Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Vancouver City Council

FROM:

Director of Central Area Planning

SUBJECT:

Downtown Granville Street - Sign By-law Amendments

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Current Sign By-law provisions regulate the number, type, form, appearance and location of signs according to districts and uses. The intent of the Sign By-law is to permit signage which provides information that identifies and locates rather than advertises. It also seeks to minimize the visual intrusion of signs on housing by limiting the size and scale of signs adjacent to residential districts. Generally, in areas where residential is less prevalent, Sign By-law regulations are more permissive. Third-party advertising is limited to no more than 30 percent of the copy area of a sign. For downtown Granville Street, the Sign By-law encourages the use of neon and allows animated signs south of Georgia Street.

In 1997, Council approved new policies and regulations for Granville Street which identified the 700, 800 and 900 blocks (Nelson to Georgia) as an entertainment district to encourage the relocation and establishment of a variety of licensed night clubs, bars and pubs. Outside the entertainment district on the blocks south of Nelson Street, there will be a mix of neighbourhood and city-serving retail, hotels, housing and entertainment establishments which already hold liquor licenses.

PURPOSE AND SUMMARY

This report recommends the referral of Sign By-law amendments to public hearing to establish more flexible regulations and opportunities for innovative new types of signs on Granville Street, focusing on the Granville Entertainment District. It also recommends by-law amendments that will adjust the formula for calculating the proportion of third-party advertising.

Over the past several years Council has approved a number of initiatives to revitalize Granville Street. Until the late 1960s Granville Street was known as a showcase of vibrant, colourful neon signs. With the decline of Granville Street and the introduction of more restrictive sign regulations, some of the signs permitted in the past are no longer permitted.

The proposed Sign By-law amendments will provide sign designers with more flexibility to design larger, more colourful signs that use neon, animated lighting and include moving elements as well as other emerging technologies such as video and fibre optics. These amendments will establish sign regulations for Granville Street which are more flexible than those found elsewhere in the city.

The amendments provide:

· significant incentives for the use of neon lighting or other innovative sign designs by requiring that signs which exceed the current size limitation to include neon or moving objects or animated lighting effects;
· further incentives for neon by permitting:
- projecting neon signs to extend above the roof line, on sites north of Nelson Street
- neon canopy signs on the roofs of canopies, and
- canopy, facia and projecting neon signs to cover up to 30 percent of windows, but excluding residential buildings and hotels;
· more flexibility in the content of signs by allowing an increased use of text and graphics;
· measures to reduce residential impacts, on sites south of Nelson Street, by not permitting on these blocks:
- signs above the roof line,

- for sites between Hastings and Nelson Streets, requiring that animated and flashing signs be oriented to Granville Street and located on the front face of buildings; and
· increased opportunities for the use of third-party advertising which provides a merchant with a funding source to pay for higher quality signage.

For the purposes of preparing the by-law amendments, staff identified three sub-areas of Granville Street:

· the downtown area between Hastings Street and Georgia Street;
· the entertainment area between Georgia Street and Nelson Street (corresponding to the boundaries approved by Council);
· the commercial-tourist area between Nelson Street and Drake Street.

Staff are proposing that the largest and most colourful signs should be permitted in the downtown and entertainment areas of Granville Street (Hastings Street to Nelson Street) to spur the revitalization of these blocks, while respecting the potential for residential development south of Nelson Street on Granville Street (Appendix A). At the hearing, Council may also decrease residential impacts by not approving some of the recommended provisions.

The sign by-law amendments have been drafted to give Council the choice of extending the largest and most colourful signage south of Nelson Street (see Appendix A1). Council could also choose to only permit the largest signs in the entertainment district (see Appendix A2).
As a result of this choice, one of the options for the remaining blocks of Granville Street, north of Georgia Street, is to regulate them under Schedule B which applies to other sites in the downtown core.

Lastly, staff suggest that the amendments for third-party advertising should apply on Granville Street and in other areas of the city. It is proposed that the third-party advertising content should be calculated as a proportion of all of a frontage's signage. Currently, it is calculated as a proportion of each sign. This amendment will provide businesses with more flexibility in advertising available products and services and reflects the growing number of signs which do not conform to current by-law provisions.

BACKGROUND

During 1996 the City initiated a series of consultancies to assist in the revitalization of Granville Street, including the preparation of a facade handbook. In 1997, as a consultant for the City, Hotson Bakker Architects completed " Design Handbook for Building Frontages on Granville Street." The handbook identified the desirability of `festive three-dimensional signage' and special treatment of theatres and corner locations as key components in revitalizing Granville Street. With the assistance of the Spaxman Consulting Group, staff have drafted Sign By-law amendments.

The new sign regulations should be in place in 1999 to ensure that the new pubs and cabarets that will be established in the entertainment district can take advantage of the opportunities for larger more colourful signs.

At a July 1998 public hearing, Council approved amendments to the Sign By-law which provide more opportunities for larger signs for the International Village marketplace. Similar to the amendments approved for International Village, the following sign by-law amendments will permit larger signs and provide sign designers with more flexibility on Granville Street.

DISCUSSION

The recommended Sign By-law amendments are discussed below.

Boundaries

There are three distinct character districts on Granville Street (see map in Appendix B) based on Council's policies and the uses permitted by the zoning. They are:

· the downtown area (400, 500 and 600 blocks - Hastings to Georgia): This area contains retail and large office buildings. Residential is not permitted on these blocks or adjacent areas;
· the entertainment area (700, 800 and 900 blocks - Georgia to Nelson): This is the entertainment district identified by Council policy where a significant number of cabarets and pubs will be established on these blocks. Residential is not permitted on Granville Street and is permitted on adjacent blocks of Seymour and Howe Streets;
· the commercial-tourist area (1000, 1100, 1200 and 1300 blocks - Nelson to Granville Bridge): Unlike the blocks to the north, consideration must be given to the impact of large neon, animated and other signs on housing. Housing is a permitted use on these blocks and adjacent areas.

Staff are proposing that the largest and most colourful signs should be permitted in the downtown and entertainment areas of Granville Street (see Appendix A). Staff first drafted amendments that would focus the largest and most colourful signs in the entertainment area. Business groups (see letters in Appendix C) urged staff to permit such signs on all of Granville Street between Hastings Street and Drake Street to spur revitalization. Staff agreed with extending the opportunities for larger signs to the blocks north of Georgia Street, but were cautious in supporting such signs on blocks south of Nelson Street due to the proximity of current and future residential development (see Appendix B for the locations where housing is permitted). Concerns have been raised by Downtown South residents regarding signs projecting above roof lines. At the hearing, Council may decrease residential impacts by not approving some of the recommended provisions.

The sign by-law amendments have been drafted to give Council additional choices at the public hearing such as extending the largest and most colourful signage south of Nelson Street (see Appendix A1). Council could also choose to only permit the largest signs in the entertainment district (see Appendix A2). As a result of this choice, one of the options for the remaining blocks of Granville Street, north of Georgia Street, is to regulate them under Schedule B which applies to other sites in the downtown core.

Staff have met with representatives from the sign industry, downtown south residents and business groups and discussed the following sign by-law amendments.

Banners

Allow banners under the provisions applying elsewhere in the city: The proposed amendments will allow the same flexibility available in other areas of the city for the content of banners in cases where the copy relates to a non-profit or public agency.

Awning and Canopy Signs

For canopy and awning signs, increase the Permitted Copy Area to 100%, but restrict logos and text to no more than 50%: The current by-law restricts copy area (which includes everything but background colour) to no more than 40% of the sign. Due to the lack of discretionary approval for the appearance of signs, copy area is relied upon to prevent unattractive signs which are dominated by large letters or other graphics. This does reduce the opportunities for innovative signage with significant amounts of graphics. Staff recommend the increased copy area as a test case and believe that the 50% limit on logos and text will reduce the possibilities for unattractive signage. Associated graphic elements can make up the remaining copy area.

Allow canopy signs to be on a canopy roof in cases where they incorporate neon lighting: This change will provide more flexibility for sign designers and encourage the use of neon.

Allow no more than 30% of a window to be covered by a canopy sign: Currently, no windows can be covered by signs and this reduces the opportunities for canopy roof signs. The proposed amendment will allow for more flexibility, but still allow for light and ventilation of a building. Staff recommend that the current restriction remain for the windows of hotels and residential buildings.

Under-Awning and Under-Canopy Signs

Allow two under-awning and under-canopy signs: Currently, premises are restricted to one sign. However, there are opportunities on corner sites and larger frontages to have more than one sign.

Allow larger under-awning and under-canopy signs: Some merchants would like to have larger signs and as long as there is sufficient clearance for pedestrians, this is not a problem.

Facia Signs

These signs include the majority of signs in Vancouver and are required to be attached to the wall of a building, have an exposed face which is parallel to the wall and project no more than 400 mm from the wall.

Increase the Permitted Copy Area to 100%, but restrict logos and text to no more than 50%: See discussion for canopy and awning signs.

Allow larger signs, in cases where they incorporate neon, or are animated or moving signs: It is recommended that the size of permitted facia signs be increased from the current by-law limit of 0.3 sq. m2 per metre of frontage, where a higher quality sign is proposed. Currently, larger signs are only permitted in cases where neon is used. However, the sign industry representatives suggested that incentives should be provided for other types of elements that will improve the quality of the sign, as in the case of animated or moving signs.

Limit flashing, animated and rotating signs to the blocks north of Nelson Street: This measure will ensure that some of the more intrusive signs do not occur on blocks where housing is permitted.

Allow no more than 30% of a window to be covered by a sign: See discussion for canopy and awning signs.

Freestanding Signs

Increase the Permitted Copy Area to 100%, but restrict logos and text to no more than 50%: See discussion for canopy and awning signs.

Allow larger signs in the case of moving, animated and neon signs: Current regulations allow larger freestanding signs where they incorporate neon. Staff recommend that this be expanded to animated and moving signs.

Automatic Changeable Copy Signs

Permit automatic changeable copy signs in the entertainment district and the blocks north of Georgia Street: These types of signs include the electronic message and time/temperature signs. An emerging type of sign includes video displays and light emitting diode (LED) signs as seen in sports stadiums. The various kinds of automatic changeable copy can be used in canopy, facia and projecting signs but should not be permitted where housing is allowed on the blocks south of Nelson Street.

Marquee Signs

Increase the Permitted Copy Area to 100%, but restrict logos and text to no more than 50%: See discussion for canopy and awning signs.

Projecting Signs

Allow signs to project over a street up to 4 m (but no less than 600 mm from the nearest curb) in cases where they incorporate neon, or animated or moving signs: Projecting signs are the most innovative sign type on Granville Street and sign designers should be given more flexibility. Currently, projecting signs are limited to projections of 3 m. However, larger signs should be permitted in cases where the sign includes neon, animation or moving elements.

Signs should be able to project up to 40% of the building height above the building face, in cases where they incorporate neon, or animated or moving signs: Staff support this increased height because it is expected that some buildings may only be one or two stories and a larger sign will require the flexibility to be above the roof line. It is proposed that the signs be no higher than the current prevailing building height limit (27 m or 90 ft.).

Only permit one projecting sign for each storefront and one additional sign for either one or all of the tenants in a building: With new opportunities for larger projecting signs, staff believe that this additional regulation is needed as a safeguard to prevent the proliferation of signs which can result in visual clutter. Each ground floor tenant can have a projecting sign and one combined sign for upper storey or other merchants or one of the principal tenants will be permitted

Allow no more than 30% of a window to be covered by a sign: See discussion for canopy and awning signs.

Flashing, Animated and Rotating Signs

Permit signs which flash, animate or rotate on the frontage of an interior site and on both frontages of corner sites but limit these to the blocks north of Nelson Street: This will clarify that these types of signs are permitted on the front of a building face. It is recommended that these signs only be permitted in the blocks north of Nelson Street because residential is permitted on the southerly blocks of Granville Street.

Reducing Impacts of Signs on Residents

The following measures will reduce the impacts of signs on housing (see Appendix B for locations where residential is permitted):

· flashing, moving and animated signs will not be permitted on the blocks south of Nelson Street;
· projecting signs above the roof line and automatic changeable copy signs will not be permitted on sites south of Nelson Street;
· signs with special lighting effects (e.g. flashing, animated etc.) must be oriented towards Granville Street;
· moving signs must be kept below the roof line of a building; and
· projecting signs have to be on the front face of buildings.

Staff support larger signs for Granville Street and signs projecting above the roof line on sites north of Nelson Street because this is one of the few areas of the city where particularly large signs would be considered.

At the public hearing, Council could consider other measures such as capping the maximum size of projecting and facia signs or not permitting projecting signs above a building's roof line in the entertainment district.

In addition, since July staff have been discussing with sign designers and manufacturers alternatives for regulating the illumination levels of signs. To date, a workable regulation that is readily enforceable has not been identified. Staff will report on this topic once this study has been completed. The key problems are that the illumination levels are highly unpredictable and there will be significant differences between the rated output of signs and the actual output of an installed sign depending on sign design, location and air temperature. It is also difficult to measure the output of signs with staff having to measure illumination levels on signs which may be located from 2 to 10 storeys above grade on Granville Street or up to 30 or 50 storeys in other locations of the city. The perceived brightness of a sign is also dependant on the number of bright signs surrounding it. Where there are more bright signs in the immediate vicinity, the perceived brightness of a sign will be reduced.

Third-Party Advertising on Granville Street and Elsewhere in the City

Staff are also proposing that 30 percent of a frontage's total signage be allowed to include third-party advertising. Currently, third-party advertising is calculated as a proportion of each sign. This advertising includes signs identifying the array of products, services and brands available. On Granville Street, the third-party advertising will be a major source of revenue for larger and higher-quality signs. Many stores throughout the city, such as the 24-hour convenience stores already include such advertising which is non-conforming to the by-law. Therefore, staff propose amending the by-law to permit this type of signage content on Granville Street and elsewhere in the city.

Other Considerations

The Sign By-law has no provisions for discretionary approvals or the application of conditions on approvals to ensure good design or the reduction of impacts on adjacent housing. Staff expect that the new provisions for Granville Street will result in innovative, creative signs and some unattractive signs. Given the choice between providing sign designers more latitude and allowing larger, more colourful signage utilizing new technologies or continuing to be relatively restrictive in the regulation of signs, staff recommend giving sign designers more latitude.

Staff will report back on possible Vancouver Charter amendments to facilitate the introduction of discretionary provisions in the Sign By-law and related implications for by-law administration, including costs. However, staff recommend that the by-law changes recommended above should proceed now. If such authority is granted, Council will have to judge whether there is net value added when introducing this discretion, in regard to the extra time and cost involved with discretionary approvals and enforcement. The Downtown Vancouver Business Improvement Association and the Downtown Vancouver Association favour a design panel which could review the signs proposed for Granville Street (see Appendix C). Because current Charter provisions for the regulation of signs do not allow for discretionary approvals, there is currently no role for the involvement of an advisory panel in approvals.

CONCLUSION

Sign By-law amendments are required to provide opportunities for larger, more colourful, innovative and unique signage on Granville Street and in particular provide incentives for neon signs. Staff view the introduction of these amendments as one of several City initiatives for revitalizing Granville Street.

APPENDIX A

PAGE 1 OF 3

PROPOSED SIGN BY-LAW AMENDMENTS FOR DOWNTOWN
GRANVILLE STREET

The following types of amendments will be required to permit larger signs on Granville Street, provide incentives for neon and other types of special signs and respond to residential adjacencies. Please note that the numbers given in this appendices are subject to change based on further testing and refinement of the by-law.

Amendments to Section 2: Definitions

Add new Definitions to:

Amendments to Sections 9: Establishment of Schedules

- clarify that Schedule B (Commercial and Industrial Areas) does not apply to Schedule G (Granville Street - Downtown)

Amendments to Section 11(Additional Provisions)

- permit third-party signs, but limit to 30% of the copy of all signs associated with a frontage and apply this to all areas of the city
- permit automatic changeable copy signs and animated, flashing and moving signs on the blocks of Granville Street between Hastings Street and Nelson Street
- permit automatic changeable copy signs on canopies on sites on the blocks of Granville Street between Hastings Street and Nelson Street
- permit animation, flashing and other lighting effects and moving signs only on the front faces of buildings on sites between Hastings Street and Nelson Street and, require that lighting be oriented to Granville Street, except in the case of moving signs

APPENDIX A
PAGE 2 OF 3

Amendments to Schedule G

APPENDIX A
PAGE 3 OF 3

Amendments to Schedule G (Cont'd)

Map 3

APPENDIX A1
PAGE 1 OF 1

Additional Amendments if Council favours larger signs for all of Granville Street between Hastings Street and Drake Street

- permit projecting signs to be above the roof line of buildings between Hastings Street and Drake Street
- permit automatic changeable copy signs and animated, flashing and moving signs on the blocks of Granville Street between Hastings Street and Nelson Street
- permit animation, flashing and other lighting effects and moving signs on the front faces of buildings on sites between Hastings Street and Drake Street and require that they be oriented to Granville Street, except in the case of moving signs
- permit automatic changeable copy signs on the roofs of canopies between Hastings Street and Drake Street

APPENDIX A2
PAGE 1 OF 2

The following amendments are needed if Council chooses to focus the largest most colourful signs in the Entertainment Area

Amendments to Section 11(Additional Provisions)

- permit automatic copy signs and animated, flashing and moving signs on the blocks of Granville Street between Georgia Street and Nelson Street
- permit automatic copy signs on canopies on sites on the blocks of Granville Street between Georgia Street and Nelson Street
- permit animation, flashing and other lighting effects and moving signs only on the front faces of buildings on sites between Georgia Street and Nelson Street and require that they be oriented to Granville Street

Map 3 Amendment

Replace Map 3 with the following revised Map 3 should Council choose to focus the largest most colourful signs in the entertainment area (the 700, 800 and 900 blocks of Granville Street between Georgia Street and Nelson Street).

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