POLICY REPORT
URBAN STRUCTURE
Date: October 24, 1995
Dept. File No. MK-95009
TO: Vancouver City Council
FROM: Director of Central Area Planning, in consultation with the
General Managers of Engineering Services and Parks &
Recreation, the Directors of Social Planning and Legal
Services, and the Manager of the Housing Centre
SUBJECT: Rezoning: 572 Beatty Street (International Village)
RECOMMENDATIONS
A. THAT the application by International Village Architects on
behalf of Henderson Development (Canada) Ltd. to amend CD-1
By-law No. 6747 be referred to Public Hearing, together with:
(i) development statistics included in Appendix F of this
report;
(ii) plans received from International Village Architects,
dated March 22 and July 31, 1995;
(iii) draft CD-1 By-law provisions, generally as contained in
Appendix A;
(iv) the recommendation of the Director of Central Area
Planning to approve the application, subject to
conditions of approval contained in Appendix B;
(v) draft design guidelines included as Appendix C; and
(vi) consequential amendments to the False Creek North
Official Development Plan, including changes to
residential unit count and floor areas for market and
non-market housing, commercial floor area, views, and
maximum tower heights.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-laws for consideration at Public
Hearing, including amendments to the Sign By-law to establish
regulations for the CD-1 in accordance with Schedule B(DD).
B. THAT Council adopt Recommendation A on the following
conditions:
(i) THAT the passage of the above resolution creates no
legal rights for the applicant or any other person, or
obligation on the part of the City; any expenditure of
funds or incurring of costs is at the risk of the person
making the expenditure or incurring the cost;
(ii) THAT any approval that may be granted following the
Public Hearing shall not obligate the City to enact a
by-law rezoning the property, and any costs incurred in
fulfilling requirements imposed as a condition of
rezoning are at the risk of the property owner; and
(iii) THAT the City and all its officials, including the
Approving Officer, shall not in any way be limited or
directed in the exercise of their authority or
discretion, regardless of when they are called upon to
exercise such authority or discretion.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
and B.
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
- Revised 20% Social Housing Policy approved in April 1993
PURPOSE
This report evaluates an application by Henderson Development (Canada)
Ltd. (formerly Interville Development Ltd.) to amend the False Creek
North Official Development Plan (FCN ODP), the existing CD-1 By-law and
the approved form of development for International Village (sub-area 8)
in False Creek North.
SUMMARY
In June 1995, Council authorized staff to review and seek public input
on several proposed changes to the current zoning and approved form of
development on the International Village site, based upon a series of
directions on key issues of City concern. The current proposal is
generally consistent with those directions, except as noted below.
The developer (Henderson) wants to increase the maximum number of
residential units to 1,400 units. This would be done by smaller units
and converting commercial and hotel space to residential. A separate
report in July established a framework to consider smaller unit sizes
for all of False Creek North subject to meeting public amenity
standards. The Central Area Plan supports conversion of commercial to
residential use. Staff support the proposed housing increase within
existing floor area allowances.
This increase will generate additional family housing, non-market
housing, daycare and park requirements. Henderson is prepared to
provide for these either on-site or by payment-in-lieu for non-market
non-family housing and park. The payment-in-lieu proposals will be
reported separately to Council prior to the referral of this rezoning
application.
The developer wants to change the non-market housing locations to
provide sites that are easier to implement. While family non-market
requirements (10%) would be met on-site, a payment-in-lieu is proposed
for off-site non-market non-family units. This could be used either for
the purchase of social housing sites, or the purchase and renovation of
a nearby Single Room Occupancy (SRO) hotel. Staff support these
changes, acknowledging the need for community discussions to review
investment options for these funds.
Staff support the developer's proposal to concentrate more commercial
space on Parcel E (see map on page 5 for parcel locations), within
overall floorspace maximums now permitted. The marketplace design
maintains retail continuity along Abbott and Pender Streets, proposes a
major public activity space, and has been configured to emphasize a
diagonal pedestrian access through it. This has received strong public
support.
The developer wants to locate a new 24-storey tower on Parcel E. This
will require provision of alternate view corridors to The Lions and Sun
Tower as required by the ODP, but from other locations in nearby public
park areas. Given the public support, and equivalent replacement views
proposed, staff support the changes to ODP views.
The developer wants to increase tower heights 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 Pender and Abbott Streets.
Staff support these changes.
The developer wants to reduce residential and commercial parking
standards to be consistent with other downtown areas. Staff believe
currently approved residential standards reflect actual needs, and are
consistent with other downtown and False Creek North areas. Staff
recommend no change to current parking by-law requirements for
residential use to ensure adequate resident and visitor parking during
busy commercial periods and during events at BC Place and GM Place.
However, modest adjustments are recommended for commercial parking
standards to recognize overlapping uses of parking and the availability
of other off-street commercial parking.
The developer wants to change the approved one-way traffic system on
Abbott Street south of Pender, to two-way traffic. Engineering staff
will report back on this issue prior to zoning enactment.
BACKGROUND
A preliminary rezoning application for International Village was
submitted in March 1995. A report on key issues was considered by
Council on June 22, 1995 which authorized staff to review a number of
proposed changes to the current zoning and approved form of development,
including:
- increasing the number of residential units by conversion of hotel
and other commercial floorspace, and smaller unit sizes within
current floorspace allowances in International Village;
- changing the mix and location of social housing, including payment-
in-lieu for non-family units;
- changing the form of development and adding a new tower on Parcel
E;
- revising view corridors through the site;
- increasing the height of all towers; and
- adjusting parking standards.
At that time, Council also chose not to reaffirm the approved one-way
Abbott/Carrall couplet, and indicated it was prepared to consider 2-way
traffic on Abbott Street, south of Pender.
The final application was submitted on July 31, 1995.
An extensive public process, including meetings with Civic Advisory
Groups, adjacent land-owners and merchants, the general public and
nearby neighbourhood groups was undertaken between June and October,
1995.
DISCUSSION
Site and Context
This site is located to the north of the Dunsmuir Viaduct, between
Pacific Boulevard North and Pender Street, extending east from Beatty
Street to Taylor and Quebec Streets. To the north is Victory Square and
Gastown, to the east is Chinatown, and to the south is the new GM Place
Arena.
Completed sections of International Village include the mixed use
development on Parcel C called "Paris Place", the Keefer Steps public
area and pedestrian connection to Beatty Street, Andy Livingstone Park,
and the streets and services. Paris Place includes a 32-storey
residential tower, and an 8-storey residential mid-rise building on top
of a 2-storey commercial podium. Site excavation has also been
completed for Parcels E and F, on the east side of Abbott Street.
Staff also note that Concord Developments remains the legal owner of the
site, and it will be an obligation of Concord to satisfy the City that
the agreements will bind not only also Concord, but Henderson and other
beneficial owners.
Proposed Development
Up to 1,400 residential units are proposed, comprising 109 620 m› (1.18
million sq. ft.), in towers and low-rise buildings. The six towers
range in height from 24 to 34 storeys (70 m to 91 m). See Appendix D
for the overall design concept plan.
Two non-market housing sites on Parcels A and D would accommodate 140
family units. An additional 140 non-family units are proposed as a
payment-in-lieu for off-site investment. A community centre, elementary
school and daycare are located next to Andy Livingstone Park on Parcel
F.
Approximately 38 090 m› (410,000 sq. ft.) of commercial space is
proposed, of which 18 580 m› (200,000 sq. ft.) will be retail. Most of
this is contained in a central marketplace located on Parcel E. Retail
uses are also located at grade along Pender and Abbott Streets, and
around the Keefer Circle.
Increasing the Number of Residential Units
Currently, a maximum of 800 units are allowed in International Village.
To date, 177 units have been built on Parcel C. The developer wants an
increase of 600 units by reducing average unit sizes and converting 33
000 m› (355,000 sq. ft.) of hotel and commercial space.
In June, Council agreed to further consider this proposal. In July, the
issue of smaller unit sizes for all of False Creek North, including
International Village, was reported, and Council established parameters
and public requirements generated by this request. The approach used in
considering an increase in the International Village unit count and
suggesting a framework for amenity provisions is consistent with what
has been approved 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.
Public review has indicated general support for the unit increase in the
International Village situation.
Subject to conditions securing public requirements outlined in Appendix
B, staff support the proposed increase in residential units in
International Village.
Public Requirements to Serve More Housing
An increase in units and population will generate additional public
requirements for family housing, social housing, daycare and park space.
Some of these will be provided on-site, while others are proposed as
payments-in-lieu. Community facility and school needs can be
accommodated by planned and already committed facilities. The
International Village zoning was approved prior to the implementation of
the City's Public Art Policy. As the total amount of development is
unchanged, no public art requirement has been applied to the current
rezoning proposal.
A. Daycare
There is an increased childcare demand of 7 spaces. This represents a
value of about $194,000. Staff recommend this childcare need be met by
increasing the planned daycare size by 1,000 sq. ft. and a $40,000
payment-in-lieu contribution to the City Childcare Endowment Fund.
The daycare site is excavated and is not available for temporary use
until development is completed. An additional condition is recommended
requiring the provision of a temporary site and/or leasable space on
other parcels, should there be a demand for the daycare prior to the
permanent facility being constructed.
B. Parks
The increase in site population would need additional park space to
satisfy ODP requirements. Staff support a payment-in-lieu for this.
Proposed payment-in-lieu amounts for park and non-market housing will be
reported separately to Council prior to zoning referral.
C. Non-Market Housing - On and Off-Site
Henderson wants to separate the non-market and market housing components
to enable independent phasing of projects. They propose consolidating
140 family non-market units on Parcels A and D, and providing for non-
family requirements through a payment-in-lieu of equivalent value for
off-site investment by the City (eg. acquisition of sites and/or
contribution toward the purchase and rehabilitation of an SRO hotel
nearby). In June, Council agreed to further consider these proposals.
Public review has indicated general support from the local community.
The proposed family projects are larger than presently approved in the
CD-1 zoning, but are within BCHMC guidelines. Given the very limited
funding for non-market seniors' housing, staff support using payments-
in-lieu to assist in providing the housing nearby. The revised non-
market housing policy approved in April 1993 allows for this. These
funds would be secured at the zoning enactment stage, allowing for an
early start on the off-site housing facilities. Funding is available
under the Homeless/At Risk Program for low-income downtown seniors
housing.
Staff support these changes in non-market housing provisions, noting
that the East Downtown Housing Plan will provide a context for the
appropriate investment of these funds.
Commercial Floorspace Redistribution
Henderson wants to redistribute and reduce the remaining commercial
space and focus it on Parcel E; the marketplace would increase to 23 250
m› (about 250,000 sq. ft.). No increase to the overall retail component
is proposed. Current street-fronting retail would be generally
maintained, but depths would be reduced and most second floor commercial
space would be relocated.
In June, Council agreed to consider these changes subject to submission
of a retail impacts study and its review with local shopping area
interests including Chinatown and Victory Square.
A retail impact study submitted by the applicant has been reviewed by
staff and with the public. Strong support was received from Chinatown
and other local commercial interests for the proposed changes to retail
distribution (see Appendix G). Accordingly, staff support this change.
Marketplace Design and Pedestrian Access
The developer proposes to develop the marketplace on Parcel E as an
enclosed 3-storey structure with a major interior public activity space
and pedestrian corner connections to adjacent streets. The diagonal
access way would be covered and reconfigured.
In June, Council agreed to consider these proposals subject to design
changes addressing public access and a response to the former Gastown
rail alignment to the north.
The revised design for the marketplace addresses the key concerns
previously identified, particularly the reconfiguration of the central
accessway to echo the former diagonal rail alignment through the site.
The Chinatown Heritage Area Planning Committee, Urban Design Panel and
the Vancouver Heritage Commission support the revised marketplace
design. Staff feel the overall design maximizes the extent of street-
oriented retail around the site, and is consistent with Central Area
Plan objectives for downtown retail development. Accordingly, the
proposed revisions to the marketplace configuration are supported.
Public Views and a New Tower on Parcel E
The developer wants to adjust the ODP view corridors to The Lions and
the Sun Tower to new locations in Creekside and Andy Livingstone Parks.
In June, Council agreed to consider these proposals, subject to
alternate view corridors being designated, and minimizing view impacts
of the new tower on Parcel E.
The developer proposes that 'The Lions' view be redefined by a new view
corridor on the waterfront walkway in Creekside Park. Additional views
of 'The Lions' would also be defined from the upland public walkway and
Science World entry area in Creekside Park. Sun Tower views would also
be available from both park areas.
Proposed changes to the FCN ODP views are shown on Appendix E. During
public review of these proposals, there was either positive or passive
support. The Vancouver Heritage Commission supports the proposed
changes to the Sun Tower views. Draft design guidelines call for a
setback of the Parcel E tower to minimize views impacts.
Accordingly, staff support these changes.
Increasing Tower Heights
Existing zoning permits tower heights ranging from 15 storeys or 43 m
(140 ft.) to 34 storeys or 91 m (300 ft.). One 300-foot tower has been
built. The developer wants to increase the heights of the remaining
towers between 2 and 9 storeys (see Appendix F), and the height of the
mid-rise building on Parcel D by one storey. The ODP height maximum of
91 m (300 ft.) is not being changed.
In June, Council agreed to further consider these proposals. During the
public review, general support was indicated.
A higher 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 building mass on Parcel E. Staff feel the
reduction in building scale next to Pender Street is desirable, and are
supportive of the adjustments to tower heights.
Parking Standards and Requirements
In June, Council resolved that currently approved parking standards for
International Village not be reaffirmed, but that a range of
alternatives including payment-in-lieu be considered for report back as
part of the rezoning referral report.
Existing zoning requires 1 space/93 m› for office use, 1 space/50 m› for
retail and restaurant use, and 1 space/100 m› plus 0.4 spaces for each
dwelling unit. Parking for recreational, cultural and institutional
uses must meet Parking By-law provisions. Additionally, 350 spaces for
BC Place public parking are required.
The developer wishes to reduce the International Village parking
standards to be more consistent with adjacent downtown areas. Current
International Village retail and office standards would be met, but a
reduced standard of 1 space/50 m› is proposed for cultural and
recreational uses. A further relaxation of 10% for the non-residential
parking requirements is proposed to recognize the shared use of these
spaces. The residential parking standard would be reduced to 1
space/100 m› plus 0.2 spaces for each dwelling unit. Care must be taken
in assessing whether to reduce parking standards as adjacent areas have
minimal parking supply.
Staff do not support reducing the current residential parking standard.
Staff feel that it is important to provide adequate on-site parking to
accommodate residents and visitors during busy commercial periods and
during events at BC Place and GM Place. Commercial parking requirements
should also be maintained, except for grocery stores which can be
included within the 1 space/50 m› for retail, and a possible 10%
reduction in commercial parking for shared uses.
Staff believe that the standards for parking should be maintained,
except as specifically recommended for retail and joint use
consideration.
In June, Council recommended consideration of pay-in-lieu, however, this
is not appropriate in this case. Parking can and should be developed on
site to meet the demand. The issue here is whether to approve the
developer's request for a reduced standard.
The residential parking standards and reduced commercial parking
recommended by staff reflect the availability of on-site parking and
other off-street commercial parking in the area and recognize the
overlapping utilization of parking spaces for non-residential uses.
These standards also provide adequate on-site parking for residents and
their visitors and for non-residential uses during busy commercial
periods and during event times at BC Place and GM Place.
Abbott Street Traffic Role
The developer wants to change Abbott Street between Pender and Pacific
Boulevard North, from one-way north bound to a two-way system.
In June, Council did not reaffirm the previously approved one-way
Abbott/Carrall couplet.
Engineering staff are reviewing this issue in the broader context of the
overall downtown traffic system, and will report to Council prior to
zoning enactment. Staff note that the proposed form of development on
the International Village site is not dependent on whether Abbott Street
is one or two-way.
Comments From Other Reviewing Agencies
Urban Design Panel
The Panel reviewed this rezoning proposal on several occasions, most
recently on August 16, 1995. The Panel strongly supported the
application, particularly the improvements made to the marketplace block
emphasizing a diagonal pedestrian way responding to the old Gastown rail
right-of-way alignment.
Chinatown Historic Area Planning Committee (CHAPC)
The CHAPC reviewed the application on June 13 and July 11, 1995.
General support for the proposed retail and parking changes was
expressed. Strong support was also made for changing both Abbott and
Carrall Streets (south of Pender) to two-way traffic. See Appendix G
for the full text of approved CHAPC resolutions.
Social Implications
These changes to the approved zoning for International Village will
assist in the implementation of a socially diverse neighbourhood in the
Downtown Eastside. Off-site payment-in-lieu provisions will assist City
objectives to improve affordable housing and usable park space for
adjacent neighbourhoods.
Environmental Implications
International Village will provide opportunities for high-density living
close to transit, recreation and work places in the central business
district. This will reduce traffic demands with consequent benefits to
air quality, energy costs and a reduction in vehicular pollutants.
APPLICANT'S COMMENTS
In reviewing the Issues Report in June 1995 City Council established a
clear policy direction for International Village. This included
directing City staff to revise parking standards and to plan ahead for
two-way operation of Abbott Street. The rezoning referral report
documents the broad support the proposed reconfiguration of
International Village has since received from the City's advisory
committees and members of the public and community groups, including the
above traffic and parking initiatives.
However, the referral report and the draft By-law contain staff
recommendations that run counter to the above consensus, and threaten to
destroy the proposal's fragile financial feasibility.
The rationale for this rezoning has always been the need to reshape this
development to enable it to proceed as a viable financial undertaking.
We can only continue the community building process if it is
economically feasible to do so.
We recognize that attempting to improve the development economics of the
project through rezoning brings a consequential commitment to increased
community contributions and development costs. The issues report has
already recognized the principle that the total cost of additional
community contributions must be negotiated on the basis of the increment
in the value of this "renovation" over that of the existing zoning. We
have agreed with City staff on an objective assessment of this marginal
increment. It is only from this margin that any additional development
costs and community contributions can be funded.
How this increased contribution is applied towards social housing, day-
care, park amenities or additional public parking is for City Council to
decide.
Having built and paid for a fully equipped 10 acre park which has
already been turned over to the City, our efforts have generally been
focused on finding the means to implement some social housing in the
area in the absence of senior government funding.
However, the City staff recommendation to increase the total parking
requirement for International Village effectively represents the levy of
an additional community contribution. It is based on a vision of
servicing parking shortfalls elsewhere in the downtown, rather than on
the profile of our own residents' needs.
Our rezoning proposes parking standards that are consistent with those
that City Council has adopted for the Downtown District. These
standards are substantially higher than for the surrounding
neighbourhood of which we are an integral part, and we will provide in
addition almost half of the total stadium parking requirement. The
appropriateness of our proposal for this site is reinforced by having
received the support of Chinatown, and by documentation of the under
used capacity of the existing parking lots in the surrounding areas.
Increasing the provision of parking is not consistent with the City's
goal of creating an affordable and liveable downtown. The imposition of
such a requirement would seriously jeopardise the viability of
International Village and the enormous public benefit that it represents
for this area of Vancouver.
The continuation of the existing two way traffic flow on Abbott Street
from GM Place to Pender Street is also of great importance to us. We do
not believe that we can operate properly with the present one way
traffic flow through our site, which emphasizes commuter convenience at
the expense of living and working in the downtown.
We respectfully urge City Council to support the aspirations of the
community, the goals of the Central Area Plan, and to remain in the
realm of the real world in approving this rezoning, and specifically in
approving our parking and traffic flow proposals, and in matching the
requirement for community contributions to the ability of the
development to pay for them.
CONCLUSION
Changes proposed to the International Village zoning, form of
development and FCN ODP, including payments-in-lieu for social housing
and parks, are consistent with City policy, and previous Council
direction, and are supported by City staff. Support for these changes
has also been expressed by local area commercial and residential groups,
heritage and other advisory groups. These improvements will assist in
the overall project viability and foster its role in revitalizing an
important area of downtown. Staff recommend that Council refer the
application to Public Hearing.