POLICY REPORT

DEVELOPMENT AND BUILDING

Date: November 12, 1997

Author/Local: TPhipps/7727

CC File: 5303-2

TO: Vancouver City Council

FROM: Director of Cental Area Planning, on behalf of Land Use & Development

SUBJECT:CD-1 Text Amendment - 4255 Arbutus Street (Arbutus Village Centre)

RECOMMENDATION

THAT the application by James Hancock, Architect, to amend CD-1 By-law No. 4634 for Arbutus Village, bounded by Arbutus and Yew Streets, Valley and Eddington Drives and King Edward and Nanton Avenues to permit development of two 6-storey multiple dwellings containing 142 dwelling units at 4255 Arbutus Street (Lot 2, D.L. 526, Plan 14750), be referred to a Public Hearing, together with:

i) plans received April 11, 1996;

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; and

FURTHER THAT the Director of Legal Services be instructed to prepare the necessary CD-1 By-law Amendment for consideration at Public Hearing.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of the foregoing.

COUNCIL POLICY

On May 8, 1989, Council approved the following community development objective:

Encourage the distribution of acceptable housing forms and affordable shelter costs equally among all residential neighbourhoods of Vancouver.

PURPOSE AND SUMMARY

This report assesses an application to amend the CD-1 zoning of Arbutus Village to permit development of a portion of the shopping centre parking lot with two 6-storey multiple dwellings containing 142 dwelling units and a public amenity space. Staff conclude that the site offers a desirable location for seniors-oriented multiple dwellings with few undesirable impacts. A public amenity space would not offer a significant public benefit in this location. Staff recommend approval, subject to conditions.

MAP

DISCUSSION

Historical Context Some neighbours believe the current extent of residential development in Arbutus Village was to be the ultimate maximum. Although no further developments were initially contemplated, file records do not indicate Council resolutions to the effect that no further development should ever be considered. In any case, a Council may not legally restrict the decisions of future Councils in this respect.

There are strong reasons to reconsider the original limits of development, including civic objectives for sites like this which were not priorities at that time. For example, the extent of land dedicated to surface parking on this site would be discouraged in current planning of a similar development for both aesthetic and land use reasons. More importantly, recent and projected demographic changes in the region demand more efficient use of urban land, particularly for residential uses.

Uses Development of multiple dwellings on a portion of the parking lot would displace neither housing nor employment opportunities and displaced commercial parking would be entirely replaced below grade. The location of the new units, immediately adjoining shopping, commercial services and transit would minimize vehicular trips for residents. Additional residents would also contribute to the viability of retaining local commercial services in Arbutus Village.

Notably, this site does not adjoin any sites zoned for one-family use. Therefore, if Council wishes to accommodate west-side demand for alternatives to one-family dwellings south of West 12th Avenue, this site represents one of the least intrusive opportunities available.

Density Arbutus Village is fully developed in accordance with current CD-1 regulations. The overall density permitted in Arbutus Village to date is 0.67 FSR, though individual sites vary from 0.60 to 1.30 FSR. The shopping centre site itself contains a density of 0.49 FSR. The proposed 17 800 m² (191,559 sq. ft.) of residential floor area would constitute an additional density of 0.63 FSR on the shopping centre site. If the proposed public amenity space is converted to residential use as recommended, (see Appendix D, Page 2), a density of 0.65 FSR results. The result would be a total density of 1.14 FSR, which is comparable to the 1.20 FSR permitted in C-1 Commercial Districts, which serve local communities, similar in function to the Arbutus Village Shopping Centre. Mixed-use development in C-1 Districts can achieve a 0.45 FSR commercial component and 0.75 FSR residential, similar to the density which would result from the proposed rezoning.

Unlike most C-1 Districts, which adjoin or are adjacent to one-family districts, the transition to one-family density occurs across an array of CD-1 zoned townhouse and care facility sites. The transition within the CD-1 precinct would be no more dramatic than currently exists in Arbutus Village. Therefore, the proposed FSR is supported.

The addition of 142 dwelling units would be a 31% increase in units within the overall Arbutus Village CD-1 District. This increase is also supported because the additional dwelling units can be accommodated in terms of services and transit availability with minimal impact on the surrounding area.

Form Arbutus Village multiple dwellings range from 2 to 6 storeys in height and vary from townhouses to slab apartments in form. The initial 7-storey proposal for this site would have been out of scale with its context. The two 6-storey structures now proposed would fit the pattern of 6-storey core buildings generally surrounded by 2- and 3-storey buildings. The parking lot is the only remaining site which could be developed to a six-storey scale without changing the pattern of the CD-1 precinct.

The westerly building would recede visually from Nanton Avenue. However, the roofline of the building next to Arbutus Street needs to be articulated significantly more to avoid a blunt and unrelenting appearance as seen from Arbutus Street to the south. Conditions are proposed in Appendix B to achieve a roofline stepped back from Arbutus Street and with reduced height at intervals along the south elevation to strengthen the rhythm of the facade along Nanton Avenue.

Multiple dwellings immediately south of Nanton Avenue would lose some mountain views to the north as a result of this or any development exceeding two storeys on the south edge of the shopping centre. This impact is limited because the existing 5½-storey "Briar" building at a higher elevation at the north edge of the site already reduces views to the north. There would also be some loss of northerly views to British Properties from West 32nd Avenue at Yew Street, though the angle of interruption is narrow and upper slopes of north shore mountains would remain visible.

Access, Traffic and Parking To maintain required commercial parking, 154 surface spaces would be replaced underground. These spaces would be served by a "travelator" (cargo escalator) to transport shopping carts to below grade parking, as is done at City Square. Staff recommend stair wells large enough for landscaping to be introduced at lower parking levels, white painting of wall and ceiling surfaces and security measures to minimize risk of property crimes.

Access to residential parking (245-252 spaces required per RM-4 standard) would be from Nanton Avenue to prevent conflict with commercial traffic. Traffic calming measures in the form of curb line bulges on Nanton Avenue at Arbutus and on Yew Street near Nanton are proposed by the applicant and supported by staff to reduce through-traffic speeds, particularly near the access point. This would address concerns with current traffic patterns and prevent potential hazards at the intersection of Nanton and Yew.

A perpendicular intersection with traffic lights should be provided for easier shopping centre access to and from Arbutus Street. This change could eliminate approximately as many multiple right-turn trips through the adjacent residential area by shopping centre customers as the new residential development is projected to generate. Therefore, there should be little or no net increase in traffic on nearby residential streets. The projected 3% increase in volume on Arbutus Street resulting from the proposed development is negligible relative to current and likely future traffic volumes. The residential component would add less than 5% to any of the turning movements used for access, though regional traffic growth without the proposed traffic lights to service the shopping centre will lead to future congestion for some movements.

PROCESS

Staff note that lengthy delays by the applicant in replacing vandalized rezoning signs has frustrated neighbours. However, the applicant has voluntarily maintained an information office in the shopping centre to provide detailed information on the proposal, though the accuracy and currency of information provided at that office, as the proposal was changed, has been questioned by the public.

CONCLUSION

Planning staff conclude that 142 seniors-oriented dwelling units, of which 136 would be adaptable, on the Arbutus Village shopping centre site would offer a significant public benefit. The proposed multiple dwelling forms fit the existing core and edge pattern of scale in the area. Traffic impacts are not significant. Impacts on views from across Nanton Avenue would result from any structure larger than two stories on this site. Design development remains necessary to achieve an acceptable roofline treatment and is reflected in conditions in Appendix B.

Proposed public amenity spaces would serve no specific civic priority and are not likely to be used sufficiently to constitute a significant public benefit. Public amenity issues and potential Community Amenity Contributions are addressed further in an accompanying In-Camera report. Conversion of the proposed amenity space to dwelling units or building amenities is recommended.

* * * * *

DRAFT ARBUTUS VILLAGE CD-1 BY-LAW AMENDMENTS

TO ACCOMMODATE THE PROPOSED BUILDINGS *

Use - Commercial Centre uses as currently permitted; and

-Multiple dwellings containing a maximum of 145 dwelling units.

Density-A maximum commercial floor area of 13 713 m² (147,600 sq. ft.);

-A maximum residential floor area of 18 493 m², (199,060 sq. ft.)** based on the calculation provisions of the RM-4 District Schedule, except that mechanical penthouses, un-enclosed weather protection structures above the highest storey and one enclosed balcony per unit facing Arbutus Street would not be calculated as floor space.

Height -A maximum of 50.5 m (166 ft.) above mean sea level, except that unenclosed weather protection structures and mechanical penthouses may be permitted to exceed this limit.

Setback -A minimum setback of 3 m (10 ft.) from the west property line;

-A minimum setback of 4 m (13.1 ft.) from the south property line; and

-A minimum setback of 5 m (16.4 ft.) from the east property line.

Parking -Per RM-4 standard in the Parking By-law, except that a minimum of 493 commercial parking spaces must be provided (no reduction from present).

Acoustics -Per RM-4N District Schedule.

*It is proposed that a new CD-1 By-law be created for this Shopping Centre component, while amending the original CD-1 By-aw for Arbutus Village to delete references and regulations pertaining to this component. The new CD-1 By-law would include use provisions and regulations to accommodate the existing shopping centre.

**Includes conversion of proposed public amenity space, normally excluded in floor space calculations, into dwelling units.

PROPOSED CONDITIONS OF APPROVAL

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(a)THAT the proposed form of development be approved by Council in principle, generally as prepared by James Hancock, Architect, and stamped "Received City Planning Department, April 11, 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)design development to step the upper storeys of the multiple dwelling adjoining Arbutus Street to reduce scale on Arbutus Street;

(ii)delete portions of the 6th and 5th storeys of the multiple dwelling facing Nanton Avenue to reduce scale and strengthen the building rhythm along Nanton Avenue;

(iii)set back the top storey of the west facing multiple dwelling so that the upper storey is not apparent from the view of pedestrians using the public path from the corner of Nanton Avenue and Yew Street;

(iv)glaze the east facing wall of the main lobby in the westerly building adjoining the exterior pedestrian ramp to improve visibility and surveillance;

(v)widen the pedestrian ramp from the corner of Nanton Avenue and Yew Street to 1.6 m on each side of the support pillars;

(vi)maximize recreational usability of all roof surfaces for building residents;

(vii)design development to townhouses adjacent to Nanton Avenue, to achieve a distinct expression from the apartment structure to which they would be attached;

(viii)detailed specification of exterior materials to include brick as shown in form of development plans;

(ix)conversion of proposed public amenity spaces to building amenities or dwelling units, noting that privacy must be ensured for the latter; and

(x)design development to reduce opportunities for theft and nuisance in the underground parking;

(Note to Applicant: Bicycle parking compounds should be fully secured. Consideration should be given to securing commercial parking during non-operating hours.)

(xi)design development to reduce fear in underground parking;

(Note to Applicant: Design underground parking exit stairs and lobbies to be visibly open in accordance with Parking By-law Section 4.12 and painted white. Open exit stairs to the surface parking area should be visibly open, wider, landscaped (including trees) at the lower parking levels and designed to allow maximum daylight into underground parking.)

(xii)design development to reduce opportunities for break and enter to ground level residential units, particularly along the pathway on the west property line;

(Note to Applicant: This can be achieved by having units raised slightly above the pathway or street with open landscaping. Consider improving security to these units.)

(xiii)design development to reduce opportunities for conflicts and nuisance on the public pathway through the proposed development;

(Note to Applicant: This can be achieved by: providing highly defined public and semi-private territory; providing clear and open landscaping; encourage users to pass through the area rather than hanging out; and providing garbage containers.)

(xiv)clarification to the satisfaction of the General Manager of Engineering Services, of:

-the largest semi-trailer intended to serve the shopping centre, in order to determine adequate semi-trailer egress from loading spaces;

-the existing loading bay connections to the Safeway store;

(xv)provide an undertaking to maintain security patrols (such as bicycle patrols) of all structured parking areas during all commercial operating hours and at a frequency as recommended by Vancouver City Police; and

(xvi)comments of the Special Advisory Committee on Seniors resulting from a review by the Committee of development application drawings;

(xvii)any trees deemed suitable for transplanting are considered for relocation on site or in a nearby public space, such as a park, at the time of Development Permit application; and

(xviii)a comprehensive existing tree inventory identifying trees for relocation, retention, or removal be completed as part of the Development Application process by a Landscape Architect or certified Arborist.

(c)THAT, prior to enactment of the CD-1 By-law, the registered owner shall:

(i)make arrangements to the satisfaction of the City Engineer and Director of Legal Services, all at the developer's expense, for:

-street modifications and signalization of the new main vehicular access from Arbutus Street, to the shopping centre;

-a traffic consultant is to work with Engineering Services staff to coordinate the development's access requirements with the related pedestrian and vehicular signalization, and street geometric requirements including curbline bulges on the north side of Nanton Avenue at Arbutus Street and on both sides of Yew Street at Nanton Avenue;

-upgrading and extension of the watermains on Arbutus and Yew Streets to serve this site (estimated developer's cost is $50,000.00 in 1996 dollars);

-undergrounding of all utility services for this site from the closest existing suitable pole;

-control of the discharge of storm water from the site to the City storm water/sewer system, and on-site control or retention of storm water that may affect neighbouring properties. Provision of a detailed report of expected storm water discharge rates is required;

(ii)execute a legal agreement satisfactory to the Director of Legal Services, committing the applicant to participate in the City Public Art Program and obtain approval by the Director of Cultural Affairs of a Preliminary Public Art Plan;

(iii)register a covenant to the satisfaction of the Director of Legal Services providing that adaptable housing features listed in Appendices A-1 and A-2 of the RBO Architecture letter dated March 31, 1997 to Art Phillips, Larco Enterprises Inc., be completed to the satisfaction of the Director of Planning prior to residential use and occupancy of buildings on the site.

ADDITIONAL INFORMATION

Proposed Development The applicant proposes to develop 142 dwelling units (17 796 m²/191,559 sq. ft.) in two 6-storey multiple dwellings on the southerly portion of the Arbutus Village Shopping Centre parking lot adjacent to Nanton Avenue. Public amenity spaces totalling 697 m² (7,500 sq. ft.) are proposed. Amenity spaces totalling 585.4 m² (6,301 sq. ft.) are also proposed in the new buildings to accommodate recreational needs of new residents. The multiple dwelling adjacent to Arbutus Street would contain six 2-storey "townhouses". At least 25% of all units would be fully accessible with all single-storey units being "adaptable" to accommodate aging-in-place. Displaced commercial parking would be entirely replaced below grade.

Site, Surrounding Zoning and Development This 2.8 ha (7 ac) site is comprised of one irregular parcel on the west side of Arbutus Street at Nanton Avenue. It is bounded on the north and west sides by sites developed with 5½ and 6-storey multiple dwellings and a two-storey care facility under the same CD-1 zoning. A dedicated greenbelt park also adjoins the northwest corner of this site.

History The shopping centre site was rezoned to CD-1 in July, 1972 along with eight other sites bounded by Arbutus Street, King Edward Avenue, Valley Drive, Eddington Drive, Yew Street and Nanton Avenue. This CD-1 District was created to permit 461 dwelling units in 2- to 6-storey multiple dwellings, a 8 489 m² (91,000 sq. ft.) seniors' care facility and the shopping centre. A 1 453 m² (15,640 sq. ft.) expansion of the shopping centre was approved in December 1985, and a 200 m² (2,153 sq. ft.) addition was approved in October 1991, together with several additional commercial uses.

Public Input A notification letter was sent to nearby property owners on August 17, 1995 and rezoning information signs were posted on the site on September 12, 1995. Numerous phone calls were received from residents. Nine hundred and fifty-four (954) form and individual letters expressing support were received. Fifteen hundred and seventy-five (1,575) form and individual letters expressing opposition were received from nearby residents stating principal concerns as follows. (Over 90% of these were form letters.)

Those opposed generally express the sentiment that no more residential development, particularly of a "tower" form, should be permitted. This opinion is often supported by the view that the original hard-fought rezoning set the ultimate limits for residential development. There are also four frequently repeated themes stated in letters of opposition, as follow:

-traffic impacts on Arbutus Street, Nanton Drive, Yew Street and Valley Drive are expected to be intolerable;

-fear of the proposed underground commercial parking;

-anticipated flooding of lower storeys in nearby multiple dwellings to result from water table changes; and

-resale values of apartment units in the area are expected to drop as supply is increased.

Prior to submission of this application, neighbours attending public information meetings indicated strong opposition to rental housing on this site.

There are other localized concerns. Many elderly residents at Arbutus Manor fear noise and disruption during construction and increased traffic, particularly at the residential underground entry point. The height and view impact of proposed buildings is of concern to nearby residents on Nanton and Yew Streets and to the south on West 32nd Avenue at Yew Street.

These issues are addressed in the report under headings of Access, Traffic and Parking and Form and in conditions contained in Appendix B.

Comments of the Manager of Engineering Services The Manager of Engineering Services 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 August 30, 1995 and supported the proposed use, density and form of development (see Minutes, Appendix E).

Seniors' Advisory Committee Comments The Committee strongly supports the proposed rezoning and particularly the inclusion of improved access and adaptable features to accommodate aging-in-place (see Appendix F).

Public Benefit This rezoning would accommodate 142 adaptable dwelling units suited to aging-in-place in a location where there is strong local demand and which offers direct pedestrian access to shopping, parks and transit. A community amenity space would not offer a significant public benefit in this location, as no specific sponsor group, program of activities or programming organization is proposed and City Social Planning and Park Board staff do not support creation of an unprogrammed public facility in this location.

ENVIRONMENTAL IMPLICATIONS

Nearby access to transit and commercial services may reduce dependence on use of automobiles.

SOCIAL IMPLICATIONS

There are significant social benefits to the provision of housing suited to aging-in-place in a convenient location. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

COMMENTS OF THE APPLICANT

The applicant has been provided with a copy of this report and has provided the comments attached as Appendix G.

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address	4255 Arbutus Street
Legal Description	Lot 2, D.L. 526, Plan 14750
Applicant	James Hancock, Architect
Architect	James Hancock, Architect
Property Owner	Arbutus Village Holdings Ltd.
Developer	Wink Andres, Larco

SITE STATISTICS

	GROSS	DEDICATIONS	NET
SITE AREA	2.83 ha (7 ac.)	-	2.83 ha (7 ac.)

DEVELOPMENT STATISTICS

	DEVELOPMENT PERMITTED UNDER EXISTING ZONING (Shopping Centre Site)	PROPOSED DEVELOPMENT (Shopping Centre Site)	RECOMMENDED DEVELOPMENT (if different than proposed)
ZONING	CD-1	CD-1 (new)
USES	Commercial Centre	Commercial Uses Multiple Dwelling
DWELLING UNITS	-	142	145
MAX. FLOOR SPACE	13 713 m² (147,600 sq. ft.)	Com: 13 713 m² (147,600 sq. ft.) Res: 17 800 m² (191,559 sq. ft.)	Res: 18 493 m² (199,060 sq. ft)
MAXIMUM HEIGHT		50.5 m (166 ft) Geodetic
MAX. NO. OF STOREYS	2	6
PARKING SPACES	493	Commercial 493 Residential 245 Total: 738
WEST YARD SETBACK	-	3 m (10 ft.)
SOUTH YARD SETBACK	-	4 m (13 ft.)
EAST YARD SETBACK	-	5 m (16.4 ft.)

(c) 1998 City of Vancouver