POLICY REPORT DEVELOPMENT AND BUILDING Date: May 16, 1995 Dept. File No: PEM RZ. 2855 Sophia St. TO: Vancouver City Council FROM: Associate Director of Planning - Land Use & Development SUBJECT: Proposed Rezoning of 2855 Sophia Street and 296 East 12th Avenue RECOMMENDATION THAT the application by Richard Balfour & Company (Architect) to rezone the site at 2855 Sophia Street and 296 East 12th Avenue (Lots 8 to 11, Block 114, D.L. 301, Group 1, Plan 187) from RM-4 and RM-4N to CD-1, to develop a multilevel care facility, be referred to a Public Hearing, together with: i) revised plans received December 12, 1994; ii) draft CD-1 By-law provisions, generally as contained in Appendix A; and iii) the recommendation of the Associate Director of Planning (Land Use and Development) to approve the application, subject to conditions contained in Appendix B. FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 By-law for consideration at Public Hearing. GENERAL MANAGER'S COMMENTS The General Manager of Community Services RECOMMENDS approval of the foregoing. COUNCIL POLICY Relevant Council policies for the site include: the RM-4 and RM-4N Districts Schedule and Multiple Dwelling Guidelines the Mount Pleasant Community Development Plan (adopted in October, 1987) the Special Needs Residential Facility Guidelines (adopted in February, 1992) which are intended to ensure that a special needs residential facility is compatible with the surrounding neighbourhood.PURPOSE AND SUMMARY This report assesses an application to rezone the site at 2855 Sophia Street and 296 East 12th Avenue from RM-4 and RM-4N to CD- 1 for the redevelopment and expansion of a Special Needs Residential Facility - Community Care - Class B (site outlined on map below). The application proposes to replace Edith Cavell Hospital, a two- storey, 62-bed, seniors Extended Care facility which is south of the lane, by a much larger, 97-bed, seniors Multilevel Care facility on a larger site. The new facility would have five storeys south of the lane, six storeys north of the lane, and these two buildings would be joined by development which bridges the lane. A floor space ratio (FSR) of 2.73 and height of 20.7 m (67.9 ft.) are proposed. This scale of development is not in character with the surrounding area, but it is unlikely to have significant impacts on adjoining development. The application has some neighbourhood support and Health Department staff support replacement of the existing facility. Ministry of Health funding is available for 80 beds in a new facility, and possibly an additional 20 beds. Planning staff therefore recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions. DISCUSSION The application raises a major issue concerning the scale of development it proposes for a Special Needs Residential Facility in a multiple dwelling district. The FSR of 2.73 exceeds the maximum of 0.75 permitted for this use in the RM-4/4N Districts, and also the 1.45 FSR which can be achieved for multiple dwellings. The proposed height is double the maximum permitted in these districts. Therefore, the proposed development could have negative impacts on the two three-storey rental apartment buildings abutting the site, and it could affect the character of the broader surrounding area. The proposal responds to revised B.C. Ministry of Health Multilevel Care Design Guidelines (January, 1992) which have more than doubled the floor area required per care facility resident. A larger facility is also needed to achieve an economical scale of Multilevel Care operation (100-120 beds). While a larger site could better accommodate the proposed floor area, it would be difficult to find or assemble and its cost would make the project uneconomic. The application thus poses a dilemma: the replacement of an obsolete seniors care facility by a larger, more functional and efficient one would respond to community needs, however the large size of a new care facility could affect adjacent buildings and the character of the surrounding area. As a general principle, staff believe that the public benefit offered by a new care facility might justify an increase in FSR over and above what is permitted for surrounding development, but only to the extent that the facility can be appropriately accommodated on the site. In this regard, staff have determined that the bulk and height of proposed development would have relatively minor shadow impact on adjoining properties. This is the result of the required frontyard setback from East 13th Avenue, a west sideyard which is double the normally-required depth, and a terracing of the building south of the lane (see shadow diagram, page 5 of Appendix E. Further details on the form of development are provided in Appendix C.) Staff have also determined that the architectural character of proposed development, although distinctive, would be compatible with the surrounding residential character rather than being institutional in appearance. In a broader context, staff consider that the bulk and height of proposed development are similar to what can be achieved in the C-2 and C-3A Districts nearby. There are also several large buildings in the surrounding area, including the 100-room Biltmore Hotel (seven storeys and FSR 3.15) and the Mount Saint Joseph's Hospital (five storeys). Several neighbours have had questions and concerns about the application, but no objections have been heard and some letters of support have been received. (See further comments in Appendix D.) On the basis of the foregoing, Planning staff are prepared to recommend approval of the proposed form of development, with further design development at the development application stage. Two elements of the proposed rezoning are intended to provide some tangible benefit to the immediate neighbourhood. First, 165 m› (1,765 sq. ft.) of space on the main floor, north of the lane, is being offered to the Health Department and other community-oriented, health-care related groups or associations. Second, "green street" improvements on Sophia Street, which would be installed at the property owner's expense, are proposed, although this proposal requires further discussion with Engineering staff and the neighbourhood to develop an acceptable solution. CONCLUSION Planning staff support the use, density, and form of development proposed in this application. The proposed 97-bed seniors Multilevel Care facility is a public benefit and it will not unduly impact on the livability of adjacent buildings. Staff therefore recommend that the application be referred to a Public Hearing with a recommendation from the Associate Director - Land Use and Development to approve it, subject to draft CD-1 by-law provisions generally as shown in Appendix A, and subject to proposed conditions of approval listed in Appendix B which include recommendations for further design development. * * * APPENDIX A Draft CD-1 By-law Provisions 2855 Sophia Street and 296 East 12th Avenue USES Cultural and Recreational Uses, Institutional Uses, and Office Uses, but limited to 165 m› (1,765 sq. ft.) and located at grade and north of the lane; Special Needs Residential Facility - Community Care - Class B, and including a Multilevel Care facility which, because of the Extended or Acute Care levels provided, is licensed under the Hospital Act or similar Provincial legislation, instead of or in addition to the Community Care Facility Act; and Accessory Uses customarily ancillary to the foregoing. FLOOR SPACE RATIO The maximum floor space ratio will be 2.75, generally based on the calculation provisions of the RM-4 and RM-4N Districts Schedule. BUILDING HEIGHT The height of a building south of the lane will not exceed 18.6 m (61 feet) from the base surface, or five storeys, and the height of a building north of the lane will not exceed 21.9 m (72 feet) from the base surface, or six storeys. SETBACKS The following setbacks will be provided: 2.3 m (7.5 ft.) from the north property line at East 12th Avenue [after dedication to the City of the northerly 1.5 m (5 ft.) of Lot 9], 6.1 m (20 ft.) from the south property line at East 13th Avenue, 1.5 m (4.9 ft.) from the east property line at Sophia Street, and 4.3 m (14 ft.) from the west property line. Projection by upper storeys into the setback area from the east property line will be permitted if the length of the projection does not exceed 5.2 m (17 ft.). PARKING, LOADING, PASSENGER LOADING, AND BICYCLE PARKING As per Parking By-law and Council-adopted guidelines, except that one parking space per six beds will be provided for employees and one space per ten beds for visitors.APPENDIX B Page 1 of 2 Proposed Conditions of Approval 2855 Sophia Street and 296 East 12th Avenue (a) THAT the proposed form of development be approved by Council in principle, in revised plans generally as prepared by Richard Balfour & Company (Architect) and stamped "Received City Planning Department, December 12, 1994", provided that the Director of Planning may allow minor alterations to this form of development when approving the detailed scheme of development as outlined in (b) below. (b) THAT, prior to approval by Council of the form of development, the applicant shall obtain approval of a development application by the Director of Planning, who shall have particular regard to the following: (i) further design development of the development which bridges the lane, in consultation with the City Engineer, to provide a minimum unrestricted vertical clearance of 4.5 m (14.75 ft.) under the bridge without lowering the lane, and to minimize the width of the bridge at the second storey as a relatively narrow pedestrian walkway; (ii) further design development to improve the character and livability of proposed development, including but not limited to: (1) fenestration, lighting and other features to improve the architectural quality of the bridge and the lane walls, (2) trellis or other screening above the parking ramps, (3) relocation of at least two of the four stairwell exits from the underground parking on the east elevation to the interior of the building or to the west elevation, (4) attenuation of the projections or "overhangs" by the upper storeys over the first storey on the east elevation, by means of columns or other features which provide continuity between the first and upper storeys, and (5) reduction of porch depth on north and south building elevations to provide required setbacks. APPENDIX B Page 2 of 2 (iii) exterior exhaust and ventilation equipment to be designed and installed in a manner that will not cause a noise problem for residents in the surrounding area; and (iv) alterations and further design development to respond to principles of crime prevention through environmental design, including but not limited to: (1) enclosure, or elimination (by internalizing), of the open, exterior stairwells from underground parking, (2) enclosure at the first storey of the exterior stairs at the north-west and south-west building corners, and (3) securing against intruders the loading, bicycle storage, and recycling/garbage container areas. (c) THAT, prior to enactment of the CD-1 By-law, and at no cost to the City, the registered owner shall: (i) register at the Land Titles Office a consolidation of Lots 10 and 11, a consolidation of Lots 8 and 9, and a dedication to the City of the northerly 1.5 m (5 ft.) of Lot 9 and a 3 m (10 ft.) by 3 m (10 ft.) cut- off from Lot 9 at the north-east corner; (ii) make arrangements to the satisfaction of the Director of Legal Services and the City Engineer for encroachment over the City lane; (iii) make arrangements to the satisfaction of the Director of Legal Services and the City Engineer for landscaping, paving, lighting, and other improvements to abutting streets and lanes (Note: Proposed street improvements shall be reviewed in the context of area need and impact on municipal services. This will involve discussions with property owners as well as a review of transportation needs.); and (iv) make arrangements for all electrical and telephone services to be undergrounded within and adjacent the site from the closest existing suitable service point. APPENDIX C Page 1 of 4 ADDITIONAL INFORMATION 1. SITE The site is on the west side of Sophia Street between East 12th and 13th Avenues (see map on page 2 of the report). It consists of two lots south of the lane, and two lots north of the lane. Edith Cavell Hospital, the existing two-storey, 62-bed seniors care facility south of the lane, was constructed in 1959 and has been owned and operated by the current operator since the mid- 1970s. North of the lane, the site includes a vacant lot and a lot developed with a one-storey building having 100 percent site coverage (occupied by Hodgson Orthotics Ltd.). 2. SURROUNDING ZONING AND DEVELOPMENT The site is at the north edge of the 10-block RM-4 and RM-4N Multiple Dwelling District south-east of the Broadway-Main- Kingsway commercial centre of the Mount Pleasant neighbourhood. Except for the buildings noted below, the district is generally developed with three-storey multiple dwelling buildings, including the buildings to the west, south, and east of the site. To the north across East 12th Avenue is the Salvation Army Social Service Centre and Thrift Store (two storeys). To the north-east near Kingsway is a funeral home and vehicle dealership. To the east across Kingsway is the 100-room Biltmore Hotel which was zoned CD-1 in 1976 (seven storeys, height of 90 feet, and FSR 3.15). Mount Saint Joseph's Hospital (five storeys) is about a block and a half to the south-east. 3. PROPOSED DEVELOPMENT The application proposes a 97-bed Multilevel Care facility which would be constructed in two phases (see a copy of plans in Appendix E and statistics in Appendix F). In the first phase, a six-storey building would be constructed north of the lane and the present occupants of Edith Cavell Hospital moved into it. In the second phase, the existing building south of the lane would be demolished and replaced by a five-storey building which would be joined to the first building by an enclosed pedestrian bridge over the City lane. Building entrances are on Sophia Street. One level of underground parking is proposed, providing 27 spaces. Access to parking, loading, bicycle parking, and passenger loading would be from the lane. The application proposes street and sidewalk i m p r o v e m e n t s o n S o p h i a S t r e e t . APPENDIX C Page 2 of 4 4. FURTHER DISCUSSION Land Use The proposed redevelopment and expansion of the 62-bed Edith Cavell Hospital is motivated by January, 1992 revisions to B.C. Ministry of Health Multilevel Care Design Guidelines. The revisions have significantly increased the required floorspace for resident accommodation, multi-purpose space, and dining and activity space in provincially-licensed, Multilevel Care facilities. This has more than doubled the amount of floor area required per resident. It is also necessary to increase the number of beds to achieve an economical operating size (100 to 120 beds). For this latter reason, the facility operator wishes to relocate 18 beds it now provides at Kevin Lodge Rest Home (3690 Selkirk Street), as well as beds in other small and obsolete facilities. Staff in the Continuing Care Division of the Health Department support the proposal "as the present physical plant is seriously deficient and the proposed facility would be better able to meet Continuing Care Program client needs". They indicate that there is B.C. Ministry of Health funding for 80 beds in a new facility in this area, and that the Health Department supports a funding request for an additional 20 beds. The application is also supported by the Mount Pleasant Health Planning Group, the Mount Pleasant Healthy Communities Committee, the Mount Pleasant Commercial Improvement Society and Mount Saint Joseph Hospital. The proposed facility is one of the acceptable types of residential care and treatment facilities identified in the Mount Pleasant Community Development Plan (approved by Council in October, 1987). It is also consistent with the Special Needs Residential Facility Guidelines (approved by Council in February, 1992) which seek to ensure that Special Needs Residential Facilities are fairly distributed within and between neighbourhoods. Residents and property owners in the surrounding area expressed concerns about a large private hospital which might bring a substantial increase in traffic and related 24-hour noise impacts. These concerns were allayed by clarification that the facility would not be a Hospital as that term is usually understood, but rather the facility needs to be licensed under the B.C. Hospital Act because of several Acute Care beds it would provide. Form of Development The proposed building massing consists of five terraced storeys south of the lane and six storeys north of the lane, with these two buildings joined by a narrow four-level pedestrian bridge over the City lane and between the 2nd and 5th floors. [Note: Bridging over the lane is acceptable to the City Engineer if the vertical clearance is increased from 3.3 m (10.8 ft.) to 4.5 m (14.8 ft); this will require a corresponding 1.2 m (4 ft.) increase in building height.] APPENDIX C Page 3 of 4 When first submitted, the application proposed a 116-bed facility with FSR 3.5 and 85 percent site coverage. In response to staff concerns and Urban Design Panel comments about the scale and form of development, a revised proposal was submitted which reduces the number of beds (16 percent), floor area (22 percent), and site coverage (24 percent). The revised proposal retains the form of development first proposed but reduces the total floor area, reduces the floor plate, shifts it to the north and east, and relocates floor area from the south building to the north building. As a result, the overall bulk of the building is reduced (FSR 2.75) and redistributed [FSR 3.5 north of the lane, and FSR 2.0 south of the lane including 170.5› (1,835 sq. ft.) for development above the lane]. The revised proposal reduces the impact of the proposed development on the 13th Avenue streetscape and the adjoining apartment buildings to the west. A front yard setback of 6.1 m (20 ft.) can now be provided on East 13th Avenue, which is consistent with multiple dwelling developments in this RM-4 district and which also retains existing landscaping. The terracing of upper stories, with progressively deeper setbacks from East 13th Avenue, reduces the impact of building height and provides roofdeck open space at each storey. The proposed character treatment of decks and roofs would provide visual interest which would be distinctive as well as compatible with the residential character of the surrounding area. A 4.3 m (14 ft.) setback from the west property line is now proposed, doubling the side yard separation from the adjoining 3- storey apartment buildings required in the RM-4/4N Districts. This generous sideyard, in combination with proposed building massing, minimizes the shadow impact on adjoining properties (see page 5 in Appendix E). A 1.2 m (4 ft.) increase in building height in the first storey, to provide greater vertical bridge clearance, will not appreciably increase this shadow impact. A setback from East 12th Avenue of 2.3 m (7.5 ft.) at grade and 5.5 m (18 ft.) above the second storey, and a setback of 1.5 m (5 ft.) from the Sophia Street property line are proposed. While smaller than required in RM-4/4N Districts, these setbacks improve upon the existing situation, noting that the existing building north of the lane and the Salvation Army building across the street provide no setbacks. Parking and Circulation The proposed parking provision meets the City Engineer's recommended requirements for a special needs residential facility (one space per 6 beds for employees and 1 s p a c e p e r 1 0 b e d s f o r v i s i t o r s ) . APPENDIX C Page 4 of 4 Proposed "green street" sidewalk and street improvements on Sophia Street, with traffic limited to two lanes, requires further discussion with Engineering staff and the neighbourhood to develop an acceptable proposal which, if approved, would be installed at the property owner's expense [see condition (c)(iii)]. Landscape Resources and Open Space The proposed development will retain mature shrubbery and landscaping in the front yard of Edith Cavell Hospital and an old, 60 cm (24 in.) birch tree at the south-west corner of the site. Street trees are proposed to be planted on East 12th and 13th Avenues and Sophia Street. Edge planting is proposed for the roof gardens and terraces. Environmental Implications The proposed rezoning will neither detract from nor contribute to the City's objective of reducing atmospheric pollution. Social Implications The proposed rezoning will enable an obsolete 62-bed seniors Extended Care facility to be replaced by a much-needed, 97-bed seniors Multilevel Care facility. APPENDIX D Page 1 of 2 COMMENTS FROM REVIEWING AGENCIES, THE PUBLIC, AND THE APPLICANT Health Department The Continuing Care Division supports the proposal "as the present physical plant is seriously deficient and the proposed facility would be better able to meet Continuing Care Program client needs." Staff also indicate there is B.C. Ministry of Health funding for 80 beds in a new facility in this area, and that the Health Department supports a funding request for an additional 20 beds. Special Advisory Committee on Seniors On January 27, 1995, the Committee reviewed the application and supported the revised proposal. Deputy City Engineer's Comments Engineering staff have two major concerns about the application. First, bridging over the lane is acceptable if the proposed 3.3 m (10.8 ft.) vertical clearance can be increased to a minimum of 4.5 m (14.8 ft). Planning staff note that this can be accommodated by a 1.2 m (4 ft.) increase in building height, to be inserted within the first storey. Second, the Deputy City Engineer states that "The treatment of Sophia Street must be reviewed in the context of area need and impact on services. This will involve discussions with property owners as well as a review of transportation needs. Any approval of street or boulevard treatments are to be to the satisfaction of the General Manager of Engineering Services, and should not form part of the rezoning application, with the exception of the developer's responsibility to pay the full cost of any agreed changes." Planning staff note that, except for development over the lane (an encroachment which must be arranged to the satisfaction of the Director of Legal Services), any improvements to lanes and streets abutting the site are off-site improvements which would not be part of the proposed Form of Development and which the property owner would provide at no cost to the City [see condition (c)(iii) in Appendix B]. In addition to the foregoing, a 1.5 m (5 ft.) street-widening dedication is required on Lot 9 (296 East 12th Avenue), and consolidations of Lots 8 and 9, and 10 and 11, prior to enactment of the CD-1 By-law [see condition (c)(i) in Appendix B]. Urban Design Panel The Panel had many concerns about the proposal when it first reviewed it on April 13, 1994. It supported a revised proposal on January 18, 1995, but with remaining concerns about the design of the bridge over the lane, the open stairs at the building corners, the number of underground parking stairwell exits along Sophia Street, windows overlooking the parking ramps, and the "overhangs" on the south a n d e a s t e l e v a t i o n s . APPENDIX D Page 2 of 2 These concerns would be addressed in further design development at the development application stage [(b)(ii) in Appendix B]. Public Input An application information sign was installed on March 19, 1994 (and a revised sign on January 5, 1995). On March 30, 1994, staff mailed a notification letter to 220 surrounding property owners and to several community groups. The applicant undertook a public consultation process prior to submitting the application, including an information meeting in June, 1994. Several residents and nearby property owners have telephoned staff with some questions and concerns about the application. Letters of support have been received from the Mount Pleasant Health Planning Group, the Mount Pleasant Commercial Improvement Society, and Mount Saint Joseph Hospital. Some neighbours expressed concerns about a large private hospital which might bring a substantial increase in traffic and related 24-hour noise impacts. These concerns were allayed by clarification that the facility will not be a Hospital as that term is usually understood, but rather it will be a Multilevel Care seniors residential facility which needs to be licensed under the B.C. Hospital Act because of several Extended or Acute Care beds provided. Applicant's Comments "After working with the Planning Department, the Health Department, the B.C. Ministry of Health and numerous community groups for several years, this hospital redevelopment proposal is offered for Council's consideration. The proposal has received very positive support from all quarters in the community discussions to date. Although the magnitude and density of the project at first may appear to set a new precedent, even this aspect has received community support, particularly when it is realized how the new B.C. Ministry of Health standards have impacted on the scale and economics of seniors care facilities. Edith Cavell Hospital, in working with the Urban Design Panel and others, has made increased effort to fit the facility into the neighbourhood. The facility meets the programme and urban design criteria of the Multilevel Care Design Guidelines. It is an urban facility with an urban form in an evolving urban centre. The community groups have encouraged discussion of increasing density in this part of the Mount Pleasant neighbourhood as part of a vision of an Urban Village in the Main/Broadway/12th Avenue/ Kingsway triangle. The hospital has provided service to this community for several generations now. It is important, for 'aging in place', to be able to keep such facilities as these in central city areas. For Edith Cavell Hospital to remain in the community, this rezoning needs to have the support of City C o u n c i l . " APPENDIX F APPLICANT AND PROPERTY OWNER INFORMATION APPLICATION BY Richard Balfour & Company, Architect PLANS BY Richard Balfour & Company, Architect PROPERTY OWNER Kevin Plaza Holdings Ltd. and Par-Kee Investments Ltd. DEVELOPER Kevin Plaza Holdings Ltd. SITE INFORMATION AND STATISTICS STREET ADDRESS 2855 Sophia Street 296 East 12th Avenue total site LEGAL DESCRIPTION Lots 10-11, Lots 8-9, Block 114, D.L. 301 Block 114, D.L. 301 SITE AREA 1 122 m› 1 099 m› 2 221 m› (12,078 sq. ft.) (11,830 sq. ft.) (23,907 sq. ft.) WIDTH 30.2 m (99 ft.) 30.2 m (99 ft.) DEPTH 37.2 m (122 ft.) various DEVELOPMENT STATISTICS DEVELOPMENT PROPOSED RECOMMENDED PERMITTED UNDER DEVELOPMENT DEVELOPMENT EXISTING RM-4/4N (if different than (if different than ZONING permitted) proposed) TOTAL FLOOR AREA Phase One (North) 3 859.4 m› (41,544 sq.ft.) 63.7 % Phase Two (South,Bridge) 2 201.6 m› (23,699 sq.ft.) 36.3 % TOTAL 6 061 m› (65,243 sq.ft.) 100.0 % MAXIMUM FRONTAGE 45.8 m (150 ft.) 30.2 m (99 ft.) MAX. FLOOR SPACE RATIO 0.75 (1.45) 2.73 2.75 MAXIMUM SITE COVERAGE 65 % 65 % 65 % MAXIMUM HEIGHT[STOREYS] 10.7 m (35 ft.)[4] Phase 1 (North of lane) 17.4 m (57.1 ft.)[5] 18.6 m (61 ft.)[5] Phase 2 (South of lane) 20.7 m (67.9 ft.)[6] 21.9 m (72 ft.)[6] Add'l height of 1.2 m (4 ft) is for bridge clearance MINIMUM BRIDGE CLEARANCE 3.3 m (10.8 ft.) 4.5 m (14.8 ft.) FRONT YARD SETBACK from East 12th Avenue 6.1 m (20 ft.) 2.3 m (7.5 ft.) at grade 0 m (0 ft.) 2nd floor 2.3 m (7.5 ft.) from East 13th Avenue 6.1 m (20 ft.) 6.1 m (20 ft.) at grade 12.45 m (40.85 ft.) 2nd floor 4.6 m (15.1 ft.) SIDE YARD SETBACK from west property line 2.1 m (6.9 ft.) 4.3 m (14 ft.) at grade 6.7 m (22 ft.) 2nd floor 4.3 m (14 ft.) from Sophia Street 6.0 m (19.8 ft.) max. 1.5 m (4.9 ft.) at grade required on corner 1.5 m (4.9 ft.) 2nd floor site 0.3 m (1 ft.)