CD-1 Text Amendment - 705 West Broadway

Supports Item No. 3
P&E Agenda
November 4, 1999

POLICY REPORT
DEVELOPMENT AND BUILDING

Date: October 20, 1999

Author/Local: Rob Whitlock/873-7814

RTS No.: 01008

CC File No.: 5303

P&E Date: November 4, 1999

TO: Standing Committee of Planning and Environment

FROM: Director of Current Planning

SUBJECT: CD-1 Text Amendment - 705 West Broadway [Holiday Inn]

RECOMMENDATION

A. THAT the application by Chuck Brook, Brook Development Planning Inc., to amend the text of CD-1[358] By-law No. 7648 for 705 West Broadway (Holiday Inn) (Lot A, Block 338, DL 526, Plan 11309) to permit expansion of hotel use plus limited residential use, be REFUSED.

CONSIDERATION

B. THAT the application by Chuck Brook, Brook Development Planning Inc., to amend the text of CD-1[358] By-law No. 7648 for 705 West Broadway (Holiday Inn) (Lot A, Block 338, DL 526, Plan 11309) to permit expansion of hotel use plus limited residential use, be processed in the normal manner.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A.

COUNCIL POLICY

Interim City-wide CAC Policy, approved by Council on January 28, 1999.

Central Broadway C-3A Urban Design Guidelines, adopted by Council March 23, 1976 (as amended up to September 10, 1996).

Central Area Plan, approved by Council December 3, 1991.
PURPOSE AND SUMMARY

This report assesses an application to amend the existing CD-1 for 705 West Broadway to allow an existing hotel to expand into floor space previously approved for residential use which was intended to replace an existing parking lot.

Staff recommend that the application be refused, for the following reasons:

· the site already has a commercial density in excess of other adjoining C-3A sites; and

· the residential density approved with the 1996 rezoning to CD-1 more specifically responds to the residential setting which exists to the east, west and north of the site on West 8^th Avenue.

map

DISCUSSION

History: The Holiday Inn was approved in 1972 with a density calculated at 3.36 FSR on the site extending from West Broadway to West 8^th Avenue. The northerly portion of the site fronting West 8^th Avenue was developed with surface parking surplus to the needs of the hotel. At the time, the C-3 zoning on the West Broadway frontage permitted a maximum FSR of 5.0, and the C-2 zoning on West 8^th Avenue permitted 3.0 FSR. The hotel achieved its current density by utilizing development potential from both parts of the site but with all the development on the West Broadway portion of the site. In 1975 the C-2 and C-3 Districts along the Broadway corridor became C-3A with a maximum permitted FSR of 3.0,making the existing hotel legally non-conforming with respect to FSR.

In 1996, a rezoning application was submitted by this applicant to change the zoning on the site from C-3A to CD-1 to increase the overall FSR from 3.36 to 4.47 FSR. The proposal was to divide the site, with the hotel on the south portion [Site A on the map] and redevelop the parking lot on the north portion of the site with a multiple dwelling along with community space [Site B on the map]. Staff questioned the apparent lack of rationale for the extra density and sought direction from Council prior to processing the application. Council directed staff to set aside the density issue and the application was assessed only against issues of use and built form.

Staff supported the application because it was felt that a stepped four-storey multiple dwelling and community space would benefit the residential neighbourhood from an urban design point of view, while providing desirable residential accommodation and provision of an indoor space for community activities. It would also eliminate the unattractive parking lot.

Use: The Central Area Plan and the Urban Design Guidelines for Central Broadway C-3A encourage hotels which, coupled with night life activities such as clubs, restaurants and pubs, add vitality to both the CBD and the "Uptown" office district of Central Broadway. Consequently the existing Holiday Inn and the excess FSR approved in 1996 is supportable in the context of commercial uses fronting West Broadway.

While the Central Area Plan adopted in 1991 puts particular focus on office use and hotels, the Central Broadway guidelines stipulate that "where a development extends all the way from Broadway to 8^th Avenue, the 8^th Avenue portion of the development should be approximately 50% residential". Properties immediately east and west of the 8^th Avenue portion of the site are both developed with 100% residential. The residential context provided by these two sites plus the residentially-developed FM-1 sites on the north side of 8^th Avenue formed the basis for support of the 1996 CD-1 rezoning of the subject site. The residential use and density are still seen to be appropriate. The significant hotel expansion onto the 8^th Avenue portion of the site is not supported because of anticipated further intrusion of a commercial use, night activity, tour bus circulation and other neighbourhood impacts on the surrounding apartments and townhouses.

Density: Prior to the 1996 rezoning to CD-1, the overall FSR was 3.36, or 0.36 more than would be permitted for any use under C-3A. The current CD-1 provides an overall FSR of 4.47, of which 6.0 FSR for hotel use is apportioned to the West Broadway portion of the site (Site A), and 2.50 FSR for multiple dwelling and community space uses is apportioned to the West 8^th Avenue portion (Site B). The additional density is limited to residential and community use, with no additions permitted to the existing hotel.

The proposed density would not change from that already approved. However, the hotel use would be permitted to expand an additional 0.90 FSR with the remaining 0.21 FSR in residential and community use (based on the whole site). While the rationale for the extra density over that achievable under the previous C-3A rezoning was to provide an opportunity for housing and community space, there is no rationale and no public benefit in permitting the bulk of the approved residential density to be used for hotel.

In assessing applications to increase commercial floor area, staff consider whether existing commercial capacity is fully utilized in the area and whether population growth or other factors indicate the need to provide more commercial capacity. Because there are underdeveloped properties on West Broadway, C-3A is not at capacity and there is no public interest or need to increase commercial capacity as proposed with this application.

There is no case for utilizing the approved residential density for any form of commercial use, including hotel, on this site that already used up its commercial potential under its previous zoning. It should be noted that the CD-1 By-law to the west of this site, which permitted the configuration of a significant retail/office building on Broadway, limits the overall FSR to 3.0 - consistent with C-3A zoning.

Public Benefit: Given that the existing CD-1 already secures the community space in a future building on this site, there is no recognized public benefit to the current proposal to increase hotel use. Rather, there is a disbenefit in the loss of housing units. Furthermore, in accordance with the Interim City-wide CAC Policy, there would be no CAC payable because there is no proposed increase in floor area.

CONCLUSION

Staff believe that the underlying principles related to the 1996 CD-1 rezoning of this site and the area context do not support the text amendment application for the following reasons:

1. the basis for 1996 rezoning was a priority need to create housing which would re-enforce the existing residential development to the east, west and north;
2. the overall site already contains commercial development at 3.37 FSR, or 0.37 FSR greater than can be achieved under C-3A. This request would increase the commercial capacity on this site to an effective 4.26 FSR -- it is seen as a further benefit just to this owner that would not be available to any other C-3A property owner; and
3. there is no recognized public benefit to the proposal.

For these reasons, the Director of Current Planning recommends that the application to amend the CD-1 be refused.

* * * * *

APPENDIX A
Page 1 of 2

ADDITIONAL INFORMATION

Site and Surrounding Development: The existing CD-1 is divided into Site A and Site B.

· Site A has frontage along West Broadway of 60.93 m (200 ft.), a depth along the abutting Heather Street of 43.7 m (142.5 feet) and an area of 2 741 m² (29,501 sq. ft.). The by-law permits a number of commercial uses including hotel, consistent with the previous C-3A zoning.

· Site B has a frontage along West 8^th Avenue of 70.1 m (230 ft.), a depth along the abutting Heather Street of 32.5 m (106.5 ft.), and a site area of 2 176 m (23,424 sq. ft.). The by-law allows residential and community room uses.

Adjoining frontages along West Broadway are developed commercially. Frontages along West 8^th Avenue to the east, west and north are entirely developed with residential apartments and townhouses.

Proposed Development: The following is a breakdown of proposed uses on Site B within the existing CD-1:

· 80 hotel rooms and conference facilities, 4 404 m² (47,407 sq. ft.);
· 9 townhouses on West 8^th Avenue, 706.6 m² (7,639 sq. ft.); and
· a multi-purpose community space, 242 m² (2,600 sq. ft.).

The proposed FSR for the additional floor area remains unchanged from the approved in the previous rezoning, however, with the following adjustment in the allocation of FSR on Site B:

Use

Existing CD-1 [Site B]

Proposed CD-1 [Site B]

Residential

2.35 FSR

0.32 FSR

Hotel

Not permitted

2.02 FSR

Community Use

0.15 FSR

0.15 FSR

APPENDIX A
Page 2 of 2

Public Notice: No notification has taken place pending Council's consideration of this report. The applicant has submitted petition forms and a letter from the Fairview Slopes Residents' Association in support of the proposal. Should Council approve B, staff will notify the neighbourhood and the applicant will be required to erect a rezoning sign.

Comments of the Applicant: Please see Appendix B.

APPLICANT, PROPERTY, AND DEVELOPMENT PROPOSAL INFORMATION

APPLICANT AND PROPERTY INFORMATION

Street Address

705 West Broadway [700 West 8^th Avenue]

Legal Description

Lot A, Blk. 338, DL526, Plan 11309

Applicant

Chuck Brook, Brook Development Planning Inc.

Architect

Davidson Yuen Simpson, Architects

Property Owner

Beacons Field Holdings Ltd. [Inc. No. 352638]

Developer

[Not Identified]

SITE STATISTICS

GROSS

DEDICATIONS

NET

SITE AREA

4 917 m²

None

4 917 m²

DEVELOPMENT STATISTICS

DEVELOPMENT PERMITTED UNDER EXISTING ZONING

PROPOSED DEVELOPMENT

ZONING

CD-1

CD-1 Amended

USES

Commercial/Residential

Same

MAX. FLOOR SPACE RATIO

Site A: 6.0 Commercial
Site B: 2.35 Residential
0.15 Community

Total: 4.47

Site A: Same

Site B: 2.02 Hotel

0.32 Residential
0.15 Community

Total: Same

MAXIMUM HEIGHT

Site A: 50.0 m
Site B: 18.0 m

NOTE FROM CLERK: Electronic copy of Appendices B and C are not available - on file in the Office of the City Clerk.

same

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	Date: October 20, 1999
	Author/Local: Rob Whitlock/873-7814
	RTS No.: 01008
	CC File No.: 5303

Use	Existing CD-1 [Site B]	Proposed CD-1 [Site B]
Residential	2.35 FSR	0.32 FSR
Hotel	Not permitted	2.02 FSR
Community Use	0.15 FSR	0.15 FSR

Street Address	705 West Broadway [700 West 8^th Avenue]
Legal Description	Lot A, Blk. 338, DL526, Plan 11309
Applicant	Chuck Brook, Brook Development Planning Inc.
Architect	Davidson Yuen Simpson, Architects
Property Owner	Beacons Field Holdings Ltd. [Inc. No. 352638]
Developer	[Not Identified]

	GROSS	DEDICATIONS	NET
SITE AREA	4 917 m²	None	4 917 m²

	DEVELOPMENT PERMITTED UNDER EXISTING ZONING	PROPOSED DEVELOPMENT
ZONING	CD-1	CD-1 Amended
USES	Commercial/Residential	Same
MAX. FLOOR SPACE RATIO	Site A: 6.0 Commercial Site B: 2.35 Residential 0.15 Community Total: 4.47	Site A: Same Site B: 2.02 Hotel 0.32 Residential 0.15 Community Total: Same
MAXIMUM HEIGHT	Site A: 50.0 m Site B: 18.0 m NOTE FROM CLERK: Electronic copy of Appendices B and C are not available - on file in the Office of the City Clerk.	same