CITY OF VANCOUVER
SPECIAL COUNCIL MEETING
A Special Meeting of the Council of the City of Vancouver was held
on Tuesday, November 14, 1995, at 7:30 p.m., in the Council Chamber,
Third Floor, City Hall, for the purpose of holding a Public Hearing to
amend the Zoning and Development By-law.
PRESENT: Mayor Owen
Councillors Bellamy, Clarke, Hemer, Ip,
Kennedy, Kwan, Price, Puil and
Sullivan
ABSENT: Councillor Chiavario (Sick Leave)
CLERK TO THE COUNCIL: Gary MacIsaac
COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy,
SECONDED by Cllr. Hemer,
THAT this Council resolve itself into Committee of the Whole, Mayor
Owen in the Chair, to consider proposed amendments to the Zoning and
Development By-law.
- CARRIED UNANIMOUSLY
1. Rezoning: 1100-1114 Burnaby Street
An application by Brook Development Planning Inc. was considered as
follows:
The proposed rezoning from RM-5A Multiple Dwelling District, to CD-
1 Comprehensive Development District, would:
- permit the re-use of two existing buildings, formerly used as
a seniors' care facility, as a 225-bed international hostel;
- limit maximum building height to 13.4 m (44 ft.);
- limit maximum density to FSR 1.8;
- require the provision of 28 off-street parking spaces; and
- require amendment to the Sign By-law, and possible
consequential amendments.
cont'd....
Clause No. 1 (cont'd)
The Director of Land Use and Development recommended approval,
subject to the following conditions proposed for adoption by resolution
of Council:
(a) That the form of development be approved by Council as illustrated
in plans prepared by Harry LeBlond, Architect and approved by the
Director of Planning in Development Permit No. 30363 issued
October 27, 1964 and as illustrated in plans prepared by Harry
LeBlond, Architect and approved by the Director of Planning in
Development Permit No. 94456 issued March 3, 1983, and any
subsequent minor amendments approved prior to April 28, 1995, and
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) provision of adequate garbage and recycling facilities, to the
satisfaction of the General Manager of Engineering Services;
(ii) provision of 19 parking spaces, to the satisfaction of the
General Manager of Engineering Services;
(iii) arrangement for providing either an additional 9 parking
spaces off-site or a shuttle service between the proposed
hostel and the existing Jericho Hostel, to the satisfaction of
the General Manager of Engineering Services; and
(iv) provision of bicycle storage spaces for 50 bicycles, to the
satisfaction of the General Manager of Engineering Services.
(c) That prior to enactment of the CD-1 By-law, and at no cost to the
City, the registered owner shall:
(i) make suitable arrangements, to the satisfaction of the General
Manager of Engineering Services, for under-grounding of all
new electrical and telephone services within and adjacent the
site from the closest existing suitable service point.
cont'd....
Clause No. 1 (cont'd)
Staff Opening Comments
Ms. Lynda Challis, Planner, advised this application proposes to
take two buildings previously used as a seniors care facility, and re-
use them as an international hostel. The two principal issues
concerning this application are the proposed use and potential parking
impacts.
In terms of the proposed use, an international hostel is considered
in the Zoning & Development By-law as a hotel use, and the 1987 West End
Residential Area Policy Plan does not support new hotels. However,
staff support the proposed re-use on the basis that an international
hostel is different from a hotel and this is a unique case and would not
set a precedent for this area. The location and buildings are both well
suited for an international hostel and the facility would contribute to
the neighbourhood by maintaining the streetscape character and open
space.
In terms of impact on traffic and parking, the applicant proposed
19 parking spaces which is the number currently on the site. A parking
study was undertaken by the applicant and staff recommend an additional
nine spaces be provided. The applicant has been offered the option of
providing parking at the Jericho Hostel site, which is managed by the
same organization, and running a shuttle bus between sites. Staff
expect the traffic impacts to be minimal as the majority of guests at
international hostels do not travel by car.
Applicant Opening Comments
Ms. Margot Paris, on behalf of Brook Development Planning Inc.,
advised this application is a good fit for hostelling, for the buildings
and for the neighbourhood. This rezoning maintains for the future two
modestly scaled buildings which are in excellent condition and belong in
the fabric of this West End neighbourhood.
Under the current zoning, this building could open tomorrow as a
rooming house in accordance with the outright use under the existing
zoning. Under conditional zoning, it could operate as a hospice,
hospital, group home or any other use that could be custodial in nature
involving drug or alcohol treatment. Of these uses, hostelling will
cause the least impacts on the neighbourhood.
Mr. John Hopkins, Executive Director, Hostelling International
B.C., explained the structure and function of his organization, the
reasons for acquiring a new facility and the manner in which the new
hostel will complement the existing neighbourhood.
cont'd....
Clause No. 1 (cont'd)
Vancouver is one of the most popular destinations for hostellers in
North America, and in the summer months, the Hostelling International
facility at Jericho is in full capacity and turns away approximately 100
persons per day. The proposed facility will enrich the West End
economically and culturally and will create jobs for residents. Hostels
are more than just an inexpensive place to sleep, they are about
creating community.
Responding to a question from a member of Council, Mr. Hopkins
advised the new facility will be wheelchair accessible and International
Hostelling B.C. will be giving consideration to making the Jericho
facility wheelchair accessible, as it will be considering a number of
renovations once this new hostel is on-stream.
Correspondence
A review of the correspondence received indicated the following:
- 15 letters in favour of the application;
- 55 form letters in favour of the application;
- 14 letters opposed to the application.
Speakers
The Mayor called for speakers and the following were in favour of
the application:
- Sam Campbell
- Joan Enman
- Walter Kalyn
- Gloria Allison
- Derek Brown
- Brent Welty
- Erik Graff
- Barbara Thomas
- Sany Rahiman.
The foregoing supported the application for one or more of the
following reasons:
- The application will provide more affordable low-cost housing;
- Hostels all over the world are located in residential
neighbourhoods;
cont'd....
Clause No. 1 (cont'd)
- This is an excellent addition to the West End, and is preferable to
another highrise which will increase the density;
- This application will preserve the existing buildings on site;
- This is a safe location for hostellers to visit;
- The International Hostelling Association is a well-managed and
respected non-profit organization.
The following people opposed the application:
- Marie Hietakangas
- Jeff Nightingale.
The application was opposed on the basis that it contradicts the
West End Residential Area Policy Plan which was adopted through a
comprehensive public process in the late 1980s. At that time, there was
division on many issues but, unanimity on the issue that no hotels be
allowed in the residential area. The neighbourhood is opposed to
hostels in the residential community and the criteria used to evaluate
this application by the Planning Department could be indicative of any
location in the West End. A 225-bed hostel will lead to thousands of
people coming and going at this location on a monthly basis. These
people will not have the same feel for the neighbourhood as the current
residents.
Applicant Closing Comments
The applicant offered no additional comments.
Staff Closing Comments
Ms. Lynda Challis reiterated the differences between hostel use and
hotel use that led staff to support this application. This is not seen
to be precedent setting and does not represent a wholesale change or
abandonment of the hotel policy which is reflected in the West End
Residential Area Policy Plan.
MOVED by Cllr. Puil,
THAT this application be approved subject to the conditions as set
out in this minute of the Public Hearing.
- CARRIED UNANIMOUSLY
2. Text Amendment: Restaurant Seating Regulations
An application by the Director of Land Use and Development was
considered as follows:
If approved, the rezoning would amend the definitions of Restaurant
- Class 1 and Restaurant - Class 2 in the Zoning and Development
By-law to specify that all types of seats (inside, outside, chairs,
stools, benches) are counted as seats, and increase the minimum
number of seats, from nine to seventeen, that a food service
establishment must have before it is classified as a restaurant.
Amendments to the definitions of Limited Service Food Establishment
and Restaurant in the License and Health By-laws are also proposed
to achieve consistency with the definitions in the Zoning and
Development By-law, and to require only one washroom for food
service establishments with less than seventeen seats.
The Director of Land Use and Development recommended approval.
Staff Opening Comments
Ms. Pat Johnston, Planner, advised these amendments are brought to
Council out of a concern raised by the Robson Street Business
Association about enforcement action that was taken on some
establishments that were not in compliance with the City's by-laws, and
also in a response to a Council concern with respect to inconsistencies
in how by-laws were being applied.
Presently, food service establishments which sell prepared food are
not considered to be a restaurant unless they have more than eight
seats. Bar stools, benches and outside seats are not included in the
seat count. However, for health provisions, all seats are counted.
Staff feel the Health Department practise of counting all seats is
preferable and the amended definitions before Council make the various
by-laws consistent with each other and stipulate that all types of seats
be counted.
Staff also reviewed the point at which a food service establishment
becomes a restaurant. A restaurant is faced with higher washroom and
parking standards than a food service establishment. The amended
definitions also increase the minimum number of seats to 16 that a food
service establishment could have before it becomes a restaurant.
cont'd....
Clause No. 2 (cont'd)
Summary of Correspondence
One letter was received in support of the application, but
expressed concern with the implication of counting seasonal exterior
seats for seasonal large sidewalk cafes for limited service food
establishments.
Speakers
Mr. Jim Lehto, on behalf of Max's Deli, urged Council to make
amendments to the proposed application. Should Council adopt the staff
recommendations, then any facility with more than 16 seats will become a
restaurant. Mr. Lehto objected to counting inside and outside seats
equally because this will be a disadvantage to limited food service
establishments. It was suggested that outside seats be included in the
count for health purposes and washrooms, but not be included for zoning
and parking purposes. Mr. Lehto submitted a revised recommendation
reflecting these amendments (on file in the City Clerk's Office).
Mr. Sam Campbell raised concerns with the potential impact this
application may have on open space in the Downtown.
A delegate suggested rather than counting inside and outside seats
in the same fashion that a fractional equivalent be used for outdoor
seats which would reflect the fact they are seasonal and are used less
than inside seats.
Staff Closing Comments
Responding to questions from members of Council, Ms. Johnston
advised that in staff's opinion outside seats should be considered in
the same manner as inside seats. At present, outside seats are used
year-round and the fact that an outside is occupied, does not mean an
inside seat is unoccupied.
Mr. Rick Scobie, Director of Land Use and Development, advised that
if Council approves this application, then a food service establishment
wishing to have more than 16 seats would change to restaurant status,
but could make application to the Parking Variance Board for a lesser
parking standard than would be required for a restaurant on the basis of
the supporting information they submit to justify such a relaxation.
MOVED by Cllr. Clarke,
THAT this application be approved.
- CARRIED UNANIMOUSLY
3. Text Amendment: 1202-1398 Pacific Boulevard
(Roundhouse Neighbourhood)
An application by the Director of Land Use and Development was
considered as follows:
The proposed text amendment to CD-1 By-law No. 7156 would increase
the maximum amount of amenity space excludable from density
calculation, by 500 m› (to 3,500 m›), in order to permit the
construction of a 69 unit seniors' housing project.
The Director of Land Use and Development recommended approval.
Summary of Correspondence
There were no letters received regarding this application.
Speakers
Mr. Sam Campbell enquired whether this application is the proper
manner in which to proceed given the fewer funds that exist to build
social housing.
Staff Comments
Mr. Cameron Gray, Manager of the Housing Centre, responded to the
comments from the delegation and advised the issue before Council
relates to the amenity space required to accommodate the seniors. There
is limited funding available for seniors housing, and the City is trying
to accomplish some affordable housing gain given the funding
availability.
MOVED by Cllr. Price,
THAT this application be approved.
- CARRIED UNANIMOUSLY
RISE FROM COMMITTEE OF THE WHOLE
MOVED by Cllr. Clarke,
THAT the Committee of the Whole rise and report.
- CARRIED UNANIMOUSLY
ADOPT REPORT OF COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy,
SECONDED by Cllr. Clarke,
THAT the report of the Committee of the Whole be adopted, and the
Director of Legal Services be instructed to prepare and bring forward
the necessary by-law amendments.
- CARRIED UNANIMOUSLY
* * *
The Special Council adjourned at approximately 9:45 p.m.