POLICY REPORT DEVELOPMENT AND BUILDING Date: January 19, 1996 Dept. File No. 94064 JB/DT TO: Vancouver City Council FROM: Director of Land Use and Development SUBJECT: Proposed Rezoning of 1005 Beach Avenue RECOMMENDATION THAT the application by James K.M. Cheng Architects Inc. to rezone 1005 Beach Avenue (Lot B, Block 14, D.L. 185, Plan 12302) from RM- 5A Multiple Dwelling District to CD-1 Comprehensive Development District be referred to a Public Hearing, together with: (i) draft by-law provisions generally as contained in Appendix A; and (ii) the recommendation of the Director of Land Use and Development to approve the application, subject to conditions contained in Appendix B. FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law for consideration at the Public Hearing. GENERAL MANAGER'S COMMENTS The General Manager of Community Services RECOMMENDS approval of the foregoing. COUNCIL POLICY - On July 29, 1993, Council approved, in principle, that a total of 2 656.9 m› (28,600 sq. ft.) of residential tower floor area be added to the maximum potential development achievable through rezoning of one or more City-owned sites in Granville Slopes, including 1005 Beach Avenue, with the maximum density on the 1005 Beach Avenue site not to exceed 2.75 FSR; - On February 14, 1995, Council resolved to advise Real Estate staff to submit a rezoning application for 1005 Beach Avenue at a density not to exceed 2.90 FSR. Other Council-adopted policies and guidelines are also relevant: - Central Area Plan, adopted December 3, 1991; - Community Amenity Contributions Policy, adopted July 10, 1990, confirmed March 7, 1991; and - Public Art Policies and Guidelines, adopted June 23, 1994 and November 22, 1994. PURPOSE AND SUMMARY This report assesses a rezoning application to permit a 23-storey multiple dwelling by increasing the maximum permitted density from 2.20 floor space ratio (FSR) to 2.90 FSR, and increasing the maximum permitted height from 58.0 m (190.3 ft.) to 68.6 m (225.1 ft.). The City owns the subject site. Should the CD-1 rezoning be approved, the site will be offered for sale, allowing a private developer to proceed with a detailed development proposal. The primary public benefit to this rezoning is that the value of the additional density approved through rezoning would be used to offset the cost of the recently developed neighbourhood park located nearby in Granville Slopes. The rezoning proposal does not include a specific form of development. Rather, it includes building envelope and siting provisions that give a prospective developer some flexibility in designing a building, while providing sufficient guidance so that the building will achieve a good fit with the surrounding area. These provisions will be incorporated in the draft CD-1 By-law. Council will have an opportunity to review the form of develop-ment at the development application stage. The form of development must first be approved by Council prior to the issuance of a development permit. Under current RM-5A zoning, residential development is generally in a low-rise form. However, RM-5A also conditionally permits a high-rise form, albeit at a lower density (2.2 FSR) than is proposed here (2.9 FSR), if site conditions warrant. Based on the building form and site analysis, whether under existing zoning or the proposed CD-1 zoning, staff conclude that a well-sited slender tower is the best building form for the site. This analysis is outlined in Appendix C. The essential issues, discussed in the body of this report, pertain to whether or not the additional density and height are supportable over the density and height that could be approved under RM-5A or other West End residential zoning schedules. In considering these issues, staff reviewed the view and shadowing analyses supplied by the applicant. Staff believe the modest impacts on nearby developments resulting from the additional density and height are offset by the significant public benefit of resolving the park funding issue. Staff note that local residents have been generally supportive of the proposal, including those attending a public information meeting held in March, 1995. However, when the West End residential zoning was revised several years ago, there was a general understanding that the highest density approveable anywhere in the West End would be 2.75 FSR. In conclusion, staff recommend approval of the rezoning as submitted, subject to the conditions of rezoning approval noted in Appendix B. DISCUSSION Public Benefit: The proposed CD-1 rezoning, if approved, will enable the City to fully offset a funding shortfall associated with the new neighbourhood park located nearby in Granville Slopes. Building Form and Siting: The current RM-5A zoning permits a low-rise multiple dwelling at a maximum of 2.20 FSR, with 50% site coverage and minimal yard setbacks (refer to Appendix F). The RM-5A zoning also conditionally permits a high-rise multiple dwelling at 2.20 FSR, if site conditions warrant. In evaluating a high-rise form, the Director of Planning or Development Permit Board must consider a variety of factors, including the effects on public and private views, sunshine, privacy and open space, and concerns of surrounding residents. A similar site analysis was carried out for this rezoning. Staff conclude that a high-rise tower, set forward on the site, with a wide side yard to the west, and a reasonable distance from the Burrard Bridge, provides the best building form and siting for this unique site, and in all likelihood would be the form of development achieved under the existing RM-5A zoning. This analysis is outlined in Appendix C. Density: The proposed CD-1 zoning, at 2.90 FSR, would permit about 2 654 m› (28,000 sq. ft.) more floor area on this site than the maximum 2.20 FSR permitted under RM-5A, or five more floors in an equivalent tower. This is the extra amount of floor area needed to be achieved through the rezoning of one or more City-owned properties to offset the funding shortfall for the new Granville Slopes neighbourhood park. Staff carried out further analysis to determine if there is sufficient rationale to warrant the proposed 2.90 FSR. Several factors were considered: The site is uniquely located at the south-east corner of the RM-5A zoning district, right next to the Burrard Bridge. Prior to 1989, densities as high as 3.35 FSR were approved in residential parts of the West End. The subject site is located to the immediate east of the Martello Tower built at 3.35 FSR. Further to the west, along Beach Avenue, are more buildings that were approved at higher densities, creating a common high-rise tower built form context along this street. To the east of the site is the Granville Slopes neighbourhood where densities range from 3.00 to 6.00 FSR. To the immediate north are two low-rise developments built at 2.2 FSR (see schematic in Appendix E). Further to the north is a CD-1 tower development at about 6.00 FSR and a permitted CD-1 tower development at 6.50 FSR. T h e U r b a n Design Panel recommended the proposed density be increased to 3.00-3.10 FSR, given the site s high-rise built form context. On the basis of the existing and permitted building densities surrounding the site, staff feel the proposed density of 2.90 FSR is generally supportable. Staff are nevertheless cautious about recommending densities above 2.75 FSR anywhere in the West End. When the West End zoning was revised, there was a general understanding that while densities would vary throughout the community, 2.75 FSR would be the benchmark beyond which development would not be approved. Should Council decide to refer this application to Public Hearing, public delegations will help determine if there is any (as yet unheard from) community concern about this issue. Height: RM-5A and other West End residential district schedules conditionally permit a maximum height of 58.0 m (190.3 ft.). The proposed rezoning would permit 68.6 m (225.1 ft.), representing an additional 10.6 m (34.8 ft.). Height is also a function of the amount of density sought and the size of the building s floorplate. Based on the proposed gross floorplate of 511.0 m› (5,500 sq. ft.), by varying the densities, the applicant indicates the following heights will result: RM-5A zoning @ 2.20 FSR - 18 storeys or 50.3 m (165.0 ft.) RM-5B zoning @ 2.75 FSR - 21 storeys or 57.9 m (190.0 ft.) (highest FSR currently permitted in the West End) CD-1 zoning @ 2.90 FSR - 23 storeys or 68.6 m (225.1 ft.) (proposed) There are several factors that lend support for a 23 storey development at 2.90 FSR on the site: Prior to 1989, residential towers as high as 91.4 m (300 ft.) were permitted in the West End. The adjacent 31 storey Martello Tower, for example, is 22.2 m (73 ft.) higher, at 90.8 m (298 ft.), than the proposed 23 storey building. CD-1 By-laws for nearby sites to the east at 888 and 901 Beach Avenue permit similarly high towers, at 88.3 m (290 ft.) and 68.6 m (225 ft.) respectively. Given the existing and permitted towers in the immediate vicinity of the Burrard Bridge, a building next to the head of the bridge needs to be at least 23 storeys high to provide the stature and presence to successfully act as a gateway built form. T h e site is not affected by any Council- adopted view cones. However, before reaching a conclusion on whether or not a 23-storey tower at 2.90 FSR should be supported, staff considered view and shadow impacts resulting from the tower development. The applicant provided view and shadow analyses based on towers at 2.20, 2.75 and 2.90 FSR. Staff note that: Resident views from low-rise buildings and lower floors of high- rise towers will not be affected by the additional five storeys. Residents in the upper floors of Martello Tower and other towers on Burrard Street, or to the east of the Burrard Bridge will experience some partial view loss. The amount of loss is related to how far the affected building is away from the site, and the extent to which the site is developed beyond 18 storeys and 2.20 FSR. Some residents in the Martello Tower will experience some morning shadow from a high-rise tower form at all three densities examined. At the equinox, some residents in the seven-storey development at 1040 Pacific Street, to the north, will experience a mid-day shadow moving across the rear of the building during a two-hour period from a tower at 2.90 FSR, a shadow just touching the building from a tower at 2.75 FSR, and no shadow from a tower at 2.20 FSR. Assessing the significance of these impacts is difficult, as there is no clear cut measure of when they become unacceptable. However, While there is some partial view loss and overshadowing resulting from an increase in height by raising the density from 2.20 to 2.90 FSR (and marginal differences from 2.75 to 2.9 FSR), staff feel the application is supportable due to the site s prevailing high-rise tower context and the significant public benefit of offsetting the public cost of the recently developed neighbourhood park two blocks to the east. This proposal is similar to other CD-1 rezonings in which the provision of a significant public benefit forms part of the rationale for approval. It should be noted that if the density is limited to 2.75 FSR, then the residual funding shortfall for the park would have to be made up by adding additional density of about 569 m› (6,122 sq. ft.) through the rezoning of another City-owned site(s) in the Granville Slopes neighbourhood. CONCLUSION Planning staff support the proposed rezoning of 1005 Beach Avenue from RM-5A to CD-1 to accommodate a high-rise multiple dwelling at 2.90 FSR, and recommend that the application be referred to a Public Hearing subject to conditions of approval presented in Appendix B. * * * APPENDIX A Page 1 of 1 OUTLINE OF DRAFT CD-1 BY-LAW PROVISIONS 1005 Beach Avenue Uses: Multiple Dwelling; and Accessory Uses customarily ancillary to the above uses. Density: Maximum FSR of 2.90 Maximum Tower Floorplate: 511.0 m› (5,500 sq. ft.) Maximum Height: 68.6 m (225.1 ft.) Setbacks: Front Yard - 7.6 m Rear Yard - 22.4 m Side Yard - westerly - 27.1 m (average) - easterly - 13.7 m Parking: As per RM-5A standard cited in the Parking By-law Loading: Minimum of one loading space Acoustics: As per RM-5A acoustical standards APPENDIX B Page 1 of 1 PROPOSED CONDITIONS OF APPROVAL (a) THAT, prior to enactment of the CD-1 By-law, the registered owner shall, at no cost to the City: (i) make suitable arrangements, to the satisfaction of Engineering Services, for any new electrical and telephone services to be undergrounded within and adjacent to the site from the closest, existing suitable service point; (ii) make suitable arrangements, to the satisfaction of Engineering Services, for the future provision of garbage and recycling facilities in the proposed development; (iii) execute an agreement, to the satisfaction of the Director of Legal Services, to not discriminate against families with children in the sale of residential units; (iv) make suitable arrangements, to the satisfaction of the Director of Planning, to ensure the retention of existing on-site mature trees, wherever reasonably possible, including appropriate protection measures to be done at the time of site re-development; and (v) make suitable arrangements, to the satisfaction of the Social Planning Department, for the relocation of the existing day care spaces to an appropriate site in the West End. APPENDIX C Page 1 of 4 SITE, SURROUNDING DEVELOPMENT, PROPOSED DEVELOPMENT AND NON-MAJOR ELEMENTS SITE This 0.4 ha (0.9 ac.) irregularly shaped site comprises a single parcel located on the north side of Beach Avenue immediately west of the Burrard Bridge. The site slopes down about 7.8 m (25.6 ft.) from north to south, with a steep berm adjacent to Beach Avenue. Some mature trees and shrubs exist within and around the edges of the site. North of the site, secondary access is available from the existing lane. The site currently accommodates two temporary, one-storey, child day care buildings which the City leases to the YMCA on a yearly basis. Arrangements are underway to relocate the child day care spaces to a vacant City-owned property near Nelson Park. SURROUNDING DEVELOPMENT The site is located at the southeast corner of an RM-5A Multiple Dwelling District. Immediately to the west is a 31-storey residential rental building. Beyond are similar high-rise point towers characterized with large entrance ways and ground level open spaces to maximize views to the water from apartment units to the north. To the south, across Beach Avenue, is the Vancouver Aquatic Centre, behind which is a paved seawall walkway providing linkages to Science World and Stanley Park. To the north, across the lane, are two, seven-storey, multiple dwellings. Immediately to the east is a vacant City-owned parcel which provides public pedestrian access between Pacific Street and Beach Avenue, as well as maintenance access to the Burrard Bridge. To the east of the bridge is the new Granville Slopes neighbourhood, undergoing various forms of higher density redeve-lopment including high-rise towers. PROPOSED DEVELOPMENT Typically, CD-1 rezonings propose a specific form of development for a given site. However, because the City intends to market the site, a specific form of development is not being proposed at this time. Rather, the applicant has proposed a maximum building envelope as reflected in the draft CD-1 By-law. This envelope includes maximum height, required setbacks, maximum density and tower floorplate area. APPENDIX C Page 2 of 4 The applicant has undertaken several massing and built form options at varying densities to determine the optimum building envelope parameters for this site, resulting in the proposed envelope that would permit a point tower at 2.90 FSR. The proposed building envelope safeguards the building's locational aspects while enabling a prospective purchaser to custom design a slim, sculpted tower which takes advantage of water views, while maintaining partial views of the water for residents of buildings to the north of the site. The building will also provide a significant focal point to the downtown given that the site is adjacent to the head of the Burrard Bridge. If the rezoning is approved, the site will be marketed and a specific tower design will be negotiated and established through the development permit process. Processing of this development application will be subject to the normal design review and public processes, and the form of development will need Council approval. NON-MAJOR ELEMENTS Use: Staff support the proposed multiple dwelling use which is in accordance with the goals and objectives of the Central Area Plan to provide additional housing opportunities in close proximity to shopping, public transit and community facilities. Building Form and Siting: There is no specific form of development for this CD-1 rezoning. However, the proposed building envelope, adjusted from that originally proposed following discussions with the public, the Urban Design Panel and staff, specifies maximum density, height and minimum setbacks. The resulting building form is a narrow point tower, optimally located on the site. Some view loss and shadowing is anticipated with this or virtually any development of the site. However, staff conclude that a slim, carefully located tower would result in less view loss and shadowing than a low and wide building that could be built under the current RM-5A zoning. The proposed building form and siting is therefore supported for the following reasons: The proposed tower form will present a slender profile to the street, which will achieve a more compatible fit with neighbouring properties along Beach Avenue than if the site was developed with a wide, low-rise form under the existing RM-5A zoning. Viewed from Vanier Park and the water, the proposed tower will fit with the predominant built-form character along Beach Avenue, both east and west of the Burrard Bridge. APPENDIX C Page 3 of 4 The floorplate is relatively small, being equal to or smaller than recent projects in the Concord Pacific development and the Granville Slopes neighbourhood. The proposed building is located towards the southeast portion of the site so as to maximize useable on-site open space, open up the views to the water from apartment units to the north and allow a visual extension from Beach Avenue onto the site. The low site coverage of about 17.4 percent, compared to the 50 percent achievable under the RM-5A zoning, results in substantial open space which can be visually shared by residents of adjacent buildings. The setbacks proposed are generous and include a westerly setback averaging 25.9 m (85 ft.), and a rear setback of 22.4 m (74 ft.) that maintains a distance of about 38.4 m (126 ft.) from the building at 1040 Pacific Street. The front yard setback aligns with the Martello Tower to the west. Both the Urban Design Panel and local residents at the applicant's public information meeting in March, 1995 preferred a tall, slim tower with a small floorplate in this location. Tower separation of about 40.5 m (133 ft.) is maintained between the proposed building and the Martello Tower immediately to the west in order to maintain privacy, maximize view retention opportunities through the site and create a balanced built form with the surrounding neighbourhood. This separation, partly as a result of the very large site size, improves upon the more typical minimum 24.4 m (80 ft.) separation between high-rise residential buildings. The proposed tower would maintain partial westerly views from the Burrard Bridge deck, whereas a typical 6- to 7-storey building built under RM-5A zoning would block all low-level views. The building footprint is 20.1 m (66 ft.) away from the Burrard Bridge deck, equivalent to a typical street width, so as not to interfere with future bridge improvements. While this footprint is perhaps closer than ideal, it is considered an acceptable balance between maintaining the visual and formal integrity of the bridge and the private views through the site enjoyed by residents to the north. Furthermore, this separation is much greater than that provided by an existing 8-storey development immediately to APPENDIX C Page 4 of 4 the east of the bridge. That development provides 6.1 m (20 ft.) separation at and below the bridge deck, and 14.0 m (46 ft.) above the bridge deck. The proposed tower would complement the important role and stature of Burrard Street in the downtown peninsula, reflected by several substantial existing or permitted residential towers on the west side of Burrard Street between Davie and Pacific Streets, and continued further north with development such as Wall Centre. The proposed tower would act as a gateway both to and from the downtown. Viewed from the south, it would emphasise the beginning of the high-rise form noted above. Viewed from the north, it would identify the culmination of leaving the downtown peninsula and gaining access to the bridge. As well, the tower would provide a built form pivot between the bridge axis and the Burrard Street axis. Parking and Loading: The proposed development will provide bicycle parking and parking and loading spaces in accordance with Parking By-law standards. The building form will include two levels of underground parking. Landscape Resources: The proposed development will be required to provide landscaping, trees and plant material around the perimeter of the site to provide both a noise and privacy barrier for the residents. There are several significant trees on the site which the developer will be encouraged to retain. A detailed landscape plan will be a requirement of a development application. Daycare Facility Relocation: Arrangements are underway to ensure that the existing child day care spaces presently on the site are relocated to another City-owned property in the Nelson Park area. Satisfactory arrangements for the relocation is a recommended condition to be met prior to enactment of the CD-1 By-law. PUBLIC CONTRIBUTIONS Community Amenity Contribution: A community amenity contribution (CAC) is not required for this CD-1 rezoning because the policy is not applicable to rezoning applications for City-owned lands. However, a similar objective is achieved through this rezoning, since the value of the extra density proposed for the site is intended to offset the cost of a nearby park. Public Art Contribution: A public art contribution is not required for this CD-1 rezoning proposal because the total floor area proposed is less than the required minimum floor area of 15 000 m› (161,463 sq. ft.) subject to such a contribution. APPENDIX D Page 1 of 3 COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES AND THE APPLICANT NOTIFICATION Signs erected on site: February 27, 1995 1,140 early notification letters mailed: January 6, 1995 PUBLIC COMMENTS During the processing of this application, staff received about 13 telephone enquiries and 2 letters, all in opposition to the rezoning proposal. The main concerns expressed include private view loss, loss of sunlight, whether an additional tower is needed in the West End, a possible decrease in property values and the loss of a child day care facility. Two people also came to City Hall to view the plans and model. On March 13, 1995 the applicant held a public information meeting at the False Creek Yacht Club, to which about 25 persons attended. Some of the same concerns were expressed, however most people who attended the meeting indicated general support for the proposed rezoning. REVIEWING AGENCY COMMENTS Department of Permits and Licenses: The Environmental Protection Branch advises that an assessment for soil contamination is not required. Health Department: The Health Department has reviewed this rezoning application and provides the following comments: "The City's acoustical criteria shall form part of the Zoning By-law, and an Acoustical Consultant's report* shall be required which assesses noise impacts on the site and recommends noise mitigating measures." *[Note: The report will be submitted at the development application stage.] Engineering Services: "Engineering Services has no objection to the proposed rezoning, providing the following concerns are addressed prior to By-law enactment: APPENDIX D Page 2 of 3 1. Bicycleparkingto beprovidedasperexisting Councilapprovedguidelines. 2. Provision is to be made for one loading bay. 3. Parking is to be provided as per RM-5A standards. 4. All electrical and telephone services to be undergrounded within and adjacent the site from the closest, existing, suitable service point. 5. Garbage and recycling facilities to the satisfaction of Engineering Services." Police Department: The Police Department has reviewed this rezoning application and offers the following comments: "Entrances/Exits: The door between the parkade and the lower lobby should be secured to get into the parkade. Stairwells: Exit stairs from underground parking require further design development to increase surveillance from the tower. Grade change may aid in increasing natural/informal surveillance opportunities by simply rotating the stairwell around. This serves to make the area more observable, but also places an additional access point closer to the main structure thus allowing a greater opportunity to create a sense of territoriality versus exiting to a large piece of asphalt/concrete. Stairwell on exterior wall in upper/lobby appears opposite. Is there glazing on the exterior wall side to permit natural light and surveillance into the area? Parking Area/ Refuse/Storage: Sightlines into bike storage area from lower lobby and parkade." [Note: These elements will be considered at the development application stage.] APPENDIX D Page 3 of 3 URBAN DESIGN PANEL On March 15, 1995, the Urban Design Panel reviewed the proposed rezoning and offered the following comments: "The Panel supported the proposed use, form of development and density. The applicant was commended on a very thorough urban design analysis. With respect to the form, the Panel expressed support for even greater height than proposed, preferring to see a taller, slimmer tower in this location. One suggestion was to lower the floor plate size by reducing the width of the north elevation from 84 ft. to 70 ft., and adding five additional floors to the tower. A correspondingly higher density was also endorsed by the Panel, possibly to something in the region of 3.0 to 3.1 FSR. There was general support expressed for the 'tower in the park' concept, but there were concerns raised about the proximity of the tower to the Burrard Bridge. The Panel felt the applicant had gone too far to accommodate the neighbours to the north, and suggested the tower should be moved farther away from the bridge and back off Beach Avenue, more in line with the overall mass of the neighbouring Martello Tower. One Panel member was concerned that encroaching too close to the bridgehead may compromise its heritage significance. Given there is a significant amount of open space at the base of the building, one Panel member recommended incorporating some kind of public use into this space." APPLICANT'S COMMENTS The applicant reviewed a copy of this report and provides the following comments: "James K.M. Cheng Architects Inc. concur with the contents of this report." APPENDIX E Page 1 of 1 SCHEMATIC OF SITE CONTEXT APPENDIX F Page 1 of 1 APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION APPLICANT AND PROPERTY INFORMATION Street Address 1005 Beach Avenue Legal Description Lot B, Block 14, D.L. 185, Plan 12302 Applicant James K.M. Cheng Architects Inc. Property Owner City of Vancouver SITE STATISTICS GROSS DEDICATIONS NET SITE AREA 3 791.5 m› (40,812.7 sq. ft.) N/A 3 791.5 m› (40,812.7 sq.ft.) DEVELOPMENT STATISTICS RECOMMENDED DEVELOPMENT PERMITTED UNDER DEVELOPMENT EXISTING ZONING PROPOSED DEVELOPMENT (if different than proposed) ZONING RM-5A CD-1 USES Cultural & Recreational Uses Multiple Dwelling Dwelling Uses Accessory Uses Institutional Uses Office Uses Retail Uses Service Uses Utility & Communication Uses Accessory Uses DWELLING UNITS N/A N/A MAX. FLOOR SPACE RATIO 2.2 2.9 GROSS FLOOR AREA 8 341.3 m› 10 995.4 m› (89,787.9 sq.ft.) (118,357.4 sq.ft.) MAX. SITE COVERAGE 50% 17.4% MAXIMUM HEIGHT 58 m (190.3 ft.) 68.6 m (225.1 ft.) MAX. NO. OF STOREYS N/A 23 PARKING SPACES As per Parking By-law As per Parking By-law FRONT YARD SETBACK 3.7 m (12.1 ft.) 7.6 m (24.9 ft.) SIDE YARD SETBACK 2.1 m (6.9 ft.) Westerly - 25.9 m (85.0 ft. average) Easterly - 13.7 m (44.9 ft.) REAR YARD SETBACK 2.1 m (6.9 ft.) 22.4 m (73.5 ft.)