ADMINISTRATIVE REPORT

Date: November 26, 1999
Author/Local: Mario Lee/6034

Guy Gusdal/6461

RTS No. 1131
CC File No. 2611

Council: December 14, 1999

TO:	Vancouver City Council
FROM:	Chief License Inspector in consultation with the Director of Community Services, Social Planning, and the Director of Current Planning
SUBJECT:	Liquor License Review for the West End and CBD

RECOMMENDATION

A. THAT Council endorse the review time line and process, for the development of liquor licensing policy in the West End and the Central Business District, as outlined on this report.

B. THAT the resources and budget for the West End review, identified on this report, at a total cost of $25,500 be approved: funding to be provided in the 2000 Operating Budget.

C. THAT the resources and budget for the Central Business District review, identified on this report, at a total cost of $15,000 be approved: funding to be provided in the 2000 Operating Budget.

GENERAL MANAGER’S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A, B and C.

COUNCIL POLICY

· There is no comprehensive Council liquor license policy for the West End and the Central Business District (CBD). To date applications in these areas have been assessed on a case by case basis using established Council policy and practices which are described as follows:

1. New or amendments to a Class ‘A’ Lounge or Pub in a major hotel developments, Class ‘C’ cabaret, class ‘E’ Concert Hall/Stadium and Class ‘F’ Marine Pubs are subject to legal agreements, a good neighbour agreement, neighbourhood notification and for specific situations a time-limited development permit.

2. New Class ‘D’ Neighbourhood Pubs are subject to legal agreements, a good neighbour agreement, a time-limited development permit, neighbourhood notification and a referendum.

3. Amendments to existing Class ‘D’ Neighbourhood Pubs are subject to legal agreements, a good neighbour agreement, neighbourhood notification.

4. New Class ‘A’ Lounge (Social Club/Non profit society) or amendments to existing licenses are subject to legal agreements, a good neighbour agreement, neighbourhood notification and a time-limited development permit for new applications.

Council may, with any of the above liquor license applications, require the successful completion of a neighbourhood referendum in accordance with City guidelines if significant neighbourhood issues are identified.

· On July 11, 1996, City Council approved a series of recommendations on the Downtown Liquor Licensing Policy that included the following:

That the Director of Central Area Planning, in consultation with appropriate staff, local property owners, merchants, business organizations and the public, review and report back on the entertainment uses in the CBD, with special emphasis on an analysis of the suitability of the area to the south of Canada Place near Hastings, Pender and Hornby Streets, and the “Cultural Precinct” near Homer, Beatty, Robson and Dunsmuir Streets.

PURPOSE AND SUMMARY

This report recommends the adoption of a planning process, resources and budget for a review of the municipal liquor licensing policy for the West End (the area bounded by Burrard, Davie, Denman and Robson Streets) and the Central Business District (roughly bounded by Alberni, Seymour, and Bute Streets and the Burrard Inlet). The proposed time line is to conduct the West End review first, and then follow with the CBD review. The process involved for both reviews, includes a community and stakeholders consultation component and the formulation of policy recommendations.

BACKGROUND AND DISCUSSION

There has never been a specific liquor license policy for the West End or Central Business District. Existing city wide policy has been used to date to evaluate liquor license applications on a case by case basis.

The dynamics of both the West End and the Central Business District are such that the needs of the community, residents and businesses, are compromised through the application of global liquor policy that is generally more suited to suburban areas, like Kerrisdale, Marpole or Fraserview.

It is important to point out that the City already has a specific policy for the adjacent area of Granville Street. Also, it is imperative that the policy developed for the West End and Central Business District be compatible and sensitive to the issues, directives and goals of the Granville Entertainment “Theatre Row”.

I. West End Review

On October 5^th, 1999 City Council endorsed a recommendation of the Vancouver Liquor Licensing Commission to postpone a decision on a request for a Neighbourhood Pub application on the 1200 Block of Thurlow Street until a planning policy review of licensed seats in the area bordered by Davie, Denman, Robson and Burrard Street has been conducted.

It was Council’s stated intention that the product of the review be a comprehensive liquor licensing policy for the West End.

This policy will be used by City staff and the Vancouver Liquor Licensing Commission to evaluate proposals for new licensed establishments or amendments to existing liquor licenses in these areas. Similarly, this policy will provide guidelines and terms of references for future applicants and for the community at large.

The Province is continuing with its review of liquor regulations. Some new regulations have already been adopted, and new ones may be implemented in the near future. City staff is fully involved in this process (mostly through the UBCM), and any changes to provincial regulations that may affect the proposed review for the West End will have to be considered in this process. It is already evident that some provincial changes, such as two classes of liquor license, increased enforcement and the consideration of smaller facilities, will affect City policy.

The proposed review will deal with a variety of issues, including:

Hours of operation

Depending on the type of Liquor License, hours of operation for facilities in the West End, and particularly closing hours, differ from one type of facility to another. Most facilities close between 12:00 midnight and 1:00 am, but some Lounges and Cabarets are allowed to remain open until 2:00 am (See Appendix A).

As part of the Provincial Liquor Review, licensed establishment operators are requesting extended hours of operations (up to 14 hrs a day), with closing hours at 4:00am. Hours of operations is one of the key elements to analyse in this proposed review, as patrons dispersal may potentially have negative community impacts.

Seating capacity

The seating capacity of Bars, Pubs and Cabarets for the study area is outlined in Appendix A. We have summarized the information, as follows:

Davie Street (1000 to 1700 Blocks): 833 seats
Denman Street (700 to 1100 Blocks): 361 seats
Robson Street (1000 to 1700 Blocks): 931 seats
Burrard Street (700 to 1100 Blocks): 788 seats

TOTAL 2,913 seats

Note: There are significant pockets of concentration of liquor licensed facilities and seats in each of these areas, such as on the 1000 block of Davie Street. A map for all facilities is provided on Appendix B.

There are a large number of liquor seats concentrated in the whole of the Downtown, in areas such as Downtown South, Granville Street, Yaletown, Robson Street (East of Howe), CBD,

Victory Square, Gastown and Plaza of Nations (more than 20,000 seats for all areas). A great number of these seats however, fulfill a city-wide and regional need. The liquor seats in the study area of the West End, for the most part fulfill a local need/demand, but also cater to a wider regional clientele. This is particularly true for the Davie Street facilities. One of the questions to be answered, is whether this particular area (Davie Street) can accommodate more facilities (there is at least one application on file). A parallel issue relates to what kind of mix of facilities is anticipated.

Density of licenses (and seats)

The review may have to consider, in some areas, the possibility of accommodating smaller type of facilities (under 65 seats). Council already recognized this as an issue in the 1996 review of liquor licensing for the Downtown, when it suggested that the City enter into discussions with the Province to establish a new license category for smaller drinking establishments. In any event, new facilities could be linked to a time-limited Development Permit (ie. 2 years).

Entertainment

The concentration of liquor seats and their potential impact on surrounding residences is closely linked to the type of entertainment provided in the establishments. Relevant questions to this issue are the appropriate size of a facility for certain types of entertainment and the suitability of such a facility in the community.

Social clubs and licensing issues

The City did have an application for a Social Club in the West End area, but it was later withdrawn. Social Clubs are not supposed to be open to the general public, but potentially, they could operate as a pseudo-Cabaret. Social Clubs (Class “A” Lounge) however, are subject to legal agreements and could also entail a time-limited Development Permit.

Referendum and public consultation

City staff are in the process of reviewing the referendum and consultation mechanisms as they relate to Liquor Licensing. A Council report is expected soon.

Enforcement

There have not been significant enforcement issues identified with the study area to date. The consultation process will have to assess the veracity of this. Typically, enforcement complaints relate to issues such as overcrowding, noise and some policing, (e.g. fights, vandalism, nuisance complaints, etc.).

Consultation Process and Time Frame

It is proposed that the West End consultation process start in January 2000 with a report back to Council early in the Spring.

This consultation will be carried out by City staff with the help of a consultant, familiar with the issues and dynamics of the West End.

The tasks involved will include the following:

· identification of community groups, key individuals and interest groups
· identification of issues
· compilation of land use/zoning issues related to adjacencies and compatibilities
· coordination with referendum review and with provincial review process
· analysis options for policies
· evaluation of policy options
· development of recommendations
· report preparation and submission

The public process will entail a number of Focus Groups at different stages of the consultation, and some Public Open Houses.

The product of the consultation process will be the presentation of different options, an impact evaluation, recommendations, submission of a report and a decision on a comprehensive policy for liquor licensing in the West End.

The anticipated extra costs in the West End review will be $25,500 with the following components:

Meeting Expenses: $ 7,000
(Halls, equipment, staff over-time, etc.)
Communications: $ 3,500

Consultant: $15,000

SUBTOTAL: $25,500

If Council approves this work, funding will be provided as part of the 2000 Operating Budget.

II. The Central Business District

Considering that Council has already requested the development of policy on the entertainment uses for the Central Business District, it is proposed that the second phase of this review deal with the development of a comprehensive liquor licensing policy for the CBD (the area bounded by Alberni, Seymour, Bute Street and the Burrard Inlet).

This review will provide among other things, the opportunity to look at the entertainment venues that serve liquor (existing and potential) an non-alcohol Dance Halls in the CBD. There are 3,303 liquor seats in the CBD. For a detailed breakdown of facilities see Appendix C and D.

Some significant changes in areas adjacent to the CBD, like the Coal Harbour Development and the potential development of a Convention Centre besides Canada Place, make this review even more relevant and timely.

The CBD review will be modelled after the West End review, understanding however that there are significant differences between the two neighbourhoods. The residential component for example, is not as significant in the CBD. It is proposed that the CBD consultation process start immediately after the West End review has been finalized, with an anticipated report back to Council late in the Spring of 2000.

The anticipated extra costs in the CBD review will be $15,000 with the following components:

Meeting Expenses $ 3,000
(Halls, equipment, staff over-time, etc.)
Communications: $ 2,000
Consultant: $10,000
SUBTOTAL: $15,000

If Council approves this work, funding will be provided as part of the 2000 Operating Budget.

CONCLUSION

The process recommended will allow for a planning process, resources and budget for a review of the municipal liquor licensing policy for the West End (the area bounded by Burrard, Davie, Denman and Robson Streets). It also anticipates a similar process for the Central Business District (roughly bounded by Alberni, Seymour, Bute Street and the Burrard Inlet). The outcome of the proposed consultation process involved in this review will eventually provide Council with policy options and a course of action as well as provide the industry and the community at large with clear guidelines and terms of reference.

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APPENDIX A

WEST END LIQUOR LICENSED FACILITIES

ADDRESS	ESTABLISHMENT NAME	LICENSE TYPE	# OF SEATS		HOURS OF
					OPERATION
845 Burrard St	Sutton Place Hotel	Lounge	195		11:30 am to 1:30 am
1088 Burrard St	Wall Centre Garden Hotel	Lounge	45		11:00 am to 1:00 am
1100 Burrard St	Burrard Motor Inn	Lounge	85		11:00 am to 12:00 am
1015 Burrard St	Century Plaza Hotel	Pub/Lounge	463		12:00 n to 2:00 am
1022 Davie St	Celebrities (Vancouver)	Cabaret	350		7:00 pm to 2:00 am
1042 Davie St	Numbers	Cabaret	195		7:00 pm to 2:00 am
1160 Davie St	Parkhill Hotel	Lounge	46		11:00 am to 1:00 am
1025 Davie St	Fountainhead Pub *not open yet	Neighbourhood Pub	65		??
1755 Davie St	Sands Motor Hotel	Lounge	177		12:00 n to 2:00 am
1733 Comox St	Coast Plaza at Stanley Park	Lounge	180		12:00 n to 2:00 am
860 Denman St	Denman Station	Cabaret	82		7:00 pm to 2:00 am
961 Denman St	Dover Arms	Neighbourhood Pub	99		10:00 am to 12:00 am
1225 Robson St	Blue Horizon Hotel	Pub/Lounge	404		11:00 am to 1:00 am
1277 Robson St	Pacific Palisades Hotel	Lounge	64		11:30 am to 1:30 am
1300 Robson St	O'Doul's Hotel	Lounge	38		11:00 am to 1:00 am
1348 Robson St	Barclay Hotel	Lounge	100		11:30 am to 1:30 am
1400 Robson St	Empire Landmark Hotel	Pub/Lounge	325		11:30 am to 1:30 am
		Total	2913

APPENDIX B

MAP OF WEST END LIQUOR LICENSED FACILITIES

APPENDIX C

CENTRAL BUSINESS DISTRICT LICENSED FACILITIES

ADDRESS	ESTABLISHMENT NAME	LICENSE TYPE	# OF SEATS		HOURS OF OPERATIONS
550 W Hastings St	Delta Hotel	"A" Lounge	50		11:00 am to 1:00 am
620 W Pender St	Piccadilly Hotel	"A" Pub	125		10:00 am to 12:00 mn
602 Dunsmuir St	St. Regis Hotel	"A" Pub	177		9:00 am to 11:00 pm
602 Dunsmuir St	St. Regis Hotel	"A" Lounge	157		11:00 am to 1:00 am
515 Seymour St	Clarence Hotel	"A" Pub	120		11:00 am to 1:00 am
828 W Hastings St	Jolly Taxpayer	"A" Pub	177		10:00 am to 12:00 mn
921 W Pender St	Days Inn Vancouver	"A" Pub	220		10:00 am to 12:00 mn
921 W Pender St	Days Inn Vancouver	"A" Lounge	85		10:00 am to 12:00 mn
801 W Georgia St	Hotel Georgia	"A" Lounge	345		11:00 am to 1:30 am
801 W Georgia St	Hotel Georgia	"A" Lounge	40		10:00 am to 12:00 mn
595 Hornby St	Club Millennium	Cabaret	199		7:00 pm to 2:00 am
655 Burrard St	Hyatt Regency Hotel	"A" Lounge	285		11:30 am to 1:30 am
791 W Georgia St	Four Seasons Hotel	"A" Lounge	140		12:00 n to 1:00 am
900 W Georgia St	Hotel Vancouver	"A" Lounge	336		11:00 am to 1:00 am
645 Howe St	Metropolitan Hotel	"A" Lounge	65		11:00 am to 1:00 am
999 Canada Place	Pan Pacific Hotel	"A" Lounge	219		11:30 am to 1:30 am
900 Canada Place	Waterfront Centre Hotel	"A" Lounge	95		11:00 am to 1:00 am
#350 - 1050 Alberni St	Tokyo Lounge	Cabaret	112		7:00 pm to 2:00 am
888 W Cordova St	Terminal City Club	"A" Pub	125		11:00 am to 1:00 am
1133 W Hastings St	Vancouver Renaissance Hotel	"A" Lounge	231		11:30 am to 1:30 am
		Total	3303

APPENDIX D

MAP OF CENTRAL BUSINESS DISTRICT LICENSED FACILITIES

(c) 1998 City of Vancouver