Agenda Index City of Vancouver

POLICY REPORT

URBAN STRUCTURE

Date: November 5, 1998

Author/Local: M.Gordon/7665

E.Barth/7295

RTS No. 208

CC File No. 8109

TO:

Vancouver City Council

FROM:

The Director of Central Area Planning (City Project Manager for the Planning Work on the Trade and Convention Centre Expansion Program) and the Deputy City Engineer

SUBJECT:

Portside: Comprehensive Development Agreement (the expansion of the Vancouver Trade and Convention Centre and the Canada Place Cruise Ship Terminal and associated development)

RECOMMENDATIONS

A.THAT the draft Comprehensive Development Agreement (attached as Appendix A) specifying, among other things, the land uses, development allowances, design parameters, and public benefit requirements for the expansion of the Vancouver Trade and Convention Centre including:

(i) associated hotel and commercial development and other ancillary uses (sub-areas 1 [a] and 2);

(ii)the extension of the Canada Place cruise ship pier (sub-area 1 [b]); and

(iii)the potential development of the Eastlands (sub-area 3);

be referred to a Public Review Meeting, together with:

(a)plans received from Greystone Properties Ltd., dated September 15, 1998, (attached as Appendix B) noting that revised drawings shall be submitted prior to the Public Review Meeting and that these will form part of the Comprehensive Development Agreement;

(b)design development conditions (attached as Appendix C);

(c)the recommendation of the Director of Central Area Planning (City Project Manager for the Planning Work on the Trade and Convention Centre Expansion Program) and the Deputy City Engineer that Council approve the draft Comprehensive Development Agreement and submit it to the Vancouver Port Corporation and the developer for agreement generally in accordance with the draft attached hereto.

B.THAT Council adopt Recommendation A on the following conditions:

(i)THAT the passage of the above resolution creates no legal rights for the applicant or any other person, or obligation on the part of the City; any expenditure of funds or incurring of costs is at the risk of the person making the expenditure or incurring the cost and, without limiting the generality of the foregoing, any development of the subject lands in anticipation of the execution of the Comprehensive Development Agreement shall be at the developer’s own risk and shall not be to the account of the City;

(ii)THAT the City and all its officials, including the Approving Officer, shall not, in any way, be limited or directed in the exercise of their authority or discretion, regardless of when they are called upon to exercise such authority or discretion.

C.THAT the Director of Central Area Planning and Deputy City Engineer work with Greystone Properties Ltd. and Ontrea Inc., the owner of Granville Square, to develop a solution to achieve closure of the Canada Place Way viaduct gap.

D.THAT the City Manager and the Director of Legal Services be authorized to negotiate the final wording and execute a Comprehensive Development Agreement on behalf of the City, provided that the Director of Legal Services is of the opinion that it is substantially similar to the form attached hereto as Appendix A, and further that the Director of Legal Services be authorized to sign all necessary ancillary agreements including those for subdivision.

CITY MANAGER’S COMMENTS

The City Manager RECOMMENDS approval of the foregoing.

COUNCIL POLICY

·100·Central Area Plan (1991);·100

·100·Views Policy (1989 with subsequent amendments);·100

·100·Central Waterfront Port Lands planning and approval process (1992);·100

·100·Central Waterfront Port Lands Policy Statement (1994);·100

·100·In Stage One (1996) of the New Trade and Convention Facilities Review Program, Council endorsed the three site proponents proceeding to Stage Two with conditions for evaluation of Stage Two proposals;·100

·100·In Stage Two (1997), Council endorsed City staff’s evaluation of Greystone’s proposal submitted to the Province including conditions to be addressed in Stage Three, which is the current stage.·100

PURPOSE AND SUMMARY

The Portside development is entirely on Federal Government lands administered by the Vancouver Port Corporation (Port). As such, the City’s review and approval processes do not apply. However, the Port and Greystone Properties Ltd. (Greystone), the developer of the lands, have agreed that the City’s regulatory process be followed as closely as possible as if the subject lands were in fact wholly within the City’s regulatory jurisdiction. To facilitate the co-operative effort necessary for this request to be met, a Memorandum of Understanding (MOU), was agreed to between the City, the Port and Greystone (which is representing the Provincial Government).

The draft Comprehensive Development Agreement (CDA), see Appendix A, is expected to achieve six key objectives:

1.establish uses and the form of development for the cruise ship pier extension, the Vancouver Trade and Convention Centre (VTCC) expansion and adjacent hotel and commercial development;

2.require the concurrent execution of legal agreements for the delivery of public benefits identified in the 1994 Central Waterfront Port Lands Policy Statement (CWPLPS) approved by the City and the Port;

3.confirm that no development will occur on the Eastlands project phase until the public process identified in the 1998 MOU is concluded, an application to redevelop is submitted and the CDA is amended to permit the approved redevelopment (at this time the CDA confers no development rights or allowances on the Eastlands);

4.establish that City processes will be followed for subdivision and permitting of development on the subject lands except for certain aspects of the development of the pier extension to Canada Place;

5.establish that the uses and form of development for the pier extension to Canada Place will be governed by the CDA and that permits will be issued in the same manner as for the existing Canada Place development; and

6.prohibit development above the pile supported deck structure until after subdivision and all ancillary agreements are registered to the satisfaction of the City.

This report discusses the provisions of the proposed CDA, attached as Appendix A, and recommends referral of the agreement, the proposed form of development, and the design development conditions to a Public Review Meeting for consideration and comment by the public, leading to a decision by Council on the terms proposed in the draft agreement.

This report focuses on the expansion of the Trade and Convention Centre, the extension of the Canada Place pier, the development of the proposed 1,000 room hotel and a retail pavilion on the edge of the proposed plaza, and the future development of a hotel or office tower immediately east of the proposed 1,000 room hotel (these areas illustrated in Appendix K are referenced in the CDA as sub-areas 1(a), 1 (b) and 2).

At the time of writing this report, the applicant was working on refining the design of the project in response to the comments of the public, the Urban Design Panel and City staff. Particular attention is being focused on the design of the plaza and the surrounding retail pavilion, the siting of tower elements, pedestrian and cycling facilities and bus parking and drop-off. A revised design will be distributed to Council prior to the Public Review Meeting and it will offer responses to these issues.

The development includes 24 525 m2 (264 000 sq. ft.) of retail floor space and staff has concluded that it will likely not have a negative impact on surrounding shopping areas. A significant portion of this retail space would typically be associated with the new hotel, a second phase hotel or office building and convention facilities. Also, the convention centre will increase the number of customers for retail outlets.

Greystone has proposed up to seven licensed restaurants, one or two cabarets (one of which would be a supper club) and a neighbourhood pub for the retail pavilion. This is in addition to licensed facilities in the adjacent hotel. Although staff have some concerns over this number of licensed facilities, these will go through the Provincial as well as the City’s approval procedures.

Staff are working closely with the applicant on the design of new viaducts which will extend Canada Place Way to the east and a second one which will provide a connection to Cordova Street and Gastown (the Cordova Connector). These viaducts will be designed to provide the necessary facilities for pedestrians, cyclists and vehicular traffic. Widening the optioned lands for the Cordova Connector (22.4 m or 73.5 ft. rather than 20 m or 66 ft.) is proposed to provide a wider sidewalk and a double row of street trees on the eastern side. Staff will also be working with Ontrea and Greystone on closing the gap between Ontrea’s Granville Square office tower and Canada Place Way. It may be in the interest of Ontrea to close this gap as it will give them the opportunity to have retail on the south side of Canada Place Way.

As Council will recall, when the 1994 CWPLPS was signed, there was agreement that the City will receive from the developer of the lands, $5.366 million (to be adjusted into current dollars) for off-site housing and benefits. Council also recommended that a social impact assessment be completed. This has been done through the Downtown Eastside Impacts monitoring report, the draft Housing Plan and the Stage Two evaluation of impacts on low income housing and adjacent communities. The impact on low cost housing was identified as being particularly important. It is staff’s understanding that the Province is contemplating expenditures on low cost housing in adjacent neighbourhoods (see Appendix J). The lease of CRAB Park (Portside Park) was identified in a 1986 agreement between the Port and City as addressing the park needs for the development of the Port Lands. Staff will be working with the Port on securing better lease terms for this park.

Once the CDA is signed, the developer will bring forward a development permit application which will reflect comments received from the public and Council’s conclusions at the Public Review Meeting. Staff will be initiating discussions with the surrounding community on the expenditure of funds in the public benefits package after the funds are received.

BACKGROUND

In 1994, City Council and the Board of the Vancouver Port Corporation approved the Central Waterfront Port Lands Policy Statement. In 1995 and 1996 there was a proposal call (Stage One) which resulted in further consideration of three schemes for the expansion of the trade and convention facilities and development in several locations. One submission (from Greystone) came forward for detailed review (Stage Two), the other two submissions having been withdrawn from further consideration by the respective applicants. The Greystone scheme on the site east of Canada Place pier, called the Port Lands, was endorsed by the City and the Province. That review included an assessment of impacts on adjacent communities, including the impact on low income housing. Having satisfactorily completed the conditions of Stage One and Stage Two, Greystone entered into detailed negotiations with the City and prepared a detailed development proposal for the site.

In June of 1998 the City, the Vancouver Port Corporation, and Greystone (with the concurrence of the Province) signed a Memorandum of Understanding (MOU) on a process to consider proposals for the development of the Port Lands and more specifically to enable the Provincial Government to move forward on the Vancouver Trade and Convention Centre expansion. The MOU identifies the need for a Comprehensive Development Agreement (CDA) among the parties which would call for City issuance of development, building and other permits related to the expanded Trade and Convention Centre and other development on the Port Lands. The CDA is needed to guide development because the site is federal land and not inherently subject to City zoning approval processes. The parties also agreed that there was a need for a "shell zoning" to facilitate the approval of permits under normal City processes (this shell zoning has already been approved by Council at a Public Hearing on October 22 of this year). The Canada Place pier extension is subject to the Port project approval process, but it has been agreed that certain development will be addressed by, and meet the principles of, the CDA.

The signatories of the CDA (see Appendix A) will be the City, the Vancouver Port Corporation and Greystone Properties Ltd. The CDA sets out provisions similar to a CD-1 zoning document, including form of development, densities, heights, required parking, and view protection guidelines. It also identifies the legal agreements which must be entered into at the same time as the CDA, and delays development approvals until after subdivision approval. It governs the design and development of the expansion of the convention centre, associated developments such as the hotel and the retail complex as well as a hotel or office development to the east of the expanded convention hotel. In future, the CDA will be amended to allow development of the Eastlands, after a complete public process and City technical review, in accordance with the MOU and the CWPLPS.

On May 19, 1998, Greystone submitted its initial CDA application and staff proceeded to evaluate the application and undertake a public consultation process to solicit input from community groups and interested individuals . The following key issues were identified and Council direction was provided on:

·100·height and massing of the hotel (Council approved some intrusion into the ‘Science World to Lions’ view cone, and a height up to a maximum of 116 m or 380 feet);·100

·100·provision of childcare facilities (Council required the applicant to adhere to the City’s standards for childcare facilities);·100

·100·pedestrian access to the site (Council decided that a pedestrian overpass at the foot of Cambie Street not be required as part of the Portside application but that alternative pedestrian access across the CP Railyards be addressed by the applicant); and·100

·100·future overpass on the Cambie Street alignment (Council decided that this will remain the objective when it becomes technically feasible).·100

Greystone submitted a revised application in September with a number of significant changes, including those emerging from the Council direction described above. Input from staff, comments from the Urban Design Panel and public discussions have identified issues that have, for the most part, been addressed by Greystone. Several issues, some of which were raised by the Urban Design Panel, continue to be addressed by Greystone and design refinements will be reported . The major issues are discussed in the body of this report, and those which are outstanding are highlighted.

PROJECT DESCRIPTION

The proposed development will occur directly east of Canada Place, and north of the CP Station and railyards, and includes an extension of the existing cruise ship pier. The proposed new development involves:

·100·Trade and Convention Facilities expansion of approximately 45 500 m2 (490,000 sq. ft.) of floor space (gross)·100

·100·Cruise Ship Terminal expansion of approximately 4 600 m2 (50,000 sq. ft.) and a third berth·100

·100·Future pier expansion for convention centre, cruise or office and retail/services totalling approximately 10 600 m2 (115,000 sq. ft.) floor space (gross)·100

·100·1,000-room hotel tower of approximately 74 300 m2 (800,000 sq. ft.) of floor space (gross)·100

·100·Relocated SeaBus terminal and new connecting pedestrian link to CP station·100

·100·24-space on-site childcare facility·100

·100·Commercial / Retail / Entertainment including approximately 24 500 m2 (264 000 sq. ft.) of floor space·100

·100·Public plaza area of approximately three acres·100

·100·A two-level parkade of approximately 800 spaces for Phase I·100

·100·Phase II hotel/office tower and ancillary retail/service (88,000 sq. ft of the total 264,000 sq. ft. referred to above) totalling approx.37 000 m2 (400,000 sq.ft.) and parking of approximately 430 spaces·100

·100·Supporting street network including Canada Place Way viaduct, Cordova Connector, Waterfront Road improvements, future Cambie Street alignment, and the connection from the upper level to Waterfront Road. ·100

·100·Other infrastructure (e.g., utilities, emergency facilities).·100

Plans for the proposed development are contained in Appendix B for illustrative purposes only, as they continue to be subject to amendment and refinement leading up to the Public Review Meeting. Proposed sub-areas for the site are illustrated in Appendix K.

DISCUSSION

The key elements of the Portside project are discussed below.

1. Built Form/Urban Design

The scheme and the CDA successfully responds to the following key urban design objectives:

·100·maximizing views through the site and sunlight on open spaces;·100

·100·ensuring that Canada Place Way is a pedestrian friendly street; and·100

·100·extending the cruise ship pier in a manner that respects the Canada Place sails as a dominant landmark and icon of Vancouver.·100

There are other urban design issues still in the process of resolution and these are identified in the design development conditions (Appendix C). The Urban Design Panel supported the project at its first review, on July 7th, with several comments for design improvements. However, at a subsequent October 7th Panel review, there was not support for the proposal. The panel did note that it was satisfied with the increased height and slimming of the hotel tower. The drawings attached to this report were those considered by the panel at its October meeting. Greystone’s design team continues to revise the proposal to address remaining issues including the design of the plaza, the retail pavilion, pedestrian routes and the eastern edge of the complex. Staff are optimistic that these issues will be resolved. The results of their forthcoming presentation to the Urban Design Panel will be relayed to Council as well as the resulting design revisions and drawings prior to the Public Review Meeting in December.

Greystone has committed to engage a Crime and Safety consultant to advise its design team on crime prevention through building and site design (CPTED) and a consultant to advise on issues related to persons with disabilities.

2. Uses and Amount of Development

The CDA permits land uses and density which were envisaged by the Council and Port approved Central Waterfront Port Lands Policy Statement (CWPLPS). The floor area allowances and uses permitted in the CWPLPS compared to Greystone’s proposal with the balance of development potential on the Eastlands are summarized in the following table.

Both the Trade and Convention Centre expansion and the various transportation uses, such as the expanded SeaBus terminal and the heliport, are proposed at a total floor area exceeding (by less than 10 per cent) the maximum of 42 000 m2 (approximately 452,000 sq. ft.) specified in the CWPLPS for these uses. However, policy 5.2 within the CWPLPS provides for additional floor space allowances for public buildings and institutions. Staff support the additional floor space for these uses because they are consistent with the intent of the policy statement and fulfill primary public objectives. The remaining development potential in the CWPLPS (primarily on the Eastlands) must in any case be proven to work. This will be more difficult to the extent that these current facilities take greater site area, leaving less site area to accommodate the remaining development potential. Nonetheless, it is probable that most floor space envisioned in the CWPLPS will be comfortably built out through careful urban design.

Staff proposes that the CDA limit retail and service uses (excluding hotel) to 24 500 m2 (264,000 sq. ft.) as explained in the section below on retail impacts.

The CWPLPS also limits office floor space to no more that 79 000 m2 or 850 000 sq.ft. (equivalent to two large office buildings) and this is reflected in the CDA.

3. Retail Impacts

Staff endorses the conclusions of the applicant’s retail impact assessment which was prepared by a retail consultant. The proposal includes retail, and related commercial uses (e.g. restaurants, licenced premises, service and similar uses) around the plaza, within the extension of the Canada Place pier and within the adjacent hotel and the proposed development east of the hotel. A total of 24 525 m2 (264 000 sq.ft.) of floor space is proposed. Staff calculates that once retail and related commercial floor space that is typically associated with a convention centre, hotel, office tower and transportation hub is deleted, this leaves approximately 9 300 m2 (100,000 sq.ft.) of net new floor space that could impact adjacent shopping areas. Staff believes that this amount of floor space will have minimal impact on adjacent retail areas in this particular location and context. This is, in large part, because of the off setting significant increase in new customers which will be generated by the convention facility expansion and new hotel.

Staff endorses the retail component because the developer is pursuing a tourist information facility. This 750 - 900 m2 (8,000 - 10,000 sq.ft.) facility will direct visitors to off-site attractions and locations. If such a tourism component does not locate in the centre, the developer has offered two information kiosks for the promotion of Vancouver attractions, events and areas.

In addition, the Cordova Connector is also being designed as an attractive pedestrian link which will benefit Gastown and other shopping areas.

4.0 Transportation

As required by the CWPLPS, staff has carefully reviewed arrangements for movement of pedestrians, cyclists, transit and other vehicles within and adjacent to the Portside site. While staff is still working with Greystone on refinements to the design, we are confident that satisfactory provisions will be made to support the level and type of development allowed for through the CDA. Traffic management plans to minimize traffic and parking impacts on all adjacent communities through all construction stages will be completed, to the satisfaction of the City Engineer, prior to the issuance of any Building Permits. The following sub-sections discuss transportation issues in detail.

4.1 Road Network

Greystone has submitted a traffic impact study (by Bunt and Associates) to the City for this project. Staff is satisfied with the findings of the study and is confident that the proposed road network, with the inclusion of the improvements recommended by the consultant and staff, will adequately service the Portside Development.

The primary objectives of the study were to:

(i)examine the nature of the traffic demands generated from the proposed Portside development;

(ii)examine the traffic impacts of the proposed development on adjacent neighbourhoods;

(iii)review the adequacy of the planned road improvements and identify further improvements needed to accommodate the expected volumes; and

(iv)address the conditions and issues identified by City staff in the Stage One and Two evaluations.

The traffic plan also outlines many of the on-site and off-site improvements that will be necessary to service this project (attached as Appendix D). These improvements, and others, will be a requirement of the Services Agreement, which will be a condition of subdivision approval discussed later in this report.

4.2 Accommodation of Pedestrians and Cyclists

The Portside design considers the movement of pedestrians and both commuter and recreational cyclists. In some instances the design is still conceptual and needs to be developed in greater detail. Greystone is in agreement with this and continues to work with staff to ensure that pedestrians and cyclists are well integrated in the lay-out of the Portside project, as required in the CWPLPS. The following sub-sections discuss the accommodation of pedestrians and cyclists in detail.

4.2.1Viaducts

The viaduct structures serving the Portside project will accommodate pedestrians and cyclists by providing adequate sidewalks and curb lane widths. Staff has requested that Greystone include continuous sidewalks on both sides of the Canada Place Way viaduct. The Cordova Connector viaduct is a particularly important pedestrian and cycling link to Gastown and other areas of the downtown and should be designed to provide generous accommodation for pedestrians.

The Bicycle Advisory Committee (BAC) has expressed concern that the curb lanes on the Cordova Connector do not meet the ideal standard of 4.3 metres. It should be noted, however, that the curb lanes do meet the minimum 3.7 metre standard. See Appendix I for detailed comments from the BAC and Section 5.2.1 for further discussion on the width of the Cordova Connector.

4.2.2The Plaza

Portside Plaza will be a significant public space and a key link in the provision of a route with waterfront views for pedestrians and cyclists, noting that the plaza is approximately 16 metres above sea level. The scheme will not offer an opportunity for a continuous pedestrian route close to sea level.

Staff are currently working with Greystone to ensure that the design of the plaza will adequately accommodate the movement of pedestrians, and cyclists through the plaza and adjacent to the waterfront wherever possible. There will be a report back to Council on the plaza concept as well as details and options for the accommodation of pedestrians and cyclists. The Bicycle Advisory Committee has reviewed the proposal and has provided comments with respect to the Plaza design. These are included in Appendix I. One of the Stage II Conditions was that the public open space be secured through a legal agreement guaranteeing maintenance, security, programming, public access.

4.2.3 Waterfront Road

Staff supports the applicant’s proposal to designate Waterfront Road as an additional bicycle commuter route. It will provide an important link in the development of a continuous commuter route. A conceptual design, shown below, for the cross section of a separated pedestrian and bicycle route has been developed and is supported by staff, Greystone and the Bicycle Advisory Committee (see Appendix I).

For sections of Waterfront Road which are not within the Portside development, staff will pursue discussions with the Vancouver Port Corporation and other involved parties on the design of a separated cyclist and pedestrian path on the south side of this road. In these discussions, staff will work with the Vancouver Port Corporation to identify a time line for pursuing this facility.

The Vancouver Port Corporation has operation and safety concerns about mixing pedestrians and cyclists with trucks, buses and service vehicles. Safety will be given further consideration before the design is finalized to ensure proper integration of thepedestrian/bicycle route with the existing loading facilities on Waterfront Road. The design of roads will be to the satisfaction of the City Engineer and Port Director of Engineering.

4.2.4 Bicycle Parking Provision

Provision for Class A and B bicycle parking will be finalized as part of the development permit review.

4.3 Interim Connection from Canada Place Way Viaduct to Waterfront Road

After completion of the office or hotel tower (sub-area 2), east of the 1000 room hotel, there will be a link between the Canada Place Way viaduct and Waterfront Road. This link provides a connection to the waterfront for pedestrians, cyclists and emergency vehicles, continuity of our road network, and an alternate route for tour buses and service vehicles.

The hotel or office tower in this later phase may not proceed for some time after the completion of Phase I (sub-area 1[a]). Therefore, it is the position of staff that an interim link between the viaduct and Waterfront Road, accommodating all traffic, including pedestrians and cyclists, must be constructed as part of Phase I. The timing of the provision of this link will be worked out with the developer based on the construction phasing of the project. The standards for the geometry of this link should reflect the fact that it will be a temporary structure. Furthermore, every effort should be made to ensure that the physical appearance of this link is as attractive as possible for a temporary structure. This will all be considered in the context of Phase II (office or hotel tower in sub-area 2) development timing.

Therefore, staff require that if Phase II is not completed at the same time as Phase I, then an interim link between the viaduct and Waterfront Road, accommodating all traffic, including pedestrians, cyclists, and emergency vehicles, be constructed as part of Phase I.

4.4SeaBus Link from the Station

BC Transit has indicated to the City that it is satisfied with the proposed temporary and permanent facilities linking the SeaBus dock with the CP Station. There will be a temporary SeaBus facility that involves relocating the existing berthing facility and includes a temporary pedestrian walkway with moving sidewalks. Although the proposed permanent SeaBus terminal is a greater distance from the CP Station than the existing terminal, the introduction of moving sidewalks will keep the increase in travel time for pedestrians to approximately one minute. In addition to this, there will be several new points at which people can enter and exit the pedestrian link between the Station and the SeaBus terminal. These access points will be located on the plaza, adjacent to the water’s edge, and near Canada Place Way, and will also provide additional opportunities for accessing transit buses. The CP Station will continue to function as a principal transit entry. The pedestrian link will now also have a direct link to on-site parking.

Staff are also requiring that the developer provide a route along the waterfront to the permanent SeaBus terminal designed to accommodate a turn around for emergency vehicles.

4.5 Infrastructure Requirement for Downtown Heritage Streetcar

In a forthcoming Council report, staff will be reviewing options and a proposal for the provision of a Heritage Streetcar in the downtown and other areas. The preferred routing for the Streetcar has been identified in schematic terms. This route includes the new trade and convention centre as a possible destination and, consequently, may use the two new viaducts that are being constructed for the project. Prior to finalizing this routing, a cost estimate is needed from the developer for the inclusion of basic infrastructure to accommodate streetcars on the new viaducts. In addition, staff will be determining the cost for upgrading the existing viaducts (e.g., Howe Street Viaduct).

If Council approves this routing and cost estimates for the infrastructure are not prohibitive, the City may require Greystone, subject to a report back to Council, to provide the basic infrastructure needed for the Streetcar. This may include the roadbed (including tracks), associated duct work, and pole bases for the future electrical plant. This infrastructure would be secured by an agreement.

4.6 Event Planning

City staff has requested that Greystone submit a special events plan identifying how high volumes of traffic would be managed during peak special events being held at the proposed development. Staff has requested that temporary improvements required during such an event be minimized by designing the permanent improvements as robustly as possible. Finalizationof this plan, to the satisfaction of the City Engineer, will be included as part of the overall development approvals.

Regarding day-to-day operations for bus drop-off of passengers, the Cruise ship porte-cochere operation was studied in detail by Bunt & Associates, who have designed an expanded and reconfigured facility. This, coupled with the bus passenger loading facilities to be situated at dock level, will improve conditions for passenger servicing on-site and relieve congestion on the street. Further accommodation for convention buses off the street is needed in order to limit their presence to the target five-bus maximum along the north side of the extended Canada Place Way viaduct. Greystone will produce and secure a seasonal bus management plan to limit the impact on the street. The porte-cochere offers an opportunity to serve the convention buses during the off-season for cruise ships and to a lesser degree during the shoulder season. The Port will assist Greystone to investigate this opportunity, noting that the Port has existing business arrangements for the use of the porte-cochere which must be taken into consideration.

The development of an acceptable plan will be a condition of the first development permit.

5.0Design and Construction of the Canada Place Way Viaduct and Cordova Connector Viaduct

The City has options to purchase lands, at nominal cost, for the purpose of constructing the two viaducts that are needed to service the Portside project: an extension of Canada Place Way and the Cordova Connector. The following sub-sections deal with issues related to these elements.

5.1 Maintenance and Liability for the Extension of the Canada Place Way Viaduct

Greystone has requested that it be allowed to construct the extension of the Canada Place Way viaduct and its parking facility as a monolithic, integrated structure. It is the City’s practice to require its viaducts to be structurally independent of any privately-owned facilities. The applicant has said that in this particular case our requirement would represent a significant hardship. Greystone’s case for this is twofold:

·100·the increase in cost to build these viaducts and parking facilities as independent structures would add millions of dollars to the cost of constructing the viaduct; and·100

·100·constructing the structures independently would require that the convention centre move further out over the water.·100

Staff agrees that the increase in cost is very significant and that moving the project further out over the water would not be in the public interest. One way to address the City’s concerns would be for the applicant to take responsibility for the maintenance and liability associated with the structures. The City would retain responsibility for the streetscape (sidewalks, landscaping, lighting, asphalt road surface etc.). Staff will pursue this option with the applicant. A legal agreement addressing this will be developed at the subdivision stage.

5.2 Adjacent Property Owners

Ontrea’s site is bounded by the Cordova Connector to the east and Cordova Street to the south. CPPI’s development site is a parcel over the rail yards bounded by the CP station, the Cordova Connector and the extension of Canada Place Way. The Granville Square office tower, immediately to the west of the CPPI site is also owned by Ontrea. It is bounded by the extension of the Canada Place Way viaduct, Cordova Street and Howe Street.

Discussions with these property owners have been ongoing with respect to design issues impacting them. Generally, these discussions have been positive (see letters to owners’ representatives, attached as Appendices E and F). Both Ontrea and CPPI have approached this project as an opportunity. As a result, staff is optimistic that the owners’ issues can be resolved in a mutually satisfactory manner. These issues are addressed in sub-sections 5.2.1,5.2.2, and 5.2.3. Issues raised in the letter from Oxford properties, on behalf of Ontrea, are summarized in Appendix I.

5.2.1Cordova Connector

Now that the project is in the design stage it has become apparent that the lands originally optioned by the City for the Cordova Connector need to be modified in two respects:

(a)The original width (20 m or approx. 66 ft.) is inadequate to accommodate current design requirements for pedestrians, cyclists, street trees and motor vehicles. Since the Cordova Connector will be a significant pedestrian connection to Gastown and other downtown areas, it should provide adequate sidewalk widths and street trees.

Staff propose that the connector be widened from 20 metres to 22.4 metres (see figure below). This will allow for:

·100·5.8 m (19 ft.) on the east side for a railing, sidewalk and two rows of trees;·100

·100·3.2 m (10.5 ft.) on the west side for a railing, sidewalk and one row of trees;·100

·100·two 3.7 m (12 ft.) curb lanes to accommodate cyclists and stopped or parked vehicles; and·100

·100·two 3.0 m (10 ft.) driving lanes.·100

(b)The original alignment does not work as well at the intersection of the Cordova Connector and Cordova Street. The intersection, and the remainder of the site, will function more efficiently if the alignment of the south end of the viaduct is shifted to the east.

CORDOVA CONNECTOR 22.4 Metre ROW Conceptual Layout

Staff is currently negotiating the realignment and widening of the viaduct with the adjacent property owners. Ontrea and CPPI have indicated that they do not object, in principle, to the widening as long as it does not affect their ability to develop the adjacent sites. Staff notes that the realignment of the Cordova Connecter has a positive impact on the Ontrea site by avoiding the creation of a split development parcel next to Station site. Furthermore, both viaducts benefit both adjacent property owners by defining and providing vehicular access to their sites.

If agreement on the relocation and widening cannot be achieved with all parties, the viaducts will be restricted to the existing option lands. The designs can still achieve adequate access to the Portside development but the west sidewalk would be narrowed.

5.2.2Extension of the Canada Place Way Viaduct

Both Ontrea and CPPI have concerns about the design of the Canada Place Way streetscape because of the parallel ramp initially shown in front of CPPI’s property and the lay-by for parking on the south side of the viaduct in front of Granville Square (Ontrea’s property). Staff shares these concerns and has required that Greystone remove the ramp and lay-by from the design to allow for street trees and the provision of a sidewalk.

5.2.3 Canada Place Way Viaduct Gap

There is a gap between the south edge of the extension of the Canada Place Way viaduct option lands and the north face of Granville Square. This gap is owned by Ontrea (see figure). Staff, Ontrea, and Greystone would like to see this gap filled in. In the past, Council has expressed concern about the existing gap on Cordova Street, east of Burrard Street. Furthermore, as part of the rezoning for Burrard Landing, Council required the gap adjacent to Cordova Street between Burrard Street and Thurlow Street to be filled by the developer of that project. A significant difference in the Burrard Landing site, however, is that the majority of the gap was owned by the developer.

Currently, Ontrea is looking at adding retail space to the north face of Granville Square, at the future street level, to take advantage of the opportunity provided by the new viaduct. This retail would be constructed, in part, over the gap area. Staff note that development of a conventional street frontage is desirable. Ontrea will be required to pay for the closure of the gap, if they pursue retail in this location.

The CDA will include a provision that Greystone pursue with Ontrea, prior to executing the services agreement, a design for the closure of the Canada Place Way viaduct gap, in consultation with the Deputy City Engineer and the Director of Central Area Planning. Staff will report back to Council on this design. In the event that Ontrea does not proceed with plans to close the gap, it is recommended that, as a minimum solution, Greystone be required

to provide some visual closure of this gap. The City has a statutory right-of-way which would permit any construction on Ontrea’s property. This is the same approach that was pursued for the Cordova Gap, east of Burrard Street on Marathon’s Burrard Landing project.

The City can consider alternative arrangements should Ontrea and/or Greystone come forward with a better than minimum solution which achieves the closure. The CDA includes a condition addressing this issue.

6.0 Parking

Parking requirements for Portside Phase I have been studied in depth by both staff and the developer’s consultant, Bunt and Associates. The agreed-upon target for on-site parking will satisfy the demand for 90 percent of the event days, which is considered a reasonable target.

Unused parking supplies at Waterfront Centre and Granville Square will be adequate on the busiest days. The 781 spaces in existence at Canada Place will remain to serve the convention centre, the World Trade Centre offices, the cruise ship terminal, and the Pan Pacific Hotel. To satisfy the parking requirements for the expanded facilities of Portside Phase I, the SeaBus terminal and replacement of lost parking east of the old CP Station, 855 new parking spaces are required. In addition, should the proposed lecture hall be used as a multi-purpose theatre, with uses extending beyond typical conference/meeting functions, then an additional 60 parking spaces will be required. To date, drawings have indicated approximately 800 new parking spaces. Payment-in-lieu may be used to compensate for a minor shortfall. Also, the applicant may choose to delay some development (such as the commercial uses at the end of the pier) and thereby satisfy a reduced parking requirement. Provision of required parking will be secured in a Parking Agreement, which will ensure that there is adequate provision at each stage of development.

This parking agreement will be a ‘prior-to’ condition of the issuance of the first development permit.

7.0 Dangerous Goods Movement

There has been a significant reduction in the movement of dangerous goods through the Downtown area. In terms of numbers, Canadian Pacific Railway (CPR) has informed us that in 1988 there were 1,494 dangerous goods cars using the Burlington Northern Dock, to the east of the development. In 1997, this number was down to 826 cars. The movement of dangerous goods is regulated by federal regulations and policies. Canadian Pacific Railway has an emergency response plan to deal with the transport of dangerous goods.

8.0 Subdivision

In consideration of the very tight schedule for the construction of this project, it is necessary to defer subdivision approval and finalization of legal agreements which are typically conditions of approval. This is covered under the CDA and will prohibit issuance of development approvals until after subdivision approval and registration.

There are only a few times in the year when Greystone can carry out its pile driving activities in the water. These times are dictated by Fisheries’ concerns and the cruise ship season. In order to work within these constraints and still meet the very tight project time lines, Greystone needs to start pile driving in January of 1999, based on receiving environmental approvals prior to starting work. Making subdivision a condition prior to signing the CDA would cause Greystone to miss this start date and possibly delay the project by a year.

Normally, subdivision and related legal agreements prior to enactment of a rezoning serve the purpose of ensuring the delivery of the public facilities and infrastructure for the new development. Since Portside is a senior government project, on federal lands, the CDA process replaces our normal enactment process. To facilitate the construction schedule, pile installation, shoreline densification, pile cap construction, and construction of the lowest structural deck can be permitted under the Port authority in advance of subdivision. However, development above the lowest structural deck will be prohibited until after subdivision approval. The developer will assume all risk that pile and deck works meet future City permit requirements.

Subdivision approval will follow the normal approval process. It will include, but not be limited to, requirements under the Land Title Act and Subdivision by-law, and execution of agreements to provide all services, floodplain protection, access to water, public access and utility rights of way, street access, offsite traffic improvements, viaduct maintenance, soils remediation, and SeaBus rights of way.

9.0 Services Requirements

Greystone is currently preparing the services designs. In principle, staff is satisfied that the site can be serviced to appropriate standards. All services will be designed to the satisfaction of the City Engineer.

All on-site and off-site work for servicing the Portside project, including traffic improvements and rights-of-way will be secured through a Services Agreement.

This agreement will be required as a prior-to condition for subdivision. All works, services, dedications and rights-of-way will be provided at no cost to the City.

10.0 Environmental Approvals

Greystone will be required to obtain approval from Burrard Environmental Review Committee (BERC), which includes the Navigable Waters Protection Act (NWPA), Environment Canada and Canadian Environmental Assessment Act (CEAA), prior to the issuance of any development permit. Certificates of Compliance (COC) or conditional COC’s issued under the Waste Management Act for all development sites will be required prior to occupancy of any developments. This complies with the CWPLPS requirement for independent environmental assessment.

11.0 Parks and Recreation

Presently there is in place a 49-year lease for Crab Park (Portside Park). Staff have discussed the possibility of renegotiating the lease term to reflect the lease in the adjacent development lands. This will require the Federal Government’s approval.

In the CWPLPS it was anticipated that the provision of Crab Park (Portside Park) would satisfy Park requirements when the Port Lands were developed. The size of the park (2.8 ha) exceeds the requirement for up to a maximum of 10% (1.6 ha) for the subdivision by-law. Portside park also exceeds the park standard used on some major projects (like Concord and Marathon) based on population (2.75 acres/1,000 people), which would be roughly 2.0 ha (5 acres).

The CWPLPS requires that a minimum of 40% of the Central Waterfront Port Lands be devoted to public open space including CRAB Park, walkways, civic open space and public open space in private development.

Based on early concepts for the Eastlands this requirement will result in the provision of approximately 5.75 ha (14 acres) of public open space, including the 2.8 ha (7 acres) CRAB Park and 1.28 ha (3.17 acres) Portside Plaza, leaving 1.67 ha (4.1 acres) to be devoted to additional walkways and open space. Further, there will be additional new walkways and open space provided on the pier extension. Staff are satisfied that the 40% of site area devoted to open space provision will be met.

12.0 Public Benefits

This section deals with off-site housing and amenities, childcare, public art and the Maritime Interpretation Centre. These public benefits were agreed to and approved by the Port and Council as part of the 1994 CWPLPS. These previously approved public benefits will be secured by agreements executed concurrently with the execution of the CDA. (See Appendix A).

These benefits include the payment by Greystone of $5.366 million (to be adjusted to current dollars) toward off-site social housing and recreation facilities. Council policy requires that the City consult with the community on the expenditure of these funds.

The Stage Two evaluation on housing impacts contained five conditions to be addressed in the current stage:

·100·identifying a method for monitoring the low income housing stock;·100

·100·the Province providing 50 additional units annually in the social housing allocations;·100

·100·identifying how the $5.366 million for off-site public benefits will be spent;·100

·100·regulating the conversion and demolition of low income housing; and·100

·100·considering a use of a portion of the hotel tax for housing purposes.·100

Some of these actions, such as the hotel tax and the additional social housing are Provincial initiatives. Provincial staff are close to issuing a report on housing and other community impacts. When the contents are known, staff will report back to Council (see Appendix J) City staff have completed work on the housing monitoring initiative. Work is underway on a report regarding the conversion and demolition regulations and work will be initiated, in consultation with the community on the expenditure of the $5.366 million (to be adjusted to current dollars), after the funds are received.

The Convention Centre proposal shows 24 on-site childcare spaces for children 0 through 3 years of age. Negotiations are continuing for the balance of spaces, to the City’s standards, to be provided either off-site or through a payment-in-lieu. These childcare facilities will meet the City’s Childcare Design Guidelines.

The developer has also agreed to provide additional childcare facilities within the trade and convention centre area for use by conventioneers. The proposed concept will allow the conversion of a meeting room on an 'as required' basis for child-minding purposes. This area will be designed with the appropriate storage, toilets, and outdoor space.

Greystone will be required to provide funding for public art, in accordance with the City’s Public Art policies, but the CWPLPS excludes contributions for convention and cruise ship facilities.

Consideration is being given to a site for a non-profit Maritime Interpretation Centre. Greystone has agreed to contribute $1 million (to be adjusted to current dollars) to the development of a Maritime Interpretation Centre, in accordance with the CWPLPS.

Greystone have proposed an employment and training program as outlined in Appendix H. Staff have reviewed their proposal and given Greystone's track record in this area, can anticipate an ongoing commitment. Further work will need to be done to set employment targets, and ensure ongoing co-ordination, implementation and monitoring processes.

An employment target of 15% of proposed hotel jobs has been targeted to Downtown Eastside residents. The balance of the opportunities have not yet set targets. Staff will work with Greystone to maximize targets for Downtown Eastside residents for all construction and operating contracts and partnerships.

Given the diversity of training organizations in the Downtown Eastside, staff encourage Greystone and its partners to provide an ongoing program of co-ordination, implementation and monitoring. In the context of the City's Downtown Eastside Strategic Action Plan, staff would anticipate City and community inclusion in such a program to maximize efforts and ensure meaningful participation and outcomes for Downtown Eastside agencies and residents."

14. Liquor Licenses

Greystone has proposed up to seven licensed restaurants, one or two cabarets (one of which would be a supper club) and a neighbourhood pub for the retail pavilion. This is in addition to licensed facilities in the adjacent hotel. Although staff has some concerns over this number of licensed facilities, staff has concluded there will be minimal impacts on housing in this location. The Police have advised that they prefer that the cabarets and neighbourhood pub be accessed from the plaza rather than the street as this will minimize the impact on policing resources because the centre’s security staff will deal with on-site security issues. Staff also note that a neighbourhood pub is not approvable under current provincial regulations due to the proximity of the Steamworks pub and the distance requirements for pubs.

Greystone has agreed that all license applications will go through the Province’s approval process for liquor licensing, including City review requirements. Issues and impacts related to liquor licenses will be assessed by City staff as part of this process.

PUBLIC COMMENTS

The key messages from the public and advisory committees have been:

·100·generally supporting the project in principle;·100

·100·addressing the impact of the project on the viability of existing low cost housing in adjacent neighbourhoods;·100

·100·improving the design of the project, particularly regarding the plaza, support for increasing the height of the hotel tower and the retention of private and public views;·100

·100·minimizing the impact on adjacent retail areas, including Gastown; ·100

·100·addressing the impact the increased distance from the CP station to the relocated SeaBus station, including particular concerns raised by the Council Committee on Disabilities; and·100

·100·providing adequate pedestrian and cycling connections and facilities.·100

Key messages are identified in Appendix I. Staff is confident that these issues have been addressed in the current submission or will be addressed prior to the Public Review Meeting.

After receiving messages through the public consultation process, comments from staff analysis and direction from Council on key issues, Greystone responded with a revised application that was submitted in September. Staff organized an open house and public meeting where City staff and the applicant outlined the major changes and responded to comments and questions.

Advisory Group Comments

The application was presented to the Bicycle Advisory Committee on October 21, 1998 and to the Disabilities Advisory Committee on October 30, 1998. Detailed comments are contained in Appendix I.

First Nations Comments

Staff requested comments from First Nations on the proposed CDA. They were also invited to the public meetings. The Musqueam Indian Band has advised that "...the Musqueam Nation is the holder of Aboriginal title in the area where this property is located. Musqueam is currently engaged in treaty negotiations with Canada and British Columbia and pending conclusion of a final treaty it would be premature for such large scale development of this property." The Band further note that Musqueam has "...adopted a policy that no Crown held land should be disposed of or alienated until we are satisfied that sufficient land has been set aside for the land component of our treaty settlement." Staff understands that the fee simple title to the subject lands will remain with the federal Crown.

Staff note that native land claims and treaty negotiations are a Federal and Provincial Government matter. However, First Nations are being consulted with regard to the proposed development. Staff also note that legal title of the Central Waterfront Port Lands is with Vancouver Port Corporation and the Federal Government has authorized Vancouver Port Corporation to lease the lands to Greystone for the proposed developments.

Greystone advise that in co-operation with the Province, there are discussions with First Nations with respect to their involvement in the project. Chief Leonard George of the Tsleil-Waututh Nation has undertaken to involve the other members of the Salish Nations (includes the Musqueam) in the discussions. Greystone reports that good progress is being made in this area.

SOCIAL IMPLICATIONS

An assessment of community impacts, including impacts on low cost housing was completed by City staff during Stages One and Two of the Trade and Convention Centre expansion program. Funding has been identified for off-site housing and recreation facilities for the adjacent community. Additional Provincial funding is also anticipated for nearby low cost housing projects. The project will meet the City’s requirements for childcare facilities.

Impacts on low cost housing, the public benefits package, a training and employment initiative for Downtown-Eastside residents, childcare, and approaches to addressing these issues currently under consideration are fully discussed in Appendix J.

Staff are concerned with the number of liquor licensed facilities proposed. While the impacts on housing in this location may be minimal, there remains the concern that increasing the availability of liquor increases health and social problems.

NEXT STEPS

Upon signing the CDA, Greystone will proceed with piling and preparing foundations for the convention centre and hotel. Development permit applications will be submitted providing further design development of building and plaza elements. Further design details for the infrastructure will also be prepared. Subdivision will be required by the City as a condition of development permit approval.

Staff will be initiating discussions with the surrounding community on the expenditure of funds identified in the public benefits package.

CONCLUSION

The proposed Portside Development offers the City significant benefits including:

·100·the provision of a new major plaza;·100

·100·substantially expanded convention facilities and an additional cruise ship berth to foster tourism;·100

·100·an extension of waterfront pedestrian and cycling connections; and·100

·100·the provision of a public benefits package, including childcare facilities, public art and funds for off-site housing and other amenities.·100

As the proposal reflects (and the CDA will secure) the policies in the CWPLPS, satisfies the conditions for City and Provincial support in Stages One and Two of the new Trade and Convention facilities review program, meets an array of public objectives with minimum negative impacts, and provides a high standard of urban design, City staff recommend its support and approval.

This report has been carefully reviewed by Greystone and the Port and where possible, their views have been incorporated. Additional comments from Greystone and the Port may be submitted prior to the Public Review Meeting.

* * * * *

APPENDIX A

The Draft Comprehensive Development Agreement will be forthcoming in a subsequent circulation which should be included as Appendix A of this report.

Design Development Conditions

There is a lack of perimeter definition for the plaza

1. RECOMMENDATIONS:

1.1Design development of the retail pavilion to create a stronger 2-3 storey north facade to better define the plaza.

Note to Applicant: Pulling back the ground floor to align with upper levels should be pursued.

1.2Introduction of a thematic perimeter weather protection system that ties together the different building elements.

The retail building does not sufficiently respond to Granville Square plaza, the Granville Street view corridor and provide linkage opportunities across Canada Place Way.

2. RECOMMENDATION:

2.1Design development to retail building to widen the gap at 2nd and 3rd storeys in response to the Granville Street view corridor.

Note to Applicant: Simplification of the overly complex geometry of this building is necessary.

2.2Design development to increase the width and day lighting of the public interior link from Canada Place Way to the plaza.

2.3Confirmation that the south-facing ground floor can structurally accept a pedestrian bridge over Canad Place Way from Granville Square Plaza should this option prove desirable in the future.

The massiveness of the footprint of Hotel/Phase 2 podium is a concern and opportunities for pedestrian access should be provided.

3. RECOMMENDATION:

3.1Design development to incorporate an inviting activated, open or skylit public link from Canada Place Way through the podium to the foot of Cambie Extension

Note to Applicant: A pedestrian street similar to the one leading to the plaza is recommended with a north easterly alignment parallel to the Canada Place axis.

The quality of the Pedestrian Experience should be improved particularly for the waterfront walkway, the hotel Porte Cochere and the hotel frontage along Canada Place Way

4. RECOMMENDATION:

4.1Design development to Waterfront Walkway in front of Convention Hall and hotel ballrooms (Phase 1 &2) to introduce more active fronting uses.

Note to Applicant: Pre-function areas along this entire length will not activate the walkway.

4.2Design development to shift the hotel Porte-cochère farther east so as to minimize vehicular intrusion on the pedestrian realm linking to the plaza.

4.3Design development to the hotel frontage along Canada Place Way to improve pedestrian interest, including provision of weather protection and active uses and elimination of blank walls and exit stairs.

The Massing of the Phase 2 Tower has impacts on north views

5. RECOMMENDATION:

5.1Design development to shift the hotel tower east to better respond to the Seymour Street end view

The use of the south side of Canada Place Way for bus parking and a garage ramp is not acceptable due to its impact on the quality of the pedestrian environment

6. RECOMMENDATION:

6.1Deletion of bus layby and garage ramp on south side of Canada Place Way to allow for "normalized" street interface with Granville Square and future development on the Marathon site.

Note to Applicant: This will generate the need for a garage ramp on the north side of C.P. Way, likely in the proposed convention centre drop-off area, that minimizes pedestrian impact. Enhancing the lower level convention centre lobby to facilitate use of the Canada Place Cruise Ship bus and taxi drop-off in the off season should be pursued.

The siting of a small sail on the Canada Place Extension compromises the existing Canada Place icon

7. RECOMMENDATION:

7.1Design development to the use and form of the proposed extension to provide a destination for pedestrians at the end of the pier that does not diminish the image of the sails.

The Quality of the pedestrian experience in the SeaBus Link needs to be improved

8. RECOMMENDATION:

8.1Design development to introduce daylight into the tunnel whenever possible as well as interior design elements including public art that enhances this underground route.

8.2Introduction of an additional escalator at the north end of the tunnel that takes pedestrians from tunnel level up to plaza level.

Functional Flexibility of Plaza Design needs to be assured

9. RECOMMENDATION:

9.1Classification of plaza design to ensure:

·100·flexibility and convertibility of plaza elements for the full range of functions and programming at various times of the year in all types of weather during day and night.·100

Note to Applicant: Details of outfittings and operational aspects for performances, special events, specific celebrations as well as casual use are needed.

The East Edge of Convention Centre, should Phase 2 not proceed, will be unattractive as proposed.

10. RECOMMENDATION:

Design development to east wall to insert windows at upper corridor level and to architecturally treat this edge to minimize its visual impact.

Note to Applicant: Condition 3.1 will also help to address this issue.

Key Messages from Public Consultation and Reviewing Agencies

Staff have completed the public consultation process consistent with that outlined in the April 17th, 1998 Council report which described the process for public input. Staff initially met with community and business leaders to inform them of the project and describe the process. Two public meeting/open houses were held in the summer which were followed by seven issue-specific focus group meetings. These focus group meetings were smaller and generated constructive dialogue on issues such as transportation, plaza design, urban design, retail/commercial impacts, employment/training, and housing.

The following describes public sessions, focus groups and meetings with community organizations that have been held to review the Comprehensive Development Agreement application from Greystone Developments:

A) Background

Consistent with the public consultation process approved by Council, staff proceeded with a preliminary meeting with community and business group leaders (June 11, attended by 30 representatives) and two large open houses and public meetings - the first was held at the Carnegie Centre on June 17 with an attendance of 150. The second was held at SFU Harbour Centre on July 2 with an attendance of 250.

Focus group meetings on specific issue areas were subsequently held in the areas of urban design (including the relationship of the development to Gastown) and plaza design, transportation, housing, employment, retail/commercial impacts and Eastlands.

Staff also attended (twice) two community group meetings - the Gastown Historic Area Planning Committee and Heritage Vancouver. A record is being kept of all public consultation and will be available to Council for the Public Review meeting.

B) Public Meetings/Open houses

The general messages from the two open houses and public meetings are summarized below.

Downtown Eastside Impacts: Concerns were raised regarding negative impact of the project on the community. Specific concern was raised about the amount of funds directed to address low income housing impacts and that the $5.366 million (1994 $’s, adjusted for inflation) approved in the Central Waterfront Port Lands Policy Statement (Public Benefits Agreement) which is earmarked for off-site social housing/and or recreational facilities is not sufficient. Also, it was suggested that the Downtown Housing Plan measures should be adopted before the Greystone project goes ahead. Concerns were raised regarding the type and number of jobs and job trainingopportunities directed to the community. There was some support for the project, including potential employment opportunities. Concerns were raised regarding loss of community access to Portside Park and the handling of dangerous goods in the railyards.

Gastown Impacts: Concerns were raised about:

·100·traffic and parking impacts in Gastown;·100

·100·the integration of the development with the surrounding community including the gap created by the railyards;·100

·100·the increased distance to the waterfront;·100

·100·the scale of development in relation to Gastown and view blockage through the site;·100

·100·the amount of retail proposed and the impact on surrounding retail. ·100

There was some support for the project, noting that if it was handled well it could be a benefit to the surrounding community.

Other Issues: There was concern about the large scale and use of the plaza. Concern was raised regarding increased distance to the relocated SeaBus terminal and worries expressed that the project might include a casino.

C) Focus Group Meetings

Transportation (July 15)

Concerns about:

·100·the increase of traffic on Water Street and connections toward Second Narrows Bridge·100

·100·the access to the water and shoreline·100

·100·pedestrian safety on the Cordova Street connector·100

·100·increased congestion in Gastown·100

·100·the number of parking spaces provided is inadequate and demands will spill-over into Gastown·100

·100·SeaBus relocation and impact on connection times to other modes of transportation·100

·100·the Cordova Connector ruins the views from the back of the harbour building·100

Plaza Design (July 16)

Concerns about:

·100·connections to Gastown important, and access from Gastown to the water’s edge·100

·100·the importance of links (eg. along the Cordova connector, with a series of plazas)·100

·100·the lack of context to rest of City and lack of sense of enclosure·100

·100·the need for urban design organizing principles·100

·100·the need to respect but not replicate historic nature of Gastown·100

·100·the need for design guidelines for Marathon site (between Cordova connector and Granville Square)·100

·100·the plaza should offer a series of experiences, and animated at the edge,. frame views and terrace down to the water·100

·100·questions/concerns about policies regarding street connections to the water and 300 foot height limit·100

·100·the plaza should include maritime and first nations themes·100

Urban Design (July 20)

·100·Overall urban design principles were not understood·100

·100·Need to understand where there may be greater flexibility in the design·100

·100·Questions about Policy Statement maximum development potential and where development should be located on the site·100

·100·Concern about longer SeaBus connection·100

·100·View corridors and building height policy may need to be amended in order to balance short and long view objectives - concern about hotel ‘wing’·100

·100·East edge of the Marathon Site should respond to public view corridors·100

·100·Concerns about traffic congestion and view impacts of pier extension·100

·100·Concern that retail pavilion component cuts off plaza from rest of City·100

Housing (July 21)

·100·Concern that too much social housing is being concentrated in the DTES·100

·100·The sense of neighbourhood in the DTES needs to be protected·100

·100·Worry about effective consultation with community·100

·100·Province has been insulated, not accessible through this process·100

·100·Needs to be a greater commitment to social family housing from all levels of government·100

·100·$5.6 million should be leveraged to maximize benefits·100

·100·Eastlands development needs to be further planned to understand how it can be successfully integrated with the surrounding community·100

·100·Crab Park should be expanded. There should be social housing in the Eastlands·100

·100·Questions about densities across the site·100

·100·Concern about the continuation of railway uses and the potential impacts·100

·100·Concern about impact on parking·100

·100·Port’s Police building should be adapted in Eastlands planning·100

Employment (July 22)

·100·Need to involve broad range of community organizations and all levels of government to be effective·100

·100·Need for training and education·100

·100·Concern about selection and testing procedure for hiring·100

·100·Need for greater attention to life skills versus education·100

·100·Need to recognize new jobs created by Greystone/Marriott programs may be achieved off-site·100

·100·Need to coordinate efforts of all agencies, groups and levels of government·100

·100·Greystone wants to be realistic about how many jobs can be created·100

·100·Greystone to identify specific types of jobs which will be created at each stage of the development·100

·100·Concern that the majority of jobs will be short-term and potential candidates will be "on-call" which will be frustrating·100

Commercial / Retail Impacts (August 5)

·100·Concerns about the impacts of large amounts of commercial and retail floor space on viability of Gastown·100

·100·Need to create synergy to help generate positive economic stimulus in the Gastown area·100

·100·Suggestion to promote tourism in other areas of the City ·100

·100·Concerns about having retail and commercial outlets that would compete directly with Gastown merchants·100

·100·Concern that there will not be enough parking for the intended uses·100

Eastlands (August 11)

·100·Greystone notes plans to proceed with Eastlands planning have been delayed·100

·100·Crab Park should be left intact ·100

·100·Eastlands should not be residential but port-related uses·100

·100·Need to recognize importance of the site and integrate with Gastown·100

·100·Should be pedestrian links to Gastown·100

·100·Site should include maritime museum·100

·100·Will there be adjacent parking?·100

·100·There needs to be an environmental plan·100

·100·Transit should be connected to the site·100

·100·20% of housing on the site should be for core-need and low-end of market·100

·100·There should be no social housing·100

·100·There should be a diversity of housing types and tenures·100

·100·The community would like to see how the $5.6 million will be allocated·100

·100·Concern about the duplication of recent consultation efforts created by Provincial process·100

·100·High density market housing should not be built on the Eastlands - it should all be park space and public amenities·100

Advice from the Urban Design Panel

July 7, 1998 Meeting

Greystone’s initial application was reviewed by the Urban Design Panel on July 7, 1998 with the panel voting (5 to 2) in support of the application but identifying some issues of concern. The main issues identified by the panel were related to the hotel massing and the massing of the phase two building, east of the hotel. The Panel also stressed the need for a much stronger definition of the plaza. Other issues related to the floating walkway and preservation of the Granville Street view corridor. As well, there was a call for a stronger sequence of physical and view elements down Granville Street to the site, and the need for a stronger element at the end of the pier.

October 7, 1998 Meeting

Greystone presented the revised application on October 7, 1998 to the panel and they voted non-support (5 - 0) for the project outlining the following key issues:

•110•plaza design needs stronger definition and architectural elements provide a sense of scale, helps to tie buildings and elements together and provide weather protection;•110

•110•concern over the hotel tower intruding into the Seymour Street View Corridor and the size and design of the hotel podium;•110

•110•the Phase II tower must fully complement the hotel tower and surroundings;•110

•110•the floating walkway at the water’s edge needs to provide better linkages;•110

•110•retail buildings and linkages provide little continuity and connection at ground level to open spaces such as the plaza and Granville Square;•110

•110•general support for narrowing the angled connection at the termination of the Cordova connection; and •110

•110•the SeaBus should be integrated better to improve the pedestrian movement through the project.•110

In general, the Panel felt the project needed to address some of its potential in terms of public amenity, i.e., the waterfront walkway, the connections to other public spaces, commuter connections and, especially, the plaza edge. The Panel approved of the increase height and slimming of the hotel tower.

After completion of this report, Greystone will be presenting an amended proposal to the Urban Design Panel on November 18th. Staff are confident that significant revisions willbe made to the proposal which respond to the Panel’s concerns and staff will advise Council of their conclusions.

Advice from the Bicycle Advisory Committee

Extract from the Minutes of the

Bicycle Advisory Committee meeting of

October 21, 1998

Cordova Connector

The Committee discussed the proposed design of the Cordova Connector, access to the Connector, and access to the SeaBus and their comments were follows:

·a member recalled a past Council motion which recommended all new streets should have a 4.3 m curb lane;

·a staff member confirmed 4.3 m was seen as the most desirable curb lane width, when practical, while 3.7 m was the minimum to be provided; he felt 4 m would have been a reasonable width in this case;

·pedestrians are being given priority; a member pointed out the economic importance of pedestrians to Gastown;

·concern was expressed over allowing parking on the Connector.

The Committee agreed on the need to express their concern with regard to the curb lane width and therefore,

RESOLVED

THAT, although the Bicycle Advisory Committee recognizes that efforts were made to allow for 3.7 metre curb lanes on the Cordova Street Connector, the Committee is very disappointed that the Cordova Street Connector does not achieve Council's policy of a 4.3 metre width for all new curb lanes built in the city.

Plaza

The Committee discussed various concerns and made the following comments:

·the need for some type of separation between cyclists and pedestrians, as well as physical indication that it's a cycling route;

·needs to be two-way for cyclists, with no dismount zones;

·7 metres seems narrow, especially if street furniture is present;

·the cycling side of the walkway should be 4 m minimum in width;

·a staff member pointed out the plaza is private property, and suggested the Committee consider recommending the City obtain rights-of-way for cyclists.

The Committee,

RESOLVED

THAT, the Bicycle Advisory Committee recommends there be a continuous, minimum four-metre-wide bicycle route, with adequate physical and visual separation between cyclists and pedestrians (such as different surface treatments), with no dismount zones, from the SeaBus Terminal, west towards the Trans Canada Trail alignment, and east to the Cordova Street Connector; and

FURTHER THAT the City of Vancouver obtain a statutory right-of-way over these routes to ensure permanent cyclist access.

Waterfront Road Greenway/Bikeway

Discussion ensued on the four options, with the Committee agreeing that option two and three were not viable. The Committee discussed pros and cons of two way bike lanes, as put forward in option 4, and agreed that, in this case, it was the best and safest solution as long as smooth connections at either end were provided. A member pointed out that those cyclists who choose to could still use the roadway. The Committee therefore,

RESOLVED

THAT the Bicycle Advisory Committee supports Option 4, as presented by Engineering Services staff, for the Waterfront Road Greenway/Bikeway, subject to a safe connection to the Coal Harbour seawall at the western end and to Eastlands at the eastern end of the loading area on Waterfront Road.

Discussion ensued with regard to bringing the Committee's concerns to Council's attention. It was agreed that Engineering staff would include the Committee's three Motions with regard to the Trade and Convention Centre development, relative to Mr. Pinsker's presentation at today's Committee meeting, in the afore-mentioned report to City Council expected in early December, under the heading "Comments of the Bicycle Advisory Committee". The Chair directed the Clerk to e-mail the Motions to Mr. Pinsker.

Advice from the Special Advisory Committee on Disability Issues

On October 29, 1998 representatives from Greystone and City staff attended a meeting to address disability issues. The key issues are listed below:

·100·members were highly concerned about the increased distance between the CP Station and the proposed relocation of the SeaBus station;·100

·100·members were not satisfied that moving sidewalks would alleviate the problems associated with the relocation of the SeaBus terminal noting that 'seeing eye animals' would not be able to use moving sidewalks safely;·100

·100·members raised concern that shuttles (similar to those at the Vancouver Airport ) are not sufficient for moving disabled individuals;·100

·100·concern about the increased distance between the terminus of Skytrain and the proposed relocation of the SeaBus terminal; and·100

·100·suggestions that there needs to be better integration of transportation services with this development.·100

Letter from Oxford Properties, on behalf of ONTREA (October 28, 1998)

In summary, this letter notes the following:

·100·The Portside development will be a welcome addition to the neighbourhood with the following issues addressed to achieve a well-integrated development and extend opportunities to adjacent property owners.·100

·100·Views: concerns raised regarding water view blockage created by the retail/commercial pavilion.·100

·100·Canada Place Way: concerns raised regarding resolution of the ‘gap’, cost sharing, bus lay-bys, replacement parking and pedestrian access from Granville Square across Canada Place Way. ·100

·100·Cordova Street Connector: concerns about a wider road reducing development opportunities on adjacent ONTREA site and utility of space below the viaduct.·100

·100·Guidelines for Marathon and CP Rail Property: concerns about City guidance on these neighbouring sites and implications for development on ONTREA sites.·100

Housing Impacts and the Public Benefits Package

The Stage 2 staff evaluation on housing has five issues. These are:

-a method for monitoring the low-income housing stock

-50 additional social housing unit allocations

-spending of the $5.366 million

-regulating the conversion and demolition of low-income housing

-considering use of hotel tax

Unlike many of the other issues in this report, the potential impact on low-income housing is more of a government concern than the developer directly. The impacts are difficult to predict definitively and we are not able to pinpoint the extent to which the convention centre, by itself, could cause changes to the low-income stock.

The first two conditions were directed to the City and Province. They are that a monitoring mechanism of low-income housing be agreed upon between the City and Province, and that the regular annual investments in social housing in the Downtown Core be increased by 50 units per year above the 100 currently required. Discussions have been held with the Trade and Convention Centre Community Impacts Team that has been contracted by the Ministry of Employment and Investment through their Community Development Unit. The Team intends to issue a report on community issues including housing, in November. It is expected that the report will go to both the Minister and the public and an official Provincial response to those recommendations will follow. The report will contain recommendations on these two conditions as well as other matters. However, without having seen the report, we do not know what it will contain and what the Province’s official position might be in the end.

Regarding a monitoring mechanism, since 1994 the Housing Centre has produced a report every two years on the changing stock of low-income housing in the downtown. It is based on data collected by staff and has received wide-spread acceptance. We are hopeful that the Province will agree that this continue to be the monitoring mechanism. As suggested in the draft Housing Plan, and likely to be supported by the Province, there is an additional need to obtain information on the people who live in downtown low-income housing.

Regarding the increase in annual allocation, we are hopeful that the Province will respond favourably to the recommendation for 50 additional units.

The third condition regarding the City working with the community to determine how the $5.366 million should be spent will be acted on closer to the time when the funds are received, the first installment of which is expected early next summer.

The fourth condition relates to better City regulation of the conversion and demolition of low-income housing. The City has commissioned a study of the financial and economic implications of SRO conversion which will soon be completed and available for public comment. Staff are also preparing a policy report on whether and how controls could be used.

The last condition relates to using a portion of the hotel tax to fund social housing. The Province has not yet addressed this issue and will likely do so after the report from the Community Impacts Team. However, how the Province choses to find the funds for social housing is not of direct concern to the City. The City’s main interest is in the number of new social housing units.

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