SUPPORTS ITEM NO. 5
P&E COMMITTEE AGENDA
JUNE 22, 1995
POLICY REPORT
URBAN STRUCTURE
Date: June 6, 1995
Dept. File No. MK
TO: Standing Committee on Planning and Environment
FROM: Associate Director of Planning - Central Area, in consultation
with the General Managers of Engineering Services and Parks
and Recreation, the Director of Social Planning, and the
Manager of the Housing Centre
SUBJECT: International Village - Major Planning Issues
RECOMMENDATION
A. THAT staff may consider an increase in residential units in
International Village, through decreasing the average unit
size within the current maximum residential building area, and
converting commercial building area to additional residential
units, subject to resolution of urban design and massing
concerns, and provision of additional public requirements, for
report back as part of the rezoning referral report;
B. THAT the payment-in-lieu value for additional International
Village park requirement be negotiated between staff and the
developer and reported to Council prior to referral of the
rezoning application to Public Hearing;
C. THAT staff may consider changes to social housing provisions
that would alter the mix and location of housing types in
International Village, as outlined in this report, including
the provision of payment-in-lieu for off-site housing units,
for report back as part of the rezoning referral report;
D. THAT staff may consider changes to the distribution of
commercial uses in International Village, within the overall
maximum amounts now permitted, subject to submission of a
retail impacts study that addresses Central Area Plan policy
objectives, and that is reviewed with local shopping area
interests including Chinatown and Victory Square, for report
back as part of the rezoning referral report;
E. THAT staff may consider changes to the marketplace form of
development on parcel E in International Village, for report
back as part of the rezoning referral report, based on the
following objectives:
- providing a clear, public pedestrian way diagonally
through the development from Abbott to Pender Streets,
that is open during normal business hours;
- providing a major public gathering place centrally located
and accessible from the pedestrian way; and
- providing a strong response in the treatment of corner
entrances and internal pedestrian way reflecting the
former Gastown rail alignment.
F. THAT staff may consider an approximate 30 m adjustment to the
southerly viewpoint of 'The Lions' from the Creekside Park
waterfront walkway, to align with the walkway now in place
around the north side of Science World, that 'The Lions'
public view corridor from these viewpoints be reaffirmed, and
that staff be directed to consider changes to massing on
parcel E in International Village, based on the following
objectives:
- avoiding tower intrusion into 'The Lions' view corridor,
by relocation or height reduction;
- improving the massing relationship with proposed
development on the adjacent block 17; and
- resolving massing and shadowing issues if additional
density is transferred to other parcels;
FURTHER THAT staff be directed to consider alternate view
corridors of the Sun Tower from Creekside and Andy Livingstone
Park locations, and views from the Abbott and Keefer
intersection, for report back as part of the rezoning referral
report.
G. THAT staff may consider increases to the maximum building
heights on parcels A, B, D, E and F in International Village,
subject to resolution of urban design and massing concerns,
for report back as part of the rezoning referral report.
H. THAT currently approved parking standards for International
Village be reaffirmed.
I. THAT the previously approved one-way Abbott/Carrall couplet
and other street system be reaffirmed.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
to H. The General Manager of Engineering Services RECOMMENDS
approval of A to I.
COUNCIL POLICY
Relevant Council policy includes:
- The False Creek Policy Statement approved in August 1988.
- The False Creek North Official Development Plan (FCN ODP) approved
in April 1990.
- The International Village CD-1 By-law No. 6747, and Form of
Development approved in October 1990.
- The Central Area Plan approved in December 1991.
SUMMARY
Henderson (formerly Interville), the developer of the International
Village site (see Appendix 'A') wants to make major changes to the
approved zoning because they contend that the current scheme is not
economically viable for them. Their rezoning application raises several
key planning issues and will require changes to the FCN ODP as well as
the existing International Village CD-1 zoning and form of development.
In summary, these key planning issues are:
The developer wants an increase of 600 residential units over the
present 800 unit maximum allowed in the zoning. This would be done by
smaller unit sizes within present floorspace allowances, and converting
commercial space to residential. A separate report is anticipated that
will address the issue of smaller unit sizes for all of False Creek
North. The Central Area Plan supports conversion of commercial to
residential use. Staff support in principle the proposed increase in
residential units within the existing maximum square footage allowance,
subject to resolution of urban design, view and massing concerns, and
provision of public requirements.
An increase in units and population will generate additional public
requirements including family housing, social housing, daycare and park
provisions. The developer is prepared to provide for these either on-
site or by payment-in-lieu, except for park. Since the developer
opposes a requirement for any additional park, whether on-site or
through a payment-in-lieu, staff recommend Council authorize continued
negotiation based upon the principle that the park requirement must be
satisfied but could be provided by payment-in-lieu. The results would
be presented to Council before the referral report on the rezoning
application.
The developer wants to change the location of social housing to provide
sites that are easier to implement. While the family non-market
requirements would be provided on-site, the developer proposes a
payment-in-lieu for off-site non-market units. These would mostly be
non-family units. This could be used either for the purchase of sites
for social housing, or the purchase and renovation of a nearby SRO
hotel. Staff feel these changes in social housing provisions are worthy
of consideration, subject to further study of livability concerns and
negotiations to confirm the comparable value of an off-site non-family
housing SRO purchase or an acceptable payment-in-lieu.
The developer wants to concentrate more commercial space in a 3-storey
marketplace on parcel E, within overall floorspace maximums now
permitted. Central Area Plan retail policy discourages internally-
oriented shopping developments. However, exceptions are allowed if a
major public space is provided and public access is secured. Staff also
note that the marketplace design emphasizes street-oriented retail and
maintains the continuity of retail along Abbott and Pender Streets.
Provided the public space and access are secured, and after submission
of a retail impacts study, staff feel the proposal merits further
consideration and public review.
The developer wants to adjust the approved open diagonal pedestrian
access way through the marketplace on parcel E. As in the existing
zoning, this would also block an ODP identified view towards the former
Gastown rail alignment to the north. The developer proposes instead a
clearly defined, public access way reflecting the old Gastown rail
alignment with a major public amenity space centrally located off it,
open during normal business hours. Staff feel that this is vital and
meets the intent of the original ODP requirement. On this basis, staff
feel the changes to the marketplace design merit consideration and
public review.
The developer wants to replace the approved mid-rise residential
buildings with a new 24 storey tower on parcel E, which will intrude on
protected view corridors of 'The Lions' and the Sun Tower from nearby
parks and waterfront walkway. Staff feel that 'The Lions' view loss
would not be adequately replaced by proposed alternate view corridors.
Several options are available to protect this view, including tower
height reduction, relocation out of the corridor, shifting the building
mass to other parcels, or foregoing the commercial area conversion to
residential. However, staff are prepared to consider alternate view
corridors to the Sun Tower from park and waterfront walkway locations.
Accordingly, staff do not support the parcel E tower as proposed.
The developer wants to increase tower heights to accommodate more
residential units in tower buildings, and to accommodate massing
relocated from parcel B. The higher building scale on the southerly
part of the site, is compensated by a decrease in massing on the
northerly part, with reduced shadowing on public sidewalks. Staff feel
further consideration of these changes is warranted.
The developer wants to reduce parking standards to be consistent with
adjacent downtown areas. This would represent about a 13% decrease in
parking provisions from current by-law requirements. Staff believe
currently approved standards reflect actual needs, and are consistent
with other downtown and False Creek North areas. Furthermore, there is
a parking shortage in the area, and any parking reduction on this site
will exacerbate the problem. Staff, therefore, recommend that no change
be made to current parking by-law requirements for the International
Village site.
The developer wants to change the approved one-way northbound traffic
system on Abbott Street south of Pender, to two-way traffic (see
Appendix D). Engineering staff emphasize that the street system on the
North False Creek site was developed through a very lengthy and
exhaustive process of analysis, public debate, and consideration of
numerous network plans. Many options were prepared and analyzed,
discussed in public meetings and presented to Council. The final
transportation network, developed following a lengthy public hearing
with numerous delegations, included Keefer Street as a local spine to
serve the community, Pacific Boulevard, one-way Abbott/Carrall Streets,
and buses on major streets. The adopted system is a self-sufficient
street network to avoid overspill into neighbourhoods such as Downtown
Eastside and Strathcona. Subsequently, increased circulation pressures
are anticipated due to the added developments in the area such as GM
Place and additional residential units. To ensure the transportation
system operates effectively, engineering staff recommend that the
previously approved transportation system, including the Abbott/Carrall
one-way couplet, be reaffirmed.
PURPOSE
This report seeks Council direction on key planning issues raised by an
application on behalf of Henderson Development (Canada) Ltd. (formerly
Interville Development Ltd.) to amend the False Creek North Official
Development Plan (FCN ODP) and the approved CD-1 zoning and form of
development for International Village (sub-area 8) in False Creek North.
BACKGROUND
International Village (see map in Appendix 'A') was zoned in 1990.
Planning work has been ongoing in the review and processing of
development applications, and to date, permits have been approved for 5
of 6 parcels.
The 8.4 ha (20.8 acre) site contains one completed
residential/commercial project known as 'Paris Place' on parcel C, a
completed street and pedestrian system (including the Keefer Steps
connecting to Beatty Street), the completed Andy Livingstone Park, and
five vacant parcels.
Although development permits have been approved for most of the site,
the developer wishes to change the zoning and form of development to
better respond to their view of the market situation. Their concerns
include:
- the configuration and large floorplates of the commercial spaces,
and integrating them with residential units have made for costly,
inefficient layouts;
- the hotel is not viable in the current market;
- integrating non-market housing with commercial space and market
housing is impractical, particularly on parcel E; and
- the extensive mid-rise building forms are more expensive to build
and are not as competitive as towers.
Since last July, staff and the developer have completed a series of
workshops to discuss these issues and identify options. A preliminary
rezoning application was submitted on March 23, 1995. Additional
consultant analysis on retail, parking and traffic issues was submitted
in April.
DISCUSSION
The developer's proposed changes include:
- Increasing the number of residential units from 800 to 1400;
- Concentrating more commercial and retail uses on parcel E;
- Simplifying the form of development on parcel E;
- Reconfiguring mid-rise market residential development on parcel E
into a new tower;
- Increasing tower heights on parcels A and F by relocating half of
the tower plate from parcel B;
- Relocating most of the non-market family housing;
- Providing for some non-market housing through payment-in-lieu for
off-site investment;
- Reducing parking requirements; and
- Changing Abbott Street from one-way to two-way traffic.
Increasing the Number of Residential Units
Existing zoning and the ODP allow a maximum of 800 units in
International Village. To date, 177 units have been built on parcel C,
leaving 623 units remaining. The developer wants an increase of 600
units. This would be done in two ways:
- reducing the average unit size from about 1,000 gross square feet
to 750 gross square feet (70 m›); and
- converting about 33 000 m› (355,000 sq.ft.) of commercial area,
comprising the hotel and 5 100 m› (55,000 sq.ft.) of existing
commercial building area, to about 470 units.
The issue of smaller unit sizes has also been raised by Concord Pacific
for all of False Creek North, including International Village. A
separate report is anticipated that will address the broader planning
issues and public requirements generated by this request. The staff
recommendation supporting an increase in unit count and suggesting how
amenity provisions be handled is consistent with what would be
recommended for all of False Creek North.
The commercial conversion (also to smaller units), is different from
reconfiguring existing residential space, since it increases residential
building area. The Central Area Plan supports the conversion of
commercial to residential use in the downtown outside of the CBD. The
hotel conversion will locate a residential tower next to the SkyTrain
Station, with reduced bulk and shadowing impacts for immediate
neighbours. Staff have always been concerned that there could be too
much commercial floor area in International Village for actual demands.
Therefore, the proposed reduction is considered desirable.
Subject to the resolution of urban design, access, view and massing
concerns, and resolution of public requirements as described below,
staff support in principle the increase in residential units in
International Village.
Public Requirements to Serve More Housing
An increase in units and population will generate additional public
requirements including family housing, social housing, daycare and park
space provision. Some of these public amenities may be provided on-
site, while others may be in the form of payment-in-lieu for off-site
investment. Initial analysis suggests that community facility and
school needs can be accommodated by planned facilities.
Projecting a population increase of about 980 people resulting from the
unit increase, an additional 2.7 acres of park would be needed to
satisfy ODP requirements. While the 10.5 acre Andy Livingstone Park is
more than enough to meet these increased local demands, most of this
acreage is already allocated to satisfy overall False Creek North
requirements. It should be noted that this 10.5 acre site was dedicated
to park use primarily because of its limited development potential due
to the soils contamination on that land. At that time Council
reluctantly accepted the Andy Livingston park site to satisfy ODP
requirement for park space. However, given the size of the park nearby
International Village, staff support a payment-in-lieu for the value of
the additional park requirement for more housing in International
Village.
The developer is prepared to meet the additional public requirements
except they oppose a requirement for any additional park whether on-site
or through a payment-in-lieu. They argue that International Village has
more than adequate park space. Staff recommend Council authorize
continued negotiations with the developer based upon the principle that
the park requirement must be satisfied but may be provided as a payment-
in-lieu. The value should be carefully negotiated between the developer
and the City to be economically viable yet responsive to the amenity
demand being created. The results would be presented to Council before
referring the rezoning application to Public Hearing.
Social Housing Provisions - On and Off-site
The existing zoning provides for 176 units of non-market housing.
Currently, 120 family housing units are to be located on parcels east of
Abbott Street, integrated with commercial space and market housing. The
remaining 56 units are for seniors, mainly on parcel D at the corner of
Abbott and Pender Streets. To date, no social housing allocations have
been delivered, although development permits have been issued for four
projects. The ODP does not contemplate off-site payment-in-lieu for
social housing, although this is possible under recently amended City
policy as a last resort option, and provided that the off-site use of
the funds is identified.
The developer proposes the following changes to non-market housing:
- relocating and consolidating 140 family non-market units to parcel
A (80 units) and parcel D (60 units) west of Abbott Street; and
- removing the current and additional primarily non-family housing
requirement from International Village, replacing it with an
equivalent payment-in-lieu for off-site investment by the City
(e.g. acquisition of sites and/or the purchase and rehabilitation
of an SRO hotel nearby).
The developer wants to separate the non-market and market housing
components to enable independent phasing of projects. Staff support the
proposed change, which will make it easier to implement these social
housing projects. This plan will relocate the family housing component
farther away from the school. The initial rezoning plan grouped the
non-market family housing and school on parcels east of Abbott Street
which reduced the number of children having to cross this street.
However, with the signalized crossings at the nearby intersections,
pedestrian safety could be addressed but staff want to confirm that
livability criteria can be met.
The family non-market projects should be fundable under the provincial
mixed income Non-Profit Housing program. This would comprise
approximately 11% of the total units. The proposed family projects on
the two new locations are larger than presently approved in the CD-1
zoning, but are within the guidelines for BCHMC projects. Given the
very limited funding for traditional seniors' housing, staff support the
concept of removing on-site requirements and using payment-in-lieu
contributions to assist in off-site provisions that would be invested
nearby. Funding is available under the Homeless/At Risk Program for low
income downtown seniors housing.
Staff feel that these changes in social housing provisions are worthy of
consideration, subject to resolution of livability concerns,
negotiations to determine an acceptable payment or contribution in lieu
for off-site, non-market housing provisions, and confirmation of an
appropriate concept for nearby investment of the payment-in-lieu.
Commercial Floorspace Redistribution
Currently, the International Village commercial floorspace total of
43 200 m› (465,000 sq. ft.) consists of retail and service commercial
(i.e. restaurant, bank, entertainment). It is concentrated on the first
and second floors along Abbott and Pender Street, and around the Keefer
Circle. Several commercial parcels are exceptionally deep with large
floorplates that Interville has found difficult to subdivide or lease
out. The largest component of 17 025 m› (183,000 sq.ft.) is on parcel
E.
The developer wants to redistribute and reduce the remaining commercial
space except that already built on parcel C. No increase to the
approved retail component is proposed. It would be focused in the
marketplace on parcel E, with equivalent reductions on parcels A, B, D
and F. Current street-fronting retail would be generally maintained,
but depths on parcels A and F would be reduced and most second floor
commercial space would be relocated. The marketplace on parcel E would
increase to 23 250 m› (about 250,000 sq.ft.).
While the overall commercial potential is reduced and the retail maximum
is unchanged, the concentration on parcel E raises concerns with regard
to Central Area Plan (CAP) retail policy. The Plan strongly encourages
street-oriented retail, and discourages internally-oriented shopping
malls. Staff note that the marketplace design emphasizes street-
oriented retail, maintains the continuity of retail along Abbott and
Pender, and provides a public food market adjacent to the public
gathering place. Provided that street-level retail is maximized, and
the quality of and access to public space in the marketplace is secured,
staff feel that the proposed changes can be consistent with the Central
Area Plan.
Staff are concerned about impacts on local retail areas, and believe
that changes to the approved commercial allocations need careful review
with nearby commercial interests, particularly Chinatown and Victory
Square. Assuming public access and space provisions are secured and
subject to public review, staff support the proposed changes.
Pedestrian Access and Views Through Marketplace Development
The approved zoning for parcel E incorporates a public access way
approximately 9 m wide running diagonally from the Abbott/Keefer
intersection to the Pender/Taylor corner of this site. This public
pedestrian linkage is open to the sky and forms a visual extension of
the old CP Railway alignment that is still reflected in the historic
Gastown subdivision pattern to the north. Furthermore, the FCN ODP
(Figure 10B - Views, see Appendix 'B') requires that this view towards
the Gastown alignment be protected.
The developer wants to cover, climatize and reconfigure this access way
noting that the commercial market would benefit from a more consolidated
arrangement not separated into two sections, as currently approved. The
developer proposes an enclosed 3 storey structure with a major interior
public gathering place, with pedestrian corner connections to adjacent
streets. These changes would block the northeasterly pedestrian view
from the Abbott/Keefer location, as already occurs in the existing
zoning form of development. The developer proposes to compensate by an
easterly view along Keefer Street with widened setbacks.
Staff feel that pedestrian access through parcel E is vital for linking
shopping activity on Pender Street and Chinatown with the marketplace
and the Skytrain Station at Beatty Street. Public objectives include a
clear and relatively direct pedestrian way diagonally through this
development, a central public gathering place and pedestrian access
maintained during normal business hours. It is recognized that the
access way presents some public security and safety concerns that
require closure during non-shopping hours. Staff feel the proposed
changes to the original marketplace concept will not compromise these
objectives, and should be further considered, even though the actual
view identified in the ODP is not maintained.
Public Views Affected by Parcel E Tower Proposal
The developer proposes a 24-storey tower on the southeast corner of
parcel E. This will intrude on view corridors protected originally in
1986 under the North Park ODP and since incorporated into the FCN ODP
(see Appendix 'B'). These views are:
- 'The Lions' from a 60 m extended viewpoint on the waterfront
walkway to the north of Science World at Creekside Park; and
- The Sun Tower from easterly viewpoints in both Creekside and Andy
Livingstone Park.
The approved International Village development scheme preserves these
views by locating low and mid-rise buildings on parcel E. Staff note
that the southerly extent of the walkway viewpoint requires some
adjustment to the north. This is to align it with the pedestrian route
around the complex which has changed due to building additions on the
north side, and the final park design. The applicant's view analysis
shows that the view of the 'the Lions' will be partially blocked by the
proposed parcel E tower. The applicant proposes alternative view
corridors from other upland locations in the park including the rear
walkway/bikeway area, and entry court to Science World. It is notable
that a tower proposal on Block 17 to the east marginally intrudes on the
original view corridor to the Lions which is exacerbated as the
viewpoint is moved northerly.
While possible refinements to the parcel E and Block 17 tower locations
and shaping of their tops may reduce view corridor intrusions, staff are
concerned about the potential loss of public amenity from this important
waterfront walkway location. Staff feel proposed alternate view
corridors of 'the Lions' will not fully replace this amenity.
Options to protect 'the Lions' view include:
- shifting the parcel E tower out of the view corridor;
- reducing the parcel E tower height to 12 storeys, increasing its
floorplate size and relocating remaining building mass to other
parcels by increasing tower heights or the extent of mid-rise
buildings; or
- retaining the 55,000 sq.ft. of commercial space that was to be
converted to residential.
Given the importance of 'the Lions' view and that there are possible
alternatives for redistributing residential massing to other less view
sensitive areas in International Village, staff do not support the 24
storey tower on parcel E in the location and shape proposed, and
recommend that the currently adopted view corridor of 'The Lions' be
reaffirmed from the adjusted viewpoint locations.
For the views of the 'Sun Tower', staff have concluded that alternative
viewpoints would provide equal amenity because of the changes in
detailed plans since these viewpoints were originally set. Accordingly,
blockages of the originally defined views are worth further
consideration provided new viewpoints are defined and secured. Council
can then compare the alternative, with the benefit of public comments,
when the new zoning is considered.
Increasing Tower Heights
Existing zoning permits and the City has approved tower heights ranging
from 34 storeys (300 ft.) on parcel C, to 15 storeys (140 ft.) on parcel
F. The FCN ODP limits maximum tower height to 91 m (300 ft.). The
developer wants to increase the heights of all towers between 2 and 9
storeys (see Appendix C), and the height of the mid-rise building on
parcel D by one storey. Marginally higher towers may result if
alternatives to the tower on parcel E are pursued. The ODP height
maximum is not expected to change.
The proposed residential tower on parcel B will reduce massing and
shadowing impacts on its immediate neighbours significantly compared
with the currently-approved hotel. About one-half the floorplate
previously proposed for the hotel would be relocated to the other
residential towers. The increased height of towers on parcels A and F
is counter-balanced by a reduction in mid-rise building mass on parcel
E, thus reducing shadowing on Abbott and Pender Streets. Staff feel the
reduction in building scale on the northerly part of the site is
desirable, and are supportive of considering tower height increases on
southerly locations not affected by approved view corridors, subject to
massing and urban design concerns being resolved.
Parking Standards and Requirements
Existing zoning requires off-street parking at a minimum standard of 1
space/93 m› of office use, 1 space/50 m› of retail and restaurant use,
and 1 space/100 m› of residential use plus 0.4 spaces for each dwelling
unit. Parking for other service commercial uses, and recreational,
cultural and institutional uses, must meet the applicable provisions of
the Parking By-law. Additionally, 350 spaces for public parking related
to Stadium use are required.
The developer proposes to modify the parking standards for commercial
and residential uses to make them more consistent with adjacent downtown
areas. They propose a reduced standard of 1 space/50 m› for non-office
commercial uses including cultural, institutional and recreational uses.
The residential standard would be reduced to 1 space/100 m› plus 0.2
spaces for each dwelling unit.
The provision of adequate on-site parking to meet demands of the site's
commercial and residential population has been a serious concern for
adjacent neighbourhoods. There is a parking shortage in the nearby
area, particularly Chinatown, and any reduction of required parking on
this site will exacerbate these problems.
Most of the reasons cited by the developer for reducing the parking
requirements have already been considered and are reflected in the
existing CD-1 By-law. In particular, these are:
Office - The existing office parking standards are similar to sub-
area III of the Downtown District due to the site's location. This
office standard provides a limit to the parking supply to encourage
transit use while satisfying essential demands.
Residential - The existing residential parking standards are
consistent with other False Creek North areas. They reflect
surveys of vehicle ownership in the newer residential units within
the Downtown Peninsula. A 50% reduction is provided in the visitor
parking component given that commercial parking spaces are
available evenings and weekends.
Retail - The existing retail parking standards are comparable to
those set out in the Parking By-law. This retail standard has been
extended to include the proposed major retail food market, which in
fact is a 50% parking reduction from the normal grocery store
standard.
The commercial development in International Village is expected to be a
unique attraction, particularly the food market, where many customers
will likely access the site by car. Adequate parking is essential to
its success in serving customers from a typical market area while
avoiding spillover impacts. Should the food market become a regional
attraction, then the parking provided will not be sufficient and Stadium
Reserve parking or other facilities would need to be relied upon.
In conclusion, staff feel that any further relaxation of parking
requirements for this project would be inappropriate based upon the
development demand and shortage of parking in adjacent areas.
Abbott Street Traffic Role
Engineering staff emphasize that the street system on the North False
Creek site was developed through a very lengthy and exhaustive process
of analysis, public debate, and consideration of alternatives prior to
Expo 86. The original developer was interested in accommodating 20,000
people on the site on a typical day (100,000 at peak times), while
adjoining communities expressed strong concerns over potential traffic
and parking overspill. Numerous network plans were prepared and
analyzed, discussed in public meetings and presented to Council. The
final network plan (see Appendix D) which included Pacific Boulevard,
and one-way Abbott/Carrall Streets with buses on these major streets was
adopted following a lengthy public hearing with numerous delegations.
Some of the factors influencing this decision included the following:
- heavy dependence on walking, cycling and buses, to reduce vehicle
volumes;
- concentrated and reduced street network, in order to free up most
of the site for parks and development;
- integration with the existing City street grid (but with larger
block size);
- self-sufficient network, to avoid overspill into Downtown Eastside,
Strathcona, etc.
- buses operating on-street, instead of a people mover;
- seawall and park areas reserved for pedestrians and cyclists and
free of traffic;
- local streets were developed on Keefer linking to Chinatown and
along Taylor Street.
The overall Official Development Plan rezoning was enacted in 1990. The
approved street plan was considered to meet these criteria best.
Therefore, International Village zoning was granted in 1990 on this
basis.
Subsequent to that approval, development on the site has been increased.
The number of residential units are proposed to be increased, GM Place
has been added and other changes have further added to circulation
pressures. Thus, it is particularly critical that the transportation
system operate effectively.
Rationale for One-Way System - Approval of a one-way system for
Abbott/Carrall achieved a number of desirable aspects for International
Village, including:
- pedestrian-friendly design, with wide sidewalks and narrow
pavements, easy to cross (pavement width only ´ of Pacific
Boulevard);
- minimal network, only two streets to serve a major new development
and two arenas;
- accommodation of a new bus route;
- extension of existing street grid;
- effective service, including on-street parking, permitted left
turns and good bus operations;
- self-sufficient, with adequate capacity and good connections to
major streets like Hastings;
- although not anticipated in 1982, a one-way Abbott Street will be
very effective in the critical post-GM Place event period, by-
passing established residential areas.
Countering these benefits is one drawback, that one-way streets
sometimes require motorists to circulate around a block in order to
reach a destination.
Impacts of Two-Way Operation - Two-way operation would greatly reduce
the ability of Abbott Street to meet the expectations imposed on it:
- if parking were permitted, only one lane of movement in each
direction would remain;
- when left turns or parking movements occur, there would be no
movement capacity, resulting in increased congestion;
- buses would be delayed;
- overspill of traffic into Downtown Eastside and Strathcona could be
anticipated, especially on event days;
- fuel consumption and air pollution would increase;
- parking prohibition and left-turn bans would become necessary, thus
reducing access to retail, and circulation ability.
The street system around International Village serves a much larger area
and any changes would need a comprehensive review, and a full and
detailed public consultation process. This was done prior to the
Official Development Plan and again at the International Village
rezoning. For these reasons, conversion of Abbott Street to two-way
operation cannot be supported. The False Creek North Official
Development Plan and International Village sub-area zoning were granted
on the basis of a transportation plan submitted and approved.
Engineering staff recommend that the developer proceed on the basis of
this approved plan. If Council wishes to consider two-way operation, it
is recommended that the rezoning be deferred from public hearing until a
full report on an alternate transportation plan is concluded.
Planning staff do not wish to comment on the technical aspects of the
overall traffic concept or the implication of changing Abbott Street or
the overall system. However, the City has emphasized traffic calming
and pedestrianized solutions in other situations when planning detailed
schemes elsewhere in False Creek North, such as the removal of the
Beatty Loop in Quayside. However, curb-side parking is essential to a
retail street. Removal of this parking should not be supported, except
for limited morning peak periods and the evening, preferably when shops
are not open.
DEVELOPER COMMENTS
Henderson (formerly Interville) appreciates the general support that our
rezoning application has received from the majority of City staff.
However, we continue to have concern that the project not become
undermined by adherence to old attitudes based on policy directions that
City Council has since changed. The decision to rezone was taken in
response to functional shortcomings of the existing development plan and
to fundamental changes that have occurred in its economic and community
context. A clear mandate is now needed to carry out this complex
project.
In response to this issues report we have summarized the following
comments and recommendations. Additional commentary is attached as
Appendix 'E'.
Recommendation B: Community Contributions
In the valuation of additional community contributions, such as for park
area, it is essential for the City to distinguish between the levies
that were borne by the initial rezoning of the property from BCPED to
CD-1 and those which can be borne by this rezoning. In the former case
the market value of the land was greatly increased. In the present
case, we have already built and paid for the public amenities such as
streets and parks, and the rezoning can only hope to benefit from the
marginal increase in value of changing the mix of uses within the fixed
development density. It is only from within this narrow margin that
additional community contributions can be paid for.
Recommendation F: Views and Urban Design
We believe we are close to agreement with City staff on a supportable
form of development. This would require modifications to our rezoning
submission that would maintain the key 'Lions' view corridor from
viewpoint #1 of our view study. However, our further concern is that
this not compromise the improved view corridors to the 'Sun Tower' that
we are proposing as being in the public interest.
Recommendation H: Parking
The City staff parking analysis does not appear to fairly represent the
actual context of this site. It runs counter to policy direction set by
Council in 1991 in determining the parking ratio for Downtown South. In
the interest of consistency and protection of the public interest we
therefore propose the following for Council consideration:
"H. THAT the International Village parking standards be revised to
be more generally consistent with the Downtown District, with
specific reference to the Downtown South residential
standards, and with the condition that the overall total
number of on-site off-street parking stalls not represent a
decrease over the site wide totals documented in the DP
applications under the existing zoning."
Recommendation I: Traffic
The City staff's traffic analysis runs counter to the logic of the
string of recent City Council decisions such as the Quayside and G.M.
Place rezonings. Policies such as the Central Area Plan reflect a
fundamental change of attitude towards the City's streets, which
emphasizes the liveability of the City's public realm and opposes the
encouragement of suburban commuter traffic. The G.M. Place process has
shown the necessity of a flexible two-way operation for this part of the
city, and we note that there has been consistent public opposition to
the one-way Abbott/Carrall couplet. We are extremely disturbed by the
suggestion to delay this rezoning as we believe our proposal to be
consistent with the direction of City Council policy. We therefore
propose the following recommendation for Council consideration:
"I. THAT the overall downtown traffic plan be amended to change
this section of Abbott Street south of Pender to two-way
traffic, with a report back from Engineering staff on
implications for other streets in the general area in
implementing City Council's priorities for traffic calming,
pedestrian amenity and alternative modes of transport to the
private automobile."
NEXT STEPS
Following Council direction on the issues in this report, staff will
initiate a public process to discuss the rezoning proposal with the
community. As per the normal process, this will take 5-6 weeks. Based
on this public input, and further detailed staff review, a revised
rezoning proposal could be submitted and a rezoning referral report
considered by Council by early fall.
CONCLUSION
A number of important planning and traffic issues are submitted for
Council's review in this report. These require resolution in principle
now to avoid unnecessary delay and to expedite further staff and public
review of this rezoning application.
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