Agenda Index City of Vancouver

POLICY REPORT
DEVELOPMENT AND BUILDING

TO:

Standing Committee on Planning and Environment

FROM:

Director of Current Planning

SUBJECT:

599 Columbia Street (DE404462) - Proposed Pagoda/Teahouse

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

There is no approved policy applicable to this proposal.

PURPOSE AND SUMMARY

This report reviews a recently-submitted development application (DE404462) by Joe Wai Architects for a 7-storey pagoda structure with a commercial teahouse at ground level (see Appendix A) located on the Dr. Sun Yat-Sen Park site (City-owned) in Chinatown.

Council is asked for its support in principle of the proposal, noting that the proposed height of approximately 105 ft. exceeds the maximum permitted (65 ft.) in the HA-1 District Schedule. Approval of this height would necessitate use by the Development Permit Board of Section 3.2.4 of the Zoning and Development By-law, the "hardship" clause, to relax the maximum height provisions of the HA-1 zoning.

SITE DESCRIPTION AND BACKGROUND

The proposal is located at the south-east corner of the Dr. Sun Yat-Sen Park adjacent to Columbia and Keefer Streets. To the north is the recently completed museum component of the Chinese Cultural Centre, and the east entrance gate to the park. To the east across Columbia Street is the 6-storey Chinatown Parking Facility, completed in 1995. To the south across Keefer Street are the playing fields of Andy Livingstone Park.

The site is a provincially-designated heritage property and is zoned HA-1 (Chinatown Historic Area). The zoning permits a variety of commercial and residential uses, and has a maximum building height of 15.3 m (50 ft.), which can be increased by the Development Permit Board up to a maximum of 20 m (65 ft.).

The proposal involves the construction of a 7-storey 32.4 m (106 ft.) pagoda structure, with a small, approximately 140 m² (1,500 sq. ft.), commercial teahouse at grade level. Elevator access is proposed to be provided to a public viewing platform on the 7th storey level. An anonymous donor has offered to fund the entire estimated construction cost of $1.25 million for the pagoda. In a separate development application, the Dr. Sun Yat-Sen Garden Society is also planning a small expansion of the existing gift shop area at the west side of the site.

Simplified plans, including a site plan, floor plans, elevations and a perspective view of the pagoda proposal are attached as Appendix A.

These two proposals for improvements to the Dr. Sun Yat-Sen Park, including a pagoda/teahouse were presented to the Vancouver Park Board on July 19, 1999 (see abridged Park Board report attached as Appendix B). At that meeting, the Board passed the following motion:

On September 1, 1999, the City received a complete development application (DE 404462) from Joe Wai Architects for the pagoda proposal. This application is currently scheduled for consideration by the Development Permit Board in late November. While staff have identified some concerns with the development proposal, particularly its interface with the public realm at grade level, these can be dealt with through the development application.

DISCUSSION

Compliance with approved zoning and guidelines:

While the proposal is consistent with and augments the unique Chinese character of the park, it is significantly over the maximum height limit of 20 m (65 ft.) stipulated in the HA-1 zoning that can be permitted without special relaxation by the Development Permit Board. Although the site could be rezoned CD-1 to allow a higher maximum height, the applicant and staff do not favour this option because of the precedent it would set and the lengthy time period for approval. The Board, however, does have the ability to relax the height under the "hardship" provision of Section 3.2.4 of the Zoning and Development By-law.

Section 3.2.4 of the Zoning and Development By-law contains the following:

For this proposal, staff believe it is appropriate for the Board to consider a height relaxation because:

· it is a public facility located within a Chinese style park and is compatible with its traditional design motifs and contextual buildings;

· it is a "landmark" type of structure with a very small floorplate and with a much smaller scale than a typical multi-storey commercial building;

· it does not affect any public views;

· it provides a public viewing opportunity, with elevator access for the physically challenged; and

· it will enhance the public enjoyment of and viability of the park and integrated Chinese Garden.

URBAN DESIGN PANEL

The Urban Design Panel reviewed this application on September 22, 1999, and expressed unanimous support. The UDP minutes are attached as Appendix C.

PUBLIC REVIEW

The Chinatown Historic Area Planning Committee (CHAPC) reviewed the proposal on Tuesday, September 14, 1999. The Committee unanimously endorsed the proposal, as noted in the following resolution:

There was also a general public information meeting held September 27, 1999 at the Dr. Sun Yat-Sen Classical Garden. About 10 people from the local community attended this meeting, and did not express any concerns.

CONCLUSION

Staff believe a pagoda/teahouse proposal as submitted by Joe Wai Architects under DE404462 will further complement the special character of the Dr. Sun Yat-Sen Park and provide an attractive landmark for the Chinatown area. Staff will be recommending to the Development Permit Board that a height relaxation be granted under Section 3.2.4 of the Zoning and Development By-law.

The Park Board has endorsed the project, and a public review process has indicated broad community support for the proposal. Council's opinion on the project will assist the Development Permit Board in its consideration of the development application submitted for the proposal.

NOTE FROM CLERK: Appendix A is not available in electronic form - hard copy is on file in the Office of the City Clerk.

EXTRACTS FROM STAFF REPORT ON THE
PAGODA PROPOSAL FOR THE DR. SUN YAT-SEN PARK
CONSIDERED BY THE BOARD OF PARKS AND
RECREATION ON JULY 19, 1999

BACKGROUND

The Sun Yat-Sen Classical Chinese Garden is the first authentic classical Chinese garden built outside China. It was built in 1985 and 1986 on City owned land using 52 craftsmen from Suzhou, China. The cost of the Garden was $6 million and was funded through all levels of government as well as private donations.

The Garden currently receives 100,000 visitors a year and is among the top ten tourist attractions in Vancouver. It is also a cultural link between the Chinese and non-Chinese communities both within and outside Vancouver. Active programming at the Garden includes volunteer led tours, musical performances, art exhibits, horticultural displays, poetry readings, lectures and the celebration of Chinese festivals.

The Dr. Sun Yat-Sen Garden Society of Vancouver is a non-profit society with a mandate to operate the Garden. It currently has a membership of about 450 who each year elect a Board of Trustees to oversee the affairs of the Garden.

DISCUSSION

1. The Pagoda

An anonymous donor has proposed to donate the entire construction cost to build a seven storey pagoda in the public park adjacent to the Classical Garden. It would be modeled after a long-standing original in Chuan Zhou, Fujian Province in China.

It is believed the pagoda, with an estimated cost of $1.25 million would be a desirable addition to the park, Chinatown and Vancouver in general. The original park plan envisaged a tea house in this location, but funding shortages resulted in its deletion. The architect, Mr Joe Wai, is proposing to build the pagoda with reinforced concrete and steel decking and fibreglass panels for the walls and eaves. In devising the design much attention will be paid to maintenance concerns from staff and the fact that any new building in our parks requires ongoing care and attention.

It is believed that a Memorandum of Understanding on the maintenance of the pagoda is required so that both the Board and the Society are clear on their responsibilities in the future. The donor is also concerned that the structure be adequately maintained and further discussions will take place on a satisfactory M.O.U.

The Society is willing to manage the operation and admissions to the pagoda, which will have an observation deck on the top floor. Again, further discussions will take place on this issue, but it is feasible that admission tickets could be sold as part of the Classical Garden entry fee from the existing cashiers in the Garden.

SUMMARY

The Dr. Sun Yat-Sen Society is bringing forward two exciting proposals at this time that will enhance the existing park and Classical Garden.

The pagoda proposal is the result of a very generous donation to the citizens of Vancouver. It is believed that outstanding concerns about ongoing maintenance can be resolved successfully through a Memorandum of Understanding between the Board and Garden Society.

The Classical Gardens expansion is an assortment of improvements that have been long discussed by the trustees of the Gardens. It has the potential of creating an ongoing revenue base - largely through rentals - which will assist in covering the Garden operating costs. A successful fundraising campaign is now needed in order to carry out the projects outlined in this report.

As planning goes forward on these additions staff and the Society will work out an overall maintenance funding agreement which will be brought to the Board early next year.

NOTE FROM CLERK: Appendix C is not available in electronic form - hard copy is on file in the Office of the City Clerk.

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