POLICY REPORT
DEVELOPMENT AND BUILDING
Date: February 6, 1996
Dept. File No. 95036 TWP
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: CD-1 Rezoning - 2750 East 18th Avenue
RECOMMENDATION
A. THAT the application by Brian Sim, Architect, to rezone 2750
East 18th Avenue and 3455 Kaslo Street (Lot B and Portion of
Lot A, Block F, D.L. 44, Plan 11920) from RS-1 to CD-1, to
permit replacement of a special needs residential and school
facility, and retention of a similar facility, be referred to
a Public Hearing, together with:
i) plans received November 8, 1995;
ii) draft CD-1 By-law provisions, generally as contained in
Appendix A; and
iii) the recommendation of the Director of Land Use and
Development to approve, 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;
B. THAT, subject to approval of the rezoning at a Public Hearing,
the Subdivision By-law be amended as set out in Appendix D;
and
FURTHER THAT the Director of Legal Services be instructed to
bring forward the amendment to the Subdivision By-law at the
time of enactment of the Zoning By-law.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
and B.
COUNCIL POLICY
Council in September 1983 adopted, and in July 1989 and February 1992
amended, a policy on Special Needs Residential Facilities which states,
in part:
"In a predominantly residential area, a special needs residential
facility should be spaced at least 200 m (656 ft.) from another
special needs residential facility. Exceptions may be made where
one facility operates as an annex to another, provided that the two
facilities together are compatible with their neighbourhood."
PURPOSE AND SUMMARY
This report assesses a CD-1 rezoning application to develop residential,
school and administrative facilities at 2750 East 18th Avenue to replace
the existing outdated Esther Irwin Home on an adjacent site at 3440
Slocan Street, and to retain the Eileen Corbet Centre, a similar
facility, at 3455 Kaslo Street. These facilities date from 1960 and
1962 respectively, thereby predating the above-noted policy. The
maximum density would be 0.45 FSR in one- and two-storey buildings, with
a total of 47 surface parking spaces. Staff support the proposed
rezoning.
DISCUSSION
Form Five new buildings are intended to form a complementary cluster of
functions and forms around a common open space. To allow maximum
consolidation of open space and tree retention, parking is to be located
along the periphery at the lane.
Although the school fronts onto East 18th Avenue to provide seclusion
and a secure interior location for the dwellings, it does not have a
"public" function. Therefore, a residential image is sought for this
building rather than an institutional image. Further architectural
refinement is needed to achieve this objective. (Note Plans: Appendix
C)
Tree Retention The extensive tree resources of this site offer major
benefits to both the community and the children who will occupy it.
Both the community and the Urban Design Panel stressed the need to
retain as many trees as possible. Therefore, retention and relocation
of trees has been a site planning priority. Staff urged the applicant
to retain a grove of Vine Maples and 5 individual trees originally
proposed for removal. Three of these trees will be retained, one will
be relocated and an effort will be made to relocate 5 clumps of Vine
Maple. As a result, half (49) of the existing 98 trees are to be
retained. Of the 49 to be removed, 36 are relatively shortlived
Cottonwoods and Sour Cherry. 71 new trees will also be added.
CONCLUSION
Planning staff conclude that the proposed uses, which predate the
existing Council policy, are complimentary and are well suited to this
location. The proposed density is lower than RS-1 zoning would permit.
The form of development requires further design development as
prescribed in the Conditions of Approval (Appendix B). However, the
general site plan, scale of buildings and landscape plan are supported.
Therefore, staff recommend approval, subject to further design
development, as contained in Appendix B.
* * *
APPENDIX A
DRAFT CD-1 BY-LAW PROVISIONS
______________________________
Use
- A maximum of two Special Needs Residential Facilities,
consisting of residential, educational and administrative
functions.
Density
- Maximum floor space ratio of 0.45 FSR, based on calculation
provisions of the RS-1 District Schedule.
Height
- A maximum of 9.2 m (30 ft.) or 2-1/2 storeys.
Setback
- A minimum setback of 6.5 m (21.3 ft.) from East 18th Avenue;
- A minimum setback of 7.0 m (23 ft.) from Kaslo Street; and
- A minimum setback of 7.5 m (24.6 ft.) from the south property
line.
Parking
- A minimum of 47 parking spaces, except that on the easterly 49 m
of the site parking must be provided at a ratio of one space for
each 70 m› of gross floor area if the total floor area of that
portion of the site exceeds 1 695 m›.
APPENDIX B
Page 1 of 3
PROPOSED CONDITIONS OF APPROVAL
________________________________
(a) That the proposed form of development be approved by Council in
principle, generally as prepared by Tielker Sim and Associates,
Architects, and stamped "Received City Planning Department,
November 8, 1995", 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) design development to the East 18th Avenue frontage to
provide a more residential expression;
(ii) design development to reduce the prominence of the
covered linkage between the school and administration
buildings;
(iii) design development to all elevations to achieve greater
compatibility with neighbourhood context;
(iv) the integration or relocation of the maintenance
building from the lane;
(v) provision of a large shade tree and low hugging
landscape ground treatment in place of the proposed
maintenance building location;
(vi) clarification of proposed fencing/gating locations and
type. Fencing for back yard play areas not to exceed
1.8 m;
(vii) clarification of proposed site, building and security
lighting locations and types. Selection of fixtures
along lane in accordance with Sections 4.8.3 and 4.9.3
of the City of Vancouver Parking By-law;
(viii) provision of a site security/monitoring plan (written)
that confirms after hours supervision, hours of use for
outdoor play areas, including basketball, road hockey or
similar activities and appropriate site edge/interior
monitoring and lighting; and APPENDIX B
Page 2 of 3
(ix) tree retention and protection measures should be in
accordance with the Tree By-law No. 7347 and the
associated guidelines. A certified Arborist should
ensure that the trees identified for retention or
relocation in the revised landscape plan received
January 8, 1996, are adequately protected during
construction and that the proposed development,
especially building foundations, hard surface treatments
and additional planting, accommodate the trees.
(c) That, prior to enactment of the CD-1 By-law, the registered
owner shall:
(i) obtain approval and registration of a subdivision of
lots A and B, Block F, D.L. 44, Plan 11920 to create the
proposed new parcel;
(ii) make arrangements to the satisfaction of the General
Manager of Engineering Services for the dedication of a
6.0 m lane extending south from 18th Avenue on the west
side of the proposed site, and then running west to
connect to Slocan Street. A 3.0 m x 3.0 m corner-cut is
also required from the southeast corner of the newly
formed lot fronting Slocan Street (formerly Lot A);
(iii) make arrangements for all electrical and telephone
services to be undergrounded within and adjacent the
site from the closest existing suitable service point;
(iv) make arrangements to the satisfaction of the General
Manager of Engineering Services, for provision of a
sewer easement at the southeast corner of Lot B, to
service Lot 2 to the south. The easement shall be 6.0 m
wide, measured from the east property line extending 15
m north from the south property line of Lot B;
(v) make arrangements to the satisfaction of the General
Manger of Engineering Services, for the provision of
adequate water service for fire-fighting purposes, at
the applicant's expense; and
APPENDIX B
Page 3 of 3
(vi) make arrangements to the satisfaction of the General
Manager of Engineering Services, in consultation with
the adjacent neighbourhood regarding protection of trees
on the boulevard, for the provision of a sidewalk on the
south side of 18th Avenue from Kaslo Street up to the
new north/south lane, at the applicant's expense.
APPENDIX F
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 2750 East 18th Avenue/3455 Kaslo Street
Legal Description Portion Lot A, Lot B; Block F; D.L. 44; Plan 11920
Applicant Brian Sim, Architect
Architect/Plans by Tielker Sim Architects
Property Owner City of Vancouver
Developer Children's Foundation
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 10 636 m› (2.6 ac) 10 636 m›
DEVELOPMENT STATISTICS
DEVELOPMENT PERMITTED UNDER PROPOSED RECOMMENDED
EXISTING ZONING DEVELOPMENT DEVELOPMENT (if
different than
proposed)
ZONING RS-1 CD-1
USES One Family, SNRF, etc SNRF
MAX. FLOOR SPACE RATIO 0.60 0.45
MAXIMUM HEIGHT 9.2 m (30 ft.) same
MAX. NO. OF STOREYS 2-1/2 same
PARKING SPACES SNRF = 17 47
FRONT YARD SETBACK 20% = 18.7 m (61.4 ft.) 6.5 m (21.3 ft.)
SIDE YARD SETBACK 10% = 6.5 m (21.3 ft.) 3.0 m (9.8 ft.)
REAR YARD SETBACK 45% = 42 m (138 ft.) 7.5 m (24.6 ft.)
NO. OF PRINCIPAL BUILDINGS 1 6
APPENDIX D
Page 1 of 2
ADDITIONAL INFORMATION
Proposed Development A one-storey school and a one-storey
administration building are proposed to front onto East 18th Avenue with
three two-storey dwellings set around a courtyard playground to the
rear. Two dwellings will each have bedrooms for nine children, while
the third will accommodate six. These children are assessed and treated
for behavioural problems, often resulting from abuse.
A rezoning would accommodate six principal buildings with setbacks which
would not conform to RS-1 zoning and provide site-specific parking
standards. In future, the Eileen Corbet Centre may also be redeveloped.
Unless an increase in floor space is found necessary at that time, a new
facility could be approved through a development permit, with a revised
form of development approved by Council.
Thirty-seven parking spaces would be provided for Esther Irwin Home in
three surface lots along the lane and at the rear of the site adjacent
to the Sunny Hill Hospital site. Ten spaces remain available for the
Eileen Corbet Centre on its portion of the site. Parking for the Corbet
Centre would be required to meet a comparable ratio to the Irwin Home if
redeveloped to increase its floor area.
The Site This 1.1 ha (2.6 ac) City owned site is comprised of one
parcel and a portion of a second parcel on the south side of East 18th
Avenue. The site has a frontage of 113.7 m (373 ft.) and a depth of
93.5 m (307 ft.). It slopes down 4.4 m (14.3 ft.) from south to north
and is heavily treed in some areas. Ninety-eight (98) trees have been
identified on the site and the City boulevard fronting the site along
East 18th Avenue.
The Esther Irwin Home site and the Eileen Corbet Centre site must be
resubdivided in order to create a new, larger, parcel to contain the two
facilities. The subdivision would also create a lane which would
separate the parcels and would provide access to the rezoning site, via
Slocan Street and East 18th Avenue.
Real Estate Services will likely pursue a further subdivision of the
Slocan Street parcel in the future, to accommodate single-family
development.
Public Input A notification letter was sent to nearby property owners
on November 24, 1995 and rezoning information signs were posted on the
site on November 30, 1995. A public meeting at Beaconsfield Elementary
School was attended by 14 area residents on December 6, 1995. Eight
phone calls were received from residents and no one came to City Hall to
view plans. Concerns focused on the adequacy of tree retention and open
space. No letters expressing opposition were received.
APPENDIX D
Page 2 of 2
Comments of the City Engineer The City Engineer has no objection to the
proposed rezoning, provided that the applicant complies with conditions
as shown in Appendix B.
Urban Design Panel Comment The Urban Design Panel reviewed this
proposal on November 22, 1995 and supports the proposed use, density and
form of development.
ENVIRONMENTAL IMPLICATIONS
The proposed rezoning contributes to the objective of reducing
atmospheric pollution, as significantly greater tree retention is
achievable through the proposed development than could be expected with
development of one-family dwellings under the existing RS-1 zoning.
SOCIAL IMPLICATIONS
There are positive social implications to this proposal which constitute
a significant public benefit. Replacement of the Esther Irwin Home
would better accommodate treatment of children aged 6-12 with
behavioural problems.
CONSEQUENTIAL AMENDMENT
If the proposed amendment is approved at Public Hearing, an amendment
will need to be made to the Subdivision By-law, at the time of
enactment, to delete the category "B" standards which were established
in 1988 for this site.
COMMENTS OF THE APPLICANT
The applicant has been provided with a copy of this report and has
provided the comments attached as Appendix E.