifically the Granville Island Brewery, the Creek Restaurant, the Milkman Dairy Bar, the Granville Island Hotel and the Granville Island Keg Steakhouse and Bar.

A letter in support of the additional theatre complex is on file from the President of Festival Cinemas, which includes 5th and Burrard, Park and Varsity theatres.

King Ganong, previous Chairman of the Granville Island Trust, has also written a letter in support, offering the following comments:

“...One of our considerations in planning and proceeding with the development of Granville Island was to have an area that could be used both day and evening where a wide cross section of the community could find activities of interest. Perhaps even more critical today than at that time is the importance of providing for some affordable family evening activity. As you know, this opportunity does not currently exist on the island...

“Theatres were among the many proposed uses suggested by our consultants in the early days. In fact, I recall we once received a proposal for a cinema or movie theatre. Unfortunately I don’t remember the details and I no longer have any files or records to check back on. Perhaps this was one of the proposals we received at the time the Kids Only Market was accepted and approved for development.”

A second individual involved in the early planning of the Island, former City Councillor Dr. Walter Hardwick, offers a position in opposition to the proposal:

“I am astounded that Central Mortgage and Housing Corporation would be considering a multiplex cinema on Granville Island plus a shopping mall. In particular the Island’s manager assertion that there needs to be ‘mainstream blockbuster movies’ to make the project work is not at all comforting to those of us who were involved with the founding of the Island as ‘a people place’ in the centre of the city.

Between 1970 and 1974 I was chair to the special committee of the Vancouver City Council with responsibility to redevelop the south side of the Creek for mixed uses. It was essential from a planning perspective that the National Harbours Board give up the industrial uses of the Island in favour of more urbane activities. There was intense lobbying with the federal government and eventually the minister responsible forCMHC, Ron Basford, was able to pry the Island away from the National Harbours Board. In the process the NHB gave the lease to Ocean Cement that goes into the next century and former Mayor Bill Rathie and NHB board member thought that action would be enough to derail the redevelopment. Fortunately he failed and the Trust planted trees around that site.

I became Deputy Ministry of Education and Science in 1976 and in that capacity I enabled the Emily Carr College of Art to move from the Vancouver City College site on Hamilton Street to the Island. The importance of the College was to build momentum for redevelopment but also to provide an activity that would attract others who were interested in arts and crafts to the Island and in the process further defining the non-commercial community aspects of the Island. I was a supporter of the creation of the Market and it continues to be an enormous success.

This brings me back to the cinema. A cinema is simply a for profit enterprise that will compete with the existing activities on the Island. It will be attracting traffic at just the same times as other major uses. This is unacceptable from my perspective. Granville Island has a unique mix of activities including arts and crafts, small businesses and cultural organizations. We don’t need to turn the Island into a Granville Mall, Gastown or Robson Street. Those streets have their own character.

I agree with a number of people who are arguing the Famous Players is being given a deal that will not require them to provide parking such as would be required in any other development site within the city. Why the subsidy? Famous Players is opening suburban multiplexes every few months and in every one of them parking must be provided at their expense.

I am surprised at the lack of process on behalf of CMHC. As far as I can see there was no proposal call, nor was there any consultation with existing businesses or the neighbouring residential complexes. It would seem to me that if a project providing 1000 seats and attracting perhaps 750 automobiles per day were to be put forward, its compatibility with other functions should have been a high priority and some public consultative process would have been in order.

I am also interested in the role of the city planning department in this process. I guess the federal government could claim that they can ignore the City and its zoning bylaws but this tact runs against the original intent of the Island and implicit if not explicit agreements between the former Trust and the City. I am referring to the Trust, once chaired by Maurice Egan, that governed the Island as trustees, not absentee owners based in Ottawa. I would urge the City to use every means in it s power to prevent the project from getting the needed approvals to proceed.

It is my view that CMHC should consider more appropriate uses for this site and provide a public accountability to determine future uses and protect the integrity of this unique urban domain.”

3. Petitions

Two petitions have been received:

… A petition with 332 signatures in support, addressed to CMHC and Mayor and Council, City of Vancouver, is worded as follows:

“Granville Island was created by the Federal Government in 1973 expressly for the use of ALL residents of Vancouver. We, residents of Vancouver, use the Island for food shopping, for our children’s activities and for culture and entertainment. We want to see it thrive and keep up with the times.

We support the proposed Under the Bridge film centre which will infuse new life and excitement into the evening hours on Granville Island. Movies are as representative of the culture today as are theatre, concerts and ballet. We feel that this project is fully in keeping with the original philosophy that created the city-wide treasure of Granville Island. We congratulate CMHC and the Granville Island Trust for approving the concept and urge you to do all you can to make this project a reality as soon as possible.”

… A petition with 625 signatures in opposition is worded as follows:

“We, the undersigned, are opposed to the Famous Players six-screen, 1,000 seat movie theatre and retail shopping complex that is proposed to be built at the entrance to Granville Island. We urge CMHC and the City to reject their development application.”

The response forms will be on file with the City Clerk, as some very detailed comments were provided by members of the public on both the current proposal, present and future concerns, and opportunities for the Island.

Engineering Services: The City Engineer has no objection to the proposed rezoning, provided that the applicant complies with conditions as shown in Appendix B.

Urban Design Panel Comment: The Urban Design Panel reviewed this proposal on January 28, 1998 and supports the proposed use, density and form of development.

Detailed comments are as follows:

EVALUATION: SUPPORT (6-0)

… Introduction: Rob Whitlock, Rezoning Planner, presented this application to develop a theatre complex,"Under the Bridge", on Granville Island. The proposal includes retail and theatre entry at ground level, with the second floor devoted almost entirely to six movie screen theatres, ranging in size from 130 - 280 seats. Display space for the B.C. film industry will be provided as well as some programming for local film producers and festival events.

There is no specific FSR established for Granville Island, rather the Granville Island Reference Document sets out maximum floor space totals for eleven broad use categories. Height is limited to 55 ft., and the form of development parameters speak to reflecting the historical qualities of Granville Island. Staff believe some technical modification to the Reference Document may be required to expand one of the land use categories. The island is Crown land so effectively there is no zoning in place. At this stage, there is no parking specifically being provided for this project. It is being handled within the overall allotment for the island.

… Applicant's Opening Comments: Norm Hotson, Architect, said the principal goal is to develop an entertainment complex to inject a new activity into the island mix for nighttime. The ground floor uses are intended to interact well with cinema use. Mr. Hotson described the proposal and design rationale.

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

The Panel unanimously supported this proposal.

The proposed uses are entirely compatible with the existing Granville Island uses and consistent with the objectives for the Island. This particular location is also very appropriate; it will provide an excellent addition to what is currently a dark area. It will extend the liveliness of the Granville Island environment and likely provide a residual benefit to some of the existing island uses. The building has been nicely integrated into the existing fabric. Circulation issues seem to have been well resolved. The Panel was also enthusiastic about the direction being taken with respect to materials.

The applicant was strongly encouraged to ensure that individuality of the retail store fronts is achieved so that they will contribute to animation at street level and give the appearance of a number of small storefronts rather than one big building.

The Panel was satisfied that parking issues are being addressed by others.

Given the transparency of the upper theatre level from Anderson Street, the applicant was urged to ensure that the interior design is an extension of the exterior architectural vocabulary. The concern was that the more typical imagery associated with this use could be quite jarring and inappropriate in this context.

With respect to the skylight, the comment was made that its appearance and long term maintenance could be a serious problem in this harsh location with birds roosting above.

Although one Panel member had reservations about the proposed projection signage, others strongly supported it and thought it provided an opportunity for greater expressiveness.”

ENVIRONMENTAL IMPLICATIONS

Nearby access to transit and commercial services may reduce dependence on use of automobiles.

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:

APPENDIX F
Page 7 of 7

“We agree that the report is objective, comprehensive and well balanced.

CMHC ‘Development’ Permit Process:

Our Development Permit Application differs from other applications the City normally receives, in as much as we will have gone through two DeFacto development processes. We applied to CMHC on Granville Island two and a half years ago and went through a comprehensive review process that included intensive and broadly based studies which concerned the total impact of this project. CMHC concluded that our project would contribute dynamic and needed elements which would enrich the usage, spirit and atmosphere of the island. Therefore City Council has the benefit of a review by a Federal Agency (CMHC), the party most directly responsible for the operation of ‘Granville Island’ and their concurrence.

History of Developers:

As originators, owners and operators of Bridges Restaurant for the past 18 years, we have a proven record, not only of commercial success, but also of social and cultural contributions to the Island Community. We have continually supported such institutions as the Arts Club Theatre, Arts Umbrella, The Waterfront Theatre, Carousel Theatre, Emily Carr and the Granville Island Public Market.

As long standing members of the Island community and with a strong vested business interest on the island, we have every incentive to strengthen the Island’s concept and help it survive and prosper in future years. We would never propose a project which would jeopardize our own or Granville Island’s continued success.

Intention of the Developers:

Since the inception of this project three years ago we have made extraordinary efforts to meet with as many interested parties as possible. We have met with local residents, the executive of the False Creek Residents Association, Local Merchants, in the Public Market and throughout the Island, and the various arts and cultural institutions on the Island. This project reflects the input from the various meetings held, as well as input from the Granville Island Trust and CMHC Granville Island Staff. We feel that the resulting proposal will make an outstanding contribution to the Island. We intent to continue to solicit input from interested parties throughout the refinement stages of this project.

We hope the project can now proceed in an expeditious manner.”

APPENDIX G

APPLICANT AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

DEVELOPMENT STATISTICS

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(c) 1998 City of Vancouver