SUPPORTS ITEM NO. 1
P&E COMMITTEE AGENDA
MAY 16, 1996
POLICY REPORT
URBAN STRUCTURE
Date: April 30, 1996
Dept. File No.: MK
TO: Standing Committee on Planning and Environment
FROM: Director of Central Area Planning
SUBJECT: Central Area Bridgeheads - Consultant Study
RECOMMENDATION
A. THAT the draft terms of reference for a consultant study of
the Central Area Bridgeheads, attached as Appendix 'A', be
approved in principle, subject to refinements made during the
consultant selection process; and
B. THAT funding up to an amount of $12,000 be approved for the
consultant study, and public consultation expenses including
staff overtime as outlined in this report, with the source of
funds to be Contingency Reserve.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
and B.
COUNCIL POLICY
There is no directly relevant Council policy, except for policy on the
False Creek North site related to view corridors.
PURPOSE AND SUMMARY
At Council's request, this report outlines a consultant study of the
Central Area bridgeheads, to develop policy on the proximity and form of
development appropriate to these bridgehead areas.
BACKGROUND
Beginning in the 1970s, redevelopment of the False Creek basin and edges
of the downtown peninsula has seen higher density buildings located
adjacent to the major bridgehead approaches to the downtown on both
sides of False Creek. These include the three False Creek bridges
(Burrard, Granville, and Cambie), and the Georgia/Dunsmuir Viaducts
across the filled section of the False Creek area east of the Beatty
escarpment.
Although in the past Council has adopted some limited policies for
particular areas beside bridges (e.g. limiting building heights to below
the bridge deck level southeast of the south approach of the Granville
Bridge), there are at present no overall policies in place concerning
developments adjacent to bridges within the city.
The completed residential development at 1000 Beach has a low-rise
building located along the eastern side of Burrard Bridge. A portion of
this building, located within the Burrard street-end view corridor,
extends about 2 storeys above the bridge deck level. Public concerns
have been expressed about this building's massing due to its proximity
to the bridge structure and its impacts on public views from the bridge.
A recent rezoning proposal for 1005 Beach in the form of a 23 storey
tower located close to the west side of Burrard Bridge raised issues of
public views blockage and the proximity of towers to a heritage bridge
and important entry and exit routes from the downtown.
These concerns led Council on March 12, 1996, to adopt the following
resolution:
"THAT the Policy Report dated January 19, 1996, on the
proposed rezoning of 1005 Beach Avenue, be deferred pending
completion of a study concerning potential developments in the
immediate vicinity of bridgeheads in the city and report back
by staff."
At that time, Council also requested staff to bring forward information
on views from bridges.
DISCUSSION
Study Purpose
The purpose of the Study is to analyze and develop policies for 5 major
Downtown/False Creek bridgehead areas leading into and out of the
downtown peninsula that have significant remaining development
potential.
Aspects to be reviewed include:
- potential and likely tower and mid-rise buildings that could be
located close to bridges, and various locational and built form
options for achieving development density expectations;
- public view amenities, given development approved to date and
development options, and the visual experience for vehicular and
pedestrian traffic passing through these areas with the aid of
computer-generated modelling techniques;
- visual perception, image and identity of the bridge structures as
part of the city's character and identity; and
- specific policies and guidelines for the siting and form of tall
buildings adjacent to bridges, with particular priority and
emphasis to be given to the key Burrard and Granville bridgehead
areas on the downtown peninsula.
Study Areas
The study will focus on five (out of eight) False Creek bridgehead areas
as illustrated in Appendix 'B'. Priority will be given to those areas
having significant rezoning potential that are not yet covered by
policy. These are the north and south ends of the Burrard Bridge, and
the north end of the Granville Bridge. The remaining areas of Cambie
South and Viaducts East are of more minor consideration.
Three areas not covered by the study include the south end of Granville
Bridge, the north end of Cambie Bridge, and the west end of the
Viaducts. Granville South, except for one site north of the Pacific
Press Building on 6th Avenue, is fully developed or covered by approved
zoning. Cambie North and Viaducts West on the Concord site are covered
by the FCN Policy Statement and ODP, and are subject to a comprehensive
review process. For these areas, staff will review them against the
criteria established in the study, and report back when detailed
planning is underway.
Scope Of Work And Schedule
Consultant selection and gear up will take place through the end of
June. Thereafter, it is expected the Study will be undertaken as
follows:
- Initial Technical Analysis (July - August)
- Collecting information on all recently built, under
construction or approved development immediately adjacent to
these bridgehead areas;
- Inputting this data and information into a computer model of
the immediate area built form around these bridgeheads;
- Documenting and analysing the current public view experiences
enjoyed sequentially when moving through these areas with
consideration given to potential pedestrian linkages and
alternate transit modes;
- Projecting with computer assistance possible alternate
development scenarios (assuming development allowances as in Appendix C), and evaluating these against appropriate
criteria; and
- Developing policy and guidelines for buildings in these
bridgehead areas that respond to public objectives and
concerns.
- Public Dialogue (September)
- Upon completion of the technical study, a public process will
be convened by the City, where the consultants will present
their analysis and document public reaction and comments.
This will likely involve several public information meetings
with the general public and Downtown and development interest
groups, as well as open houses and other public consultation
techniques.
- Findings and Decisions (October)
- Preparing a draft report and circulating to interested people
(eg. Downtown Vancouver Association, Architectural Institute
of British Columbia, Urban Design Panel, Urban Development
Institute, etc.); and
- Consideration at a Council workshop and at the Planning and
Environment Committee.
Management Structure
The consultant will be managed by a Central Area planner, with advice
from the Land Use and Development Division of the Planning Department.
The consultant will liaise with Engineering Services and Health
Department staff on particular issues of concern such as bridge maintenance and access, livability, and noise criteria.
Budget
The overall budget required for this work is as follows:
Consultant Study $10,000
Public Meeting Costs and Staff Overtime $ 2,000
Total $12,000
Given the close relationship of this study with the Downtown Vancouver
Skyline Study in terms of required computer resources, it may be
possible and cost effective for a single consultant or consortium to
carry out both studies. However, if the timing for the larger skyline
study would hold off completion of the Bridgehead Study, it would be
better to proceed as separate efforts. Costs are projected assuming the
most costly circumstances.
FINANCIAL IMPLICATIONS
This is one of two urban design consultant studies Council has asked to
be undertaken this year that will require funding from Contingency
Reserve.
CONCLUSION
The development of policy addressing public views from the bridgeheads
and criteria for locating taller buildings near bridges, especially in
the downtown, will assist in the future evaluation of development
proposals for these sensitive areas.
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