Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

 

Date: November 24, 1998

 

Author/Local: LChallis/7135

 

LU & D No. 97033

 

RTS No. 371

 

CC File No. 5308

TO: Vancouver City Council

FROM: Director of Central Area Planning on behalf of Land Use and Development

SUBJECT: CD-1 Text Amendment: 5605 Victoria Drive

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Relevant Council Policies for this site include:

· Kensington-Cedar Cottage Community Vision, adopted July 21, 1998.
· C-2 Residential Guidelines, adopted November 2, 1993.

PURPOSE AND SUMMARY

This report assesses an application to permit additional development on this site which until recently included a large, vacant retail store (former Safeway) and some surface parking. The retail store has been demolished and would be rebuilt in accordance with the existing CD-1 zoning. The proposed amendment would increase the floor space ratio from 0.30 to 1.39 to allow the addition of:

· a 4-storey, 80-unit residential building fronting on East 41st Avenue with the upper 3 storeys extending over the roof of the large retail store (proposed London Drugs);
· a 303.6 m² (3,268 sq. ft.) addition to the large retail store;
· two 2-storey commercial buildings along Victoria Drive; and
· a 2-level parkade on the northwest portion of the site.

Staff support the proposal which will strengthen the focus of the East 41st Avenue and Victoria Drive commercial area, as well as provide additional housing which would generally conform to the requirements for residential development in the adjacent C-2 (Commercial) District. As public benefits, the applicant would provide space in one of the new commercial buildings for a community policing centre and a small kiosk along Victoria Drive for use by the South Vancouver Neighbourhood House (SVNH).

The proposal originally included retention and renovation of the retail store, and the site planning and assessment of the application was based on this constraint. Now, almost all of the building has been demolished in error, rendering the site technically vacant. A similar new building, built to structurally accommodate residential above, would take its place. Because the redevelopment scheme is generally acceptable following several revisions, and also because the developer is committed to providing a building for London Drugs, staff continue to support the rezoning.

Staff recommend that the application be referred to a Public Hearing, with a recommendation that it be approved subject to conditions.

map

DISCUSSION

Background: The site includes two individual parcels separated by a City lane. Prior to 1970, the westerly parcel was zoned RS-1 and the easterly parcel was zoned C-2 and occupied by a small Safeway store. In 1970, the westerly parcel was rezoned to C-2 with Council’s stated intent being to allow the Safeway store to be expanded and relocated there. The original site became the Safeway parking lot.

In 1996, the Safeway store closed and staff began to receive enquiries about redeveloping the site. Staff were concerned about the potential scale and impact of redevelopment on the adjacent residential area and believed that redevelopment to maximum C-2 potential was not consistent with Council’s original intent of rezoning the westerly lot, and recommended a rezoning to protect the public interest.

Council agreed and, in March 1997, the entire site was rezoned to CD-1 with the development potential limited to the density of the former Safeway store (0.30 FSR) and all uses permitted in C-2, except multiple dwelling. At the time, it was recognized that this was likely an “interim” zoning and it was anticipated that a future rezoning for the site would either propose a comprehensive redevelopment scheme or be guided by the Kensington Cedar-Cottage Community Vision.

The current rezoning application proposed retention and renovation of the large retail store and the analysis of the proposal was done on that basis. Staff recognized that the large retail store constrained the site’s redevelopment potential. In mid-November, staff learned that the store had been demolished in error but that the applicant wished to rebuild the store and continue with the proposed redevelopment of the site.

Presently, a development application is being processed to rebuild the former Safeway building as a London Drugs store.

Comprehensive Development Scheme: The applicant has proposed a scheme that retains significant elements of the site (a large retail store and surface parking) which constrain the form and location of additional development that can be accommodated. The proposal attempts to build onto the site by covering some of the surface parking areas (a 4-storey residential building along East 41st Avenue, two small commercial buildings along the surface parking area on Victoria Drive, and a parkade structure along the northern boundary) and extending a 3-storey residential building with a linear courtyard above a reconstructed retail store. Staff encouraged the applicant to provide a more comprehensive, long-term scheme for the site, but the applicant feels that due to the long-term lease arrangements with London Drugs, the current proposal meets that objective.

Kensington-Cedar Cottage Community Visioning: The KCC Community Vision, adopted by Council July 21, 1998, provides direction for the future development of the shopping area that includes this site. This rezoning application was made prior to the completion of the Vision, and originally was constrained by the proposal to reuse the existing building and front parking. On that basis, the development was felt to respond to the Vision in the following ways:

· strengthens the area as a major neighbourhood shopping area (London Drugs and other additional retail);
· retains a significant amount of parking for local commercial uses;
· improves pedestrian comfort and appearance (additional planting, benches, and other improvements around the surface parking area);
· enhances community services (community policing centre and SVNH kiosk);
· provides more variety in the type of housing in mixed use developments (apartments, townhouses and ground-oriented units); and
· contributes to greening on private sites.

While the current proposal is to reconstruct, rather than retain, the existing building for London Drugs use, staff’s evaluation of the proposal with respect to the KCC Vision remains the same. Staff note, however, that options that might have been pursued on a vacant site, unconstrained by the existing building, could have gone considerably further in Vision directions--particularly with respect to strengthening shopping along the street and providing housing variety.

Additional conditions of development (Appendix B) are recommended to ensure that the proposal is a positive addition to the community and meets the approved Vision directions as much as possible.

Use: All uses proposed for this site are consistent with the uses permitted in the CD-1 By-law.

Density: Under the site’s former C-2 zoning, a maximum density of 3.00 FSR could have been approved for commercial development or a maximum of 2.50 FSR could have been approved for a mixed residential and commercial development, if underground parking was provided for the whole development. The proposed density of 1.39 FSR is significantly less, because the commercial component is provided with surface and above-grade parking which reduce the amount of density that the site can accommodate. Given the split of underground and above-grade parking and other urban design considerations such as compatibility with the C-2 strip and neighbourhood fit, staff find this density acceptable for the development being proposed.

Form of Development: The applicant proposes to accommodate about half of the residential use on the site by building over a reconstructed retail building and the form of development for the residential use is therefore guided by the “C-2 Residential Guidelines”. The Guidelines are intended to encourage housing that “. . . is compatible with commercial uses and with adjacent developments, maintains livability, and achieves an appropriate form and character in terms of the street, the neighbourhood and the overall city”.

The proposed form of residential development generally meets the intent of the guidelines related to livability, streetscape quality, neighbourliness and safety and security. Although not sought by the guidelines, the larger proposed units, including 29 two-storey units, can accommodate families with children. The proposal also incorporates generous private patios and semi-private (common) courtyards which contribute to livability. Although the 17.4 m (57 ft.) height exceeds the 12.2 m (40 ft.) outright height in C-2, the highest part of the development is along the lane which separates the two portions of the site, therefore staff are satisfied the scale of the project is not excessive within the C-2 context of Victoria Drive. Along the westerly lane and adjacent the RS-1S zone, the building height is significantly less, ranging between 11.3 m and 14.0 m (37-46 ft.), as shown in Appendix E.

In terms of setbacks from the neighbouring RS-1S zone to the west, the residential component exceeds those called for in the guidelines. The retention of existing mature trees and incorporation of extensive new landscaping further buffers this sensitive interface.

Because the reconstruction of the large retail store is treated as new construction, opportunities exist for further design development. This could include improved treatment of the westerly facade and additional landscaping.

Parking and Traffic: Parking is proposed in excess of the requirements of the Parking By-law to ensure that this commercial centre is well-served by off-street parking and to minimize the parking and traffic impacts on the adjacent residential streets. Vehicle access to the site from Victoria Drive has been reduced from two to one entry point which will reduce conflicts between pedestrian and vehicle traffic. Design conditions are recommended (Appendix B) to ensure that the surface parking area receives high quality landscape and paving treatment to provide a plaza-like feeling and meet Vision directions.

Public Benefits: Normally, an economic analysis of the proposed rezoning would be undertaken to indicate whether the increased profit accruing from the proposed rezoning would justify a community amenity contribution. Staff have not undertaken this process because the site’s current low density (0.30 FSR) resulted from a City initiated downzoning and because the density proposed by the current rezoning is still significantly less than the permitted density under the C-2 zoning that previously applied to the site.

The applicant has however proposed two public benefits - the first is approximately 150 m² (1,600 sq. ft.) of finished office space on two levels (ground and 2nd floor) for a community policing centre (CPC). The proposed CPC contributes to the objective of the KCC Community Vision which specifically calls for strengthening community crime prevention efforts and extending them into more areas of KCC. The Vision also notes that funding stability is needed. The Vancouver Police Department supports a CPC at this location and the Community Crime Prevention Office which is presently located in an existing storefront at 6707 Fraser Street is interested in relocating.

The applicant proposes to provide the space rent-free for a term of up to 15 years, with the tenant being responsible for common area operating costs and taxes. These terms and costs are still under discussion, due to the projected high operating costs for the space. Should Council refer this application, staff will provide further advice at a Public Hearing with respect to conditions of approval.

The second public benefit is a small kiosk which would be located along Victoria Drive. It has been offered to the South Vancouver Neighbourhood House which would operate the kiosk for training and fund-raising purposes.

CONCLUSION

Staff support the proposed rezoning which addresses some of the objectives of the KCC Community Vision, including strengthening the 41st Avenue and Victoria Drive commercial centre, has been designed to minimize impacts on the adjacent residential area and offers public benefits of a community policing centre and a kiosk. Staff recommend that the application be referred to a Public Hearing, and approved, subject to the proposed conditions presented in Appendix B.

DRAFT AMENDMENTS TO CD-1 BY-LAW NO. 7715

1. Amend section 3.1, Floor Space Ratio, by deleting the figure “0.30” and replacing with the figure “1.39”.

2. Amend section 4 by renumbering section 4 to 8 and inserting the following new sections 4, 5, 6 and 7:

PROPOSED CONDITIONS OF APPROVAL

(a) THAT the proposed form of development be approved by Council in principle, generally as prepared by James KM Cheng Architects Inc., and stamped "Received City Planning Department, September 8, 1998”, 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:

(c) THAT, prior to enactment of the CD-1 By-law, the registered owner shall, at no cost to the City:

ADDITIONAL INFORMATION

Site, Surrounding Zoning and Development: The site includes two legal parcels with a total area of 9 364 m² (100,792 sq.ft.) which are separated by a City lane. The easterly parcel has a frontage of 69.7 m (129 ft.) along Victoria Drive and a depth of approximately 38.0 m (125 ft.). The westerly parcel has a frontage of approximately 138.4 m (454 ft.) along the City lane and a depth ranging between 41.0 to 50.0 m (135 to 164 ft.). The southern property line of this parcel faces 41st Avenue. The site slopes down from south to north by about 1.8 m (6 ft.).

The site is presently vacant. Until recently it was occupied by a large retail store (former Safeway) which is to be reconstructed for reuse as a London Drugs store. The remainder of the site provides surface parking.

North, south and west of the site is zoned RS-1S and is developed with older one-family dwellings, some with secondary suites. A small church is located immediately west on 41st Avenue. Properties along Victoria Drive are zoned C-2. Southeast of the site, at the corner of 41st and Victoria is a small commercial building. North and east of the site along Victoria Drive are a lumberyard and 1- and 2-storey commercial buildings.

Proposed Development: The proposed rezoning would allow redevelopment of the site with reconstruction of a large retail store and some surface parking. A 4-storey residential building is proposed on the portion of the site that abuts 41st Avenue. The upper 3-storeys of this building would extend over the London Drugs store. The residential development would include 80 dwelling units and 103 underground parking spaces for residents. Three townhouse units are included with ground-level access from 41st Avenue. Twenty-six 2-storey townhouse units are included in the extension over London Drugs with access from a central linear courtyard.

Also proposed on the site are two small (2-storey) commercial buildings which would be located adjacent to the surface parking area that fronts onto Victoria Drive. The applicant is including space [approximately 150 m² (1,600 sq.ft.)] in one of the commercial buildings for a community policing centre and a small kiosk on Victoria Drive for use by the South Vancouver Neighbourhood House. High quality landscaping and paving are proposed for the surface parking area which would provide 59 parking spaces for the commercial uses and could be used as a gathering place for community-based events. Special paving treatment is also proposed for the lane running through the site.

A 2-level open-air parkade is proposed for the northwest portion of the site to provide 75 additional parking spaces for the commercial uses.

Environmental and Social Implications: The proposed text amendments contribute to the objective of reducing atmospheric pollution by increasing housing on a site that is well-served by both transit and local services. The proposed community policing centre and kiosk are both positive social contributions. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements.

COMMENTS FROM THE PUBLIC, REVIEWING AGENCIES
AND THE APPLICANT

Public Input: A notification letter was sent to 783 nearby property owners on April 6, 1998, and a rezoning information sign was posted on the site on April 8, 1998. Staff received 8 telephone calls, 3 letters and 2 petitions (a total of 187 signatures). One caller supported the proposal. The remainder of the calls, letters and petitions were concerned about:

· the height and density of the residential building;
· the potential parking impacts from the commercial uses;
· the loss of commercial space and parking area to residential use;
· the suitability of the site for residential use (noisy, pollution);
· safety and security; and
· the proposal’s relationship to the KCC Community Vision for this site.

The owner of the adjacent lumberyard was also concerned about loss of access to his parking lot from Victoria Drive. Staff have determined that there is no legal requirement to provide access through the former Safeway parking lot to the site and consider the access from the lane as adequate.

On July 21, 1998, a second letter was sent to nearby property owners to notify them that the proposed height of the project had been reduced. Staff received 2 telephone calls and 2 letters of opposition with concerns about the impacts on neighbours (traffic, parking, views and privacy). The organizer for one of the petitions noted above (18 signatures) confirmed the previous concerns about using commercial land for residential use.

Comments of the City Engineer: The City Engineer 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 two occasions. At the first review on April 22, 1998, the Panel was unable to support the application due to the following specific concerns:

· the residential addition over London Drugs presented livability issues related to the units adjacency to the tar and gravel roof;
· the landscaping needed significant improvement and many more trees, especially to create a Granville Island-like atmosphere around the Victoria Drive parking area;
· the site needed a higher quality pedestrian environment; and
· the lane needed higher quality treatment to recognize its important role as a secondary street in the community.

At the second review on July 15, 1998, the Panel reviewed the revised proposal and offered the following comments:

“The Panel responded very positively to the changes that have been made to the project and unanimously supported the application. In particular it was felt that distributing the massing over the entire roof of the London Drugs store was a significant improvement, resulting in some very livable units. There may be a couple of units whose outlook may be somewhat tight, but it was noted that the units themselves are very handsome. The reduction in height from 6 to 4 storeys was supported.

A number of comments were made about the linear courtyard. There was some confusion in that the width of the courtyard appears to be quite adequate in section whereas the model seems to indicate that it will be very dark and constricted. Further design development to the courtyard was strongly recommended to make it work. It was suggested that the projecting third floor exterior walkway could be a contributing factor.

The Panel strongly endorsed the lowering of the London Drugs canopy and urged that everything possible be done to play down the typical London Drugs imagery to achieve a more harmonious fit with the residential.

The Panel strongly supported the proposed paving treatment. Given its importance to this project as a unifying device and as a response to the neighbourhood vision statement, the Panel expressed the hope that it will also receive the full support of the Engineering Department.

The Panel had no concerns about the setbacks along the lane.

There may be an opportunity to introduce some landscape vines and trellises on the parkade deck next to the residential-retail mix which would help to soften both the overlook from the neighbouring properties and from the residential units themselves.”

Comments of the Applicant: The applicant has been provided with a copy of this report and has provided the following comments:

"We have reviewed the Policy Report, dated November 24, 1998 and we concur with the proposed Conditions of Approval outlined in Appendix B of the report."

APPENDIX F

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

5605 Victoria Drive

Legal Description

Lots 1 & 2, South Half of District Lot 707, Plan 13918

Applicant/Architect

James KM Cheng Architects Inc.

Property Owner

Abbey Woods Development Ltd.

Developer

Westbank Projects Corp.

SITE STATISTICS

 

GROSS

DEDICATIONS

NET

SITE AREA

9 364 m² (100,792 sq.ft.)

---

9 364 m² (100,792 sq.ft.)

DEVELOPMENT STATISTICS

 

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

RECOMMENDED
DEVELOPMENT
(if different than proposed)

ZONING

CD-1

CD-1 (Amended)

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USES

Dwelling, Office, Retail, Service

Dwelling, Office, Retail, Service

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MAXIMUM FLOOR SPACE RATIO

0.30 FSR

1.39 FSR

---

MAXIMUM HEIGHT

Per existing
form of development

17.4 m (57 ft.)

---

PARKING SPACES

Per Parking By-law

134 - commercial spaces
103 - residential spaces

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ag981208.htm

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