P1
POLICY REPORT
DEVELOPMENT AND BUILDING
Date: April 1, 1996
Dept. File No. 95030 RW
TO: Vancouver City Council
FROM: Director of Land Use and Development
SUBJECT: Proposed Rezoning of 5104-56 Joyce Street
RECOMMENDATION
THAT the application by Greystone Properties Ltd. to rezone 5104-56
Joyce Street (Lots A, R, 5 and 6, Block 158, D.L. 37, Plans 2750,
20906, LMP 24057) from C-2C Commercial District to CD-1
Comprehensive Development District be referred to a Public Hearing,
together with:
i) revised plans received January 25, 1996;
ii) draft by-law provisions generally as contained in Appendix A;
and
iii) the recommendation of the Director of Land Use and Development
to approve the application, subject to conditions of approval
contained in Appendix B.
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-laws for consideration at the Public
Hearing, including a consequential amendment to the Sign By-law to
establish sign regulations for this CD-1 in accordance with
Schedule B (C-2C).
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of
the foregoing.
COUNCIL POLICY
Relevant Council policies for the site include:
- Joyce Station Area Plan, approved by City Council on May 20, 1987;
and
- CD-1 By-law No. 7204 and Joyce/Vanness Guidelines for the adjoining
Collingwood Village development.PURPOSE AND SUMMARY
This report assesses a CD-1 rezoning application for a site situated on
the westerly boundary of the Collingwood Village development, adjacent
to the Joyce Street SkyTrain station. Proposed is a 16-storey
residential tower above a commercial podium which includes space for the
Joyce Street Community Crime Prevention Office. The proposed floor
space ratio and height cannot be accommodated under the existing C-2C
Commercial zoning. A more detailed description of the site
circumstances is outlined in Appendix C.
Analysis of the application by Planning and Real Estate Services
indicates that the proposal is marginally feasible from a market
perspective, and that the resultant development maintains a scale
consistent with the adjoining Collingwood Village. Staff recommend that
the application be referred to Public Hearing.
MAP
DISCUSSION
Crime Prevention Office: The Joyce Community Crime Prevention Office is
presently located in an existing storefront on the property, and is
operated and staffed by a non-profit society with a substantial
community base. The proposal is to provide ground-level space in the
new development for the continuation of this office. The Crime
Prevention Office is expected to be sustainable in the long term, in
part because of:
- the proposed endowment fund ($35,000 rezoning condition) for
ongoing operations;
- the interest of and partnership with the Vancouver Police
Department, who utilize the office for report writing, and
impromptu and formal meetings with individuals and groups from the
community; and
- the strong community support for the office and its service to the
local area.
No contingency strategy for alternate community use of this proposed
City-owned space is therefore recommended at this time. Should the
question of alternate use of the space arise in the future, City
departments will need to work with the community to identify appropriate
uses and a report to Council may be needed before any decision is made.
Density and Height: While both density and height are considerably
higher than would normally be considered appropriate for a C-2C
neighbourhood shopping district such as this, the massing concept is
compatible with this unique context. The four storey commercial podium
relates well to what will likely occur on immediately adjoining parcels
on Joyce Street under the existing C-2C zoning (one of which is also
owned by the applicant), while the residential tower fits with the
heights of towers in the Collingwood Village to the east. The
additional density and height proposed are a direct bonus for the
provision of the crime prevention office and would not be seen as a
precedent for similar proposals on other C-2C sites in the area.
Height and Views: The rezoning will represent a significant change to
the development pattern which could occur under the existing C-2C
zoning, which effectively limits height to 10.7 m (35 ft.). The
proposed 16-storey and 47.9 m (157 ft.) height will limit some views
toward the Downtown for residents in adjoining residential towers within
the Collingwood Village development. Staff have spoken with one
resident and have received a letter with 36 listed names, both
expressing opposition to the proposal because of view blockage.Form of
Development: The Urban Design Panel reviewed this application on two
occasions, on October 25, 1995 and on January 31, 1996 (after revisions
were made). The residential tower was moved to the north end of the
site, allowing for creation of a significant roof amenity area over the
commercial podium and greater identity for the entrance. The commercial
podium relates better both to the street and adjoining future
development. In general, the Panel felt the project had progressed
sufficiently to warrant support.
The Urban Design Panel still has concerns with respect to the
residential tower (see Appendix D for detailed Panel comments):
- towers in the Collingwood Village (and this project) appear
overbearing because of the uniformity of floorplates; and
- an increase in height from 16 to 20 storeys, combined with a
smaller floorplate, could reduce this effect and improve the
building's relationship to the street.
Staff share the concern of the Urban Design Panel regarding tower
appearance in the area. Additional height does not have community
support and staff would be reluctant to pursue such an idea without an
overall review of the Collingwood Village zoning and guidelines. Staff
therefore do not support additional height, but recommend that
modifications to the tower's appearance be made at the development
application stage. Changes could include the minor variation of
building elements and materials to produce a greater vertical emphasis
to the tower.
Financial Evaluation of the Density Bonus: The Real Estate Division has
reviewed the economic viability of the proposal and states that the
proposed development is marginally feasible under current market
conditions. Staff recommend conditions of the rezoning approval related
to securing of the space for the crime prevention office (see Condition
[C], Appendix B).
CONCLUSION
Planning staff support the proposed rezoning of 5104-56 Joyce Street
from C-2C to CD-1 for a high-density mixed-use development, including
provision for a City-owned 139.4 m› (1,500 sq. ft.) Community Crime
Prevention Office. It is recommended that the application be referred
to a Public Hearing, subject to the proposed conditions of approval
presented in Appendix B.
* * *
Appendix A
Page 1 of 1
OUTLINE OF DRAFT CD-1 BY-LAW PROVISIONS
_______________________________________
Use
- Dwelling Units;
- Cultural and Recreational Uses, except for Arcade and
Billiard Hall;
- Institutional uses, except for Detoxification Centre
and Hospital;
- Office Uses;
- Retail Uses, except for Adult Retail Store, Gasoline
Station - Full Service or Gasoline Station - Split
island and Vehicle Dealer;
- Service Uses, except for Cabaret, Drive-through
Service, Funeral Home, Motor Vehicle Repair Shop and
Motor Vehicle Wash; and
- Accessory Uses customarily ancillary to the above uses.
Density
- Maximum floor space ratio of 5.6.
Maximum Height
- 47.9 m (157 ft.)
Parking
- As required in the Parking By-law, except that
residential parking is to be provided at a minimum of
one space per dwelling unit plus one space for each 200
m› of gross floor area.
Loading
- As required in the Parking By-law, except that one
additional loading bay is required for each 200
dwelling units.
Bicycle
- Bicycle parking is to be provided as required in the
Parking By-law. APPENDIX B
Page 1 of 2
PROPOSED CONDITIONS OF APPROVAL
________________________________
(a) That the proposed form of development be approved by Council in
principle, generally as prepared by Musson Cattell Mackey
Partnership and stamped "Received City Planning Department,
January 25, 1996", 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) further design development to the tower to provide for a
slimmer appearance, such design review not to include any
consideration of additional height;
(ii) design details to incorporate crime prevention through
environmental design (CPTED) principles (refer to Appendix
D - Police Department comments);
(iii) provision of recycling/garbage facilities to the
satisfaction of Engineering Services;
(iv) submission of a detailed landscape plan;
(v) provision of street trees to the satisfaction of the
Vancouver Park Board and the General Manager of
Engineering Services; and
(vi) submission of an acoustical consultant's report assessing
noise impacts on the site and recommending noise
mitigation measures to achieve noise criteria.
(c) That, prior to enactment of the CD-1 By-law, the registered
owner shall, at no cost to the City:
(i) execute agreements to the satisfaction of the Director of
Legal Services pertaining to the proposed Crime Prevention
Office as follows:
APPENDIX B
Page 2 of 2
- Greystone will turn over to the City free of charge the
designated grade-level retail unit situated on Joyce
Avenue, near Vanness (with a minimum floor area of 139.35
m
2 (1,500 sq. ft.) as noted on drawings dated January 25,
1996, together with three parking stalls, with legal title
satisfactory to the Director of Legal Services;
- Greystone will install improvements of not less than $25
per sq. ft. (1995 dollar) of construction cost; details of
the improvements to be worked out later;
- Greystone will pay to the City a cash sum of $35,000 (1995
dollar) to be used towards the operation of the Crime
Prevention Office;
- Greystone will reimburse the City any GST cost incurred in
the above transactions; and
- the above-mentioned amounts should be indexed to
inflation.
(ii) 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;
(iii) consolidate the site; and
(iv) make suitable arrangements, to the satisfaction of the
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.
APPENDIX C
Page 1 of 2
SITE , SURROUNDING DEVELOPMENT, PROPOSED DEVELOPMENT
AND NON-MAJOR ELEMENTS
Site
This 0.20 ha (0.5 ac.) site comprises four parcels of land at the
southeast corner of Vanness Avenue and Joyce Street. The northerly
three parcels are vacant, with the remaining parcel accommodating a two-
storey building, which provides a temporary storefront for the Joyce
Community Crime Prevention Office. The site slopes about 1.5 to 2.1 m
(5 to 7 ft.) from north to south. Secondary access is available from
the existing lane. No trees exist on the site or within the sidewalk
allowance.
The site was rezoned from C-1 to C-2C as part of the original Joyce
Station Area Plan in June, 1988. Greystone Properties, formerly the
Vancouver Land Corporation (VLC), had originally included the site as
part of their planning for Collingwood Village, but deleted the site
because it was not under their control (either owned or optioned).
Greystone has subsequently managed to purchase the site.
Surrounding Development
To the north of the site is the Joyce Street Skytrain Station and
elevated guideway. Immediately to the south are two, low-scale
commercial buildings, which occupy the remainder of the block between
Vanness Avenue and Crowley Drive. Further south along Joyce Street is a
newer 20-storey residential rental building with a small amount of
retail use at grade, and the new Collingwood Village Neighbourhood
House, gymnasium and child day care facility. To the east, across the
existing lane, is the Phase I enclave of Collingwood Village, consisting
of a mix of low-rise (4 to 6-storeys) and three high-rise (20 storeys)
residential developments. To the west, across Joyce Street, are one-
and two-storey commercial buildings, the recently constructed St. Mary's
Roman Catholic Church and the 11-storey Columbus Tower apartment
building. Three high-rise buildings of 12-, 13- and 14-storeys have
been recently developed west of Joyce Street, immediately north and
south of the Skytrain Station.
APPENDIX C
Page 2 of 2
Proposed Development
The proposed 16-storey development consists of:
- 685.4 m› (7,378 sq. ft.) of ground floor retail use and 139.4 m›
(1,500 sq. ft.) of ground floor area for the Joyce Community
Crime Prevention Office;
- 2 723.5 m› (29,316 sq. ft.) of office use on the second, third
and fourth floors; and
- 114 dwelling units on the first to sixteenth floors.
The residential units comprise studio, one-bedroom, one-bedroom and den,
two-bedroom units and a single three-bedroom unit. On-site amenities
include a 74.3 m› (800 sq. ft.) amenity room at grade with direct access
to a semi-private landscaped open area, together with semi-private roof
deck areas at the fourth floor level. Pedestrian access to the retail
and office uses is from Joyce Street, while access to the residential
tower is from Vanness Street. Vehicular access to three and one-half
levels of underground parking is from the existing lane (See Plans -
Appendix E; Statistics - Appendix F).
Non-Major Elements
Use: The Joyce Station Area Plan called for zoning of this site to
provide for a mix of retail, office and residential use. The proposal
is consistent with that intent.
Parking and Loading: The proposed development will provide motor
vehicle parking and loading spaces, and bicycle space, in accordance
with Parking By-law standards.
Trees and Landscaping: Street trees are proposed within the existing
sidewalk allowance along Joyce Street and Vanness Avenue, subject to
Park Board and Engineering approvals. Additional plant materials are
proposed for the development's semi-private garden and roof deck areas.
Staff recommend a detailed landscape plan as a condition of development
application approval [see condition (b)(v) of Appendix B].
Social and Environmental Implications
With the exception of the positive benefits of a permanent space for the
Joyce Community Crime Prevention Office, there are no major positive or
negative social or environmental implications to this proposal. There
are no implications with respect to the Vancouver Children's Policy or
Statement of Children's Entitlements. APPENDIX D
Page 1 of 6
COMMENTS OF REVIEWING AGENCIES
Notification
Signs erected on site: October 6, 1995
699 early notification October 13, 1995
letters mailed out:
Public Comments
Greystone has worked closely with residents of the Joyce Station area,
and the inclusion of space for the crime prevention office has long been
supported by the community.
During the processing of this application, staff received two telephone
calls (one in favour/one not in favour) and a counter enquiry from one
individual expressing concern about private view loss from a nearby
high-rise residential development. In addition, staff received a letter
with 36 names listed (without signatures or addresses) expressing
opposition to the proposal and concerns about the number of existing low
and highrise towers in the community, as well as those planned to be
constructed in the larger Collingwood Village development.
On November 2, 1995 the applicant held a public information meeting,
which about 40 persons attended. Most individuals expressed strong
support for the proposed rezoning and the need for the Joyce Community
Crime Prevention Office to be located in this particular development.
Some concerns were expressed about parking and traffic circulation in
the immediate vicinity of the site.
Reviewing Agency Comments
Engineering Services: "Engineering Services has no objection to the
proposed rezoning provided the following concerns are addressed prior to
by-law enactment:
1. Consolidation of Lot R, Plan 20906, Lot "A", Plan LMP 24057, Lot
5, Except Part in Explanatory Plan 13036 and Lot 6, Except Part
in Plan LMP 19693, All of Block 158, District Lot 37, Group One,
New Westminster District.
2. Parking is to be provided at a minimum of one space per unit
plus one space for each 200 m› of gross floor area.
3. Commercial loading is to be provided as per the Parking By-law;
and one additional loading bay is required for each 200 dwelling
units.
APPENDIX D
Page 2 of 6
Note: the current proposal is deficient in both commercial and
residential loading bays.
4. Bicycle parking is to be provided as per the Parking By-law.
5. Provision of a separated loading access from the parking access.
Note: the parking numbers are too high to permit trucks backing
through the parking access to the loading docks.
6. Undergrounding of all utilities from the closest existing
suitable pole.
7. Provision of street trees to the satisfaction of the Vancouver
Park Board and the General Manager of Engineering Services."
Department of Permits and Licenses: The Environmental Protection Branch
advises that an assessment for soil contamination is not required.
Vancouver Health Board: The Director of Environmental Health has
reviewed this rezoning application and provides the following comments:
"1. 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.
2. The Noise Control By-law requires amendment at time of enactment
of Zoning By-law to include this CD-1 or new zoning district in
Schedule B."
Police Department: The Police Department has reviewed this rezoning
application and provides the following comments:
"The revised submission is significantly improved and has addressed many
of the issues identified in the earlier CPTED review. The design
showing separation of the commercial and residential is considered to be
positive. Further improvements required include:
- Design development to delete door from commercial to residential
lobby on ground floor.
APPENDIX D
Page 3 of 6
- Provide clarification of stair located at the lane loading area.
Note to Applicant: An open exit stair is this location will be
vulnerable to mischief, create fear and will provide non-
legitimate access to underground parking.
- Design development to reduce opportunities for break and enter.
Note to Applicant: The ground level units facing this well
travelled lane will be vulnerable to break-in and entry.
Additional target hardening such as security systems, small
paned windows, fully secured doors (preferably not sliding
doors) should be considered for these units. Design of outdoor
areas adjacent to these units should reduce areas of
concealment."
Urban Design Panel
On January 31, 1995, the Urban Design Panel reviewed the proposed
rezoning and offered the following comments:
"Evaluation: Support (8-2)
- Introduction: The Rezoning Planner, Rob Whitlock, presented
this rezoning application, describing the proposal and its
immediate context. The proposal was not supported by the Panel
when it was reviewed in October 1995. Mr. Whitlock reviewed the
concerns raised previously by the Panel. He noted the project
has seen considerable improvement since that time, and described
the current scheme. In addition to overall comments on the
revised scheme, the Panel's advice is sought on the residential
entrance treatment, the Joyce Street elevation, and whether the
revised scheme is now successful as a gateway to Collingwood
Village.
- Applicant's Opening Comments: Brian McCauley explained that
Greystone has now purchased the last lot on the block, and
negotiations are continuing with the owners of the centre lot.
If Greystone succeeds in acquiring both lots it would be their
intention to proceed with an application under the existing C-2C
zoning which permits retail at grade with two floors of office
above, at 2.0. FSR. Combined with the subject proposal, this
would bring the overall FSR for the block to about 4.4 FSR. He
noted they have been working with the Joyce Station Area
Planning Committee which supports the revised scheme as well as
the relocation of the Crime Prevention Office from Vanness
Avenue to Joyce Street. At grade amenity space has been
introduced at the sixth floor which opens onto a landscaped
podium.
APPENDIX D
Page 4 of 6
Mark Whitehead, Architect, explained the design rationale, and
Randall Sharp, landscape Architect, described the landscape
plan.
- Panel's Comments: After reviewing the model and posted
drawings, the Panel commented as follows:
The Panel supported this rezoning application. It was noted
there has been significant response to concerns raised with the
earlier submission, and a major attempt has been made to re-
think the project.
The Panel supported the improved landscape plan, particularly
the raised terrace on the lane side. There may be an
opportunity to space the trees closer together on the south
portion of the retail component. The rooftop would be more
useful if some kind of overhead structure is introduced.
Provision of a small, defensible space for children's play was
also recommended.
Better definition of the uses is needed. The delineation
between residential and commercial is ambiguous. The entrances
are confusing, and the concrete arch over the residential
entrance should be reconsidered.
The Panel recognized that this is a key site in the entire
project, and agreed it needs a response that is distinct from
the towers that have been built to date. Concern was expresses
that the proposal is still not responding appropriately. The
economic realities of this project are acknowledged. However,
the Panel felt there should be serious investigation of a
massing alternative that is somewhat higher and slimmer, with a
smaller floorplate. There was major concern expressed about the
sameness of the floorplates in all the Collingwood Village
towers seen to date, to the extent that they appear overbearing.
It was strongly suggested that the guidelines allow for a
taller, narrower diagram. An increase in height up to 20
storeys, with a smaller floorplate, was considered appropriate,
subject to input from the neighbourhood. The way the building
relates to the street will be very important to creating a sense
of community, and a smaller floorplate would help in this
regard.
- Applicant's Response: Mr. McCauley noted they struggled with
the issue of the size of the floorplate vs. the height of the
tower. To a certain point they are bound by the height limit
established by the Collingwood rezoning, and indications are
that there would be a strong neighbourhood resistance to this
b u i l d i n g g o i n g t o
APPENDIX D
Page 5 of 6
20 storeys. Present floorplate size is approximately 6,400 sq.
ft. and it is not economically viable to reduce further and
achieve the goal of affordability. He added, they are prepared
to work with Planning and the community to make improvements to
the massing, including the addition of another one, two or three
storeys. Mr. McCauley noted that they, too, struggled with the
notion of "gateway" for this building, and recognized more work
is needed to acknowledge the importance of this site. With
respect to the streetscape, they will also be working to make it
a more people friendly place."
Applicant's Comments
Greystone Properties have had the opportunity to review the policy
report for the above noted project dated April 1, 1996 and are in
general agreement with staff's comments and findings. There are however
the following items which Greystone would like Council's consideration
of at the time of referral or Public Hearing.
1. Unit Count Greystone seeks some flexibility in the number of
proposed residential units in order to respond to the changing
demands of the market place. Therefore without altering the
overall gross building area we request that up to a maximum of
150 of units may be permitted. This affords Greystone the
opportunity to seriously consider providing rental units as part
of this development.
2. Residential Parking Ratios Based on our recent experience in
the Joyce Station area with both Wellington Mews and the first
phase of Collingwood Village we are finding a significant
reduction in residential parking stall demand from residents due
to the proximity of the Skytrain. Greystone seeks approval from
Council for the provision of 1 stall per residential unit plus
an additional 0.1 stalls per unit for visitor rather than the
ratio proposed by Engineering in the policy report. We propose
to provide the commercial parking as per the parking.
3. Separate Loading and Parking Access Given the constraints of
the narrow, slopping site and Greystone's desire to maximize the
ground level outdoor amenity area and landscaping treatment on
the podium which was strongly supported by the Advisory Design
Panel, it is no possible to achieve Engineering's request for
separate loading and parking access from the lane. Greystone
APPENDIX D
Page 6 of 6
seeks Council approval to retain the loading and parking access
in their current configuration as indicated on the architectural
plans.
As noted in the policy report, this development is marginally viable and
as such any delay in processing this rezoning application challenges
Greystone's ability to deliver the Crime Prevention Office and meet our
obligations to deliver the office space to committed tenants. We
request Council's support for referral of this report to Public Hearing
at the earliest possible date. APPENDIX E
Page 1 of 1
FORM OF DEVELOPMENT
5104-56 JOYCE STREET
APPENDIX F
Page 1 of 1
APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION
APPLICANT AND PROPERTY INFORMATION
Street Address 5104-56 Joyce Street
Legal Description Lots A, R, 5 & 6, Block 158, DL 37, Plans 2750, 20906, LMP 24057
Applicant Brian McCauley, Greystone Properties Ltd.
Architect/Plans by Mark Whitehead, Musson Cattell Mackey Partnership
Property Owner Greystone Properties Ltd.
Developer Greystone Properties Ltd.
SITE STATISTICS
GROSS DEDICATIONS NET
SITE AREA 2 010 m› N/A 2 010 m›
(21,636.2 sq. ft.) (21,636.2 sq. ft)
DEVELOPMENT STATISTICS
DEVELOPMENT PERMITTED UNDER PROPOSED DEVELOPMENT
EXISTING ZONING
ZONING C-2C CD-1
USES Office/Retail Service Dwelling Units
Cultural & Recreational Office/Retail Service
Dwelling Uses, Institutional Crime Prevention Office
Utility & Communication Accessory Uses
Accessory Uses
DWELLING UNITS N/A 117
MAX. FLOOR SPACE RATIO 3.0 5.6
GROSS FLOOR AREA 6 030 m› (64,908.5 sq. ft.) 1 1256 m› (121,162.7 sq. ft.)
MAXIMUM SITE COVERAGE N/A N/A
MAXIMUM HEIGHT 12.2 m (40 ft.) 47.9 m (157 ft.)
MAX. NO. OF STOREYS 4 16
PARKING SPACES As per Parking By-law 184
FRONT YARD SETBACK N/A N/A
SIDE YARD SETBACK N/A N/A
REAR YARD SETBACK 4.6 m (15.1 ft.)