Copy 2 Vancouver. Planning Department. Mi seel 1aneous. Planning Department. City of Vancouver January Planning Department LIBRARY

Transcription

1 986 Copy 2 Vancouver. Planning Department Mi seel aneous L L/k Planning Department City of Vancouver January 986 City of Vancouver Planning Department LIBRARY

2 TABLE OF CONTENTS Page INTRODUCTION DESCRIPTION OF THE COMMERCIAL AREAS Overview Davie Village Denman/Davie Robson Georgia/Alberni PLANNING ANALYSIS AND ISSUES 7 3. Development Control Amount and Distribution of Commercial Space Roles of the Commercial Areas Character of the Retail/Service Areas 25 OBJECTIVES Amount and Distribution of Commercial Space Roles and Characters of the Commercial Areas 29 POLICIES 3 5. General Commercial Area Policies West End Retail/Service Areas Robson Mixed Use Area Georgia/Alberni Area 43 IMPLEMENTATION 45 APPENDIX Existing Commercial Areas Policies, Regulations 5 and Guidelines and Proposed Changes 7.2 Current Uses in Retail/Service Areas 56

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4 INTRODUCTION City Council in October 984 authorized a planning program for the West End. The objectives of this program were to: (a) review the policies, plans, and guidelines adopted by Council in the past and formulate new ones as desirable; (b) define and address current West End issues; and (c) improve development control for clarity, consistency, and ease of administration. To date the following reports have been completed: West End Planning Program: Issues and Work Program which outlines current issues and a work program to address many of them and West End Information Report which provides background data, chronologies, and current planning policies as a reference package. This report is about the commercial areas of the West End. It includes information, objectives, policies and implementation steps to guide the future of these areas. It does not address commercial activities within the residential areas of the West End which are minor and not proposed to be expanded. Nor does it address commercial development along the Burrard Street boundary of the West End. The former will be considered as part of future residential reports scheduled for 986. The latter is addressed by the Downtown District Official Development Plan. The relationship of the residential area to the Burrard corridor will be considered in the residential reports. The policies, regulations and guidelines presently controlling development are contained in Appendix 7.. Adoption of this report by Council will lead to policy, regulation, and guideline changes and public improvements and services to: (a) improve local retail/service areas along Davie, Denman and a portion of Robson Street; (b) improve a mixed use area along a portion of Robson Street; (c) develop a use/design plan with a residential emphasis for the Georgia/Alberni area; and (d) replace a portion of the West End Official Development Plan with District Schedules in the Zoning and Development Bylaw. This report is organized into six sections. This, the first section, introduces the plan. Section 2 describes the commercial areas from an overall perspective and as individual character areas. Section 3 outlines the planning issues. Section 4 sets out objectives to provide direction to the future of the commercial areas. Section 5 describes policies to realize the objectives. Finally, Section 6 outlines an implementation strategy to achieve the policies. This report was prepared by the Planning Department in consultation with the Social Planning and Engineering Departments and West End residents, property owners, and merchants.

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6 georgia/alberni -a;!robson 5] n DAVIE VILLAGE m^x? mmmmm/rr HGL/SH denman/davie =] c=] c==:] Commercial Areas 0 ( Map No.

7 7 2 DESCRIPTION OF THE COMMERCIAL AREAS 2. OVERVIEW The commercial areas consist of four character areas as shown on Map : Davie Village, Denman/Davie, Robson, and Georgia/A!berni. These areas were defined based upon their locations, current character, and the roles which they play. In addition, the Jervis to Burrard section of Robson Street, commonly referred to as "Robsonstrasse", serves West Enders. The longest walking distance from a residence to a shopping area is approximately 300 feet (one-quarter mile) which is convenient for most people. To gain an understanding of the amount of retail space in the West End, it may be compared on a per capita basis with the entire G.V.R.D. Retail floor area for the G.V.R.D. includes all levels of retail from tourist through regional to local. The West End retail floor area, on the other hand, includes only local level retail plus uses such as restaurants shared with non-residents. Therefore, accommodating per capita retail space in the West End equal to the G.V.R.D. would provide ample retail space to serve the West End. The existing amount of retail space in the West End is approximately,265,200 square feet or thirty-four square feet per person. This compares with forty-three square feet per person in the G.V.R.D. The existing West End commercial areas, excluding the Georgia/Alberni Area, can accommodate,730,700 sq. ft. of commercial space or forty-three square feet per person based upon a population of 40,000. If the downtown portion of Robson Street, which is within walking distance for West End shoppers, is considered this potential rises to 2,80,300 sq. ft. or fifty-four square feet per person. The West End, therefore, has ample commercial capacity and room for expansion to serve its population based upon the existing floor space per capita within the G.V.R.D. With the exception of Denman Place Mall, commercial development is in strip patterns along major roads. The City of Toronto Planning and Development Department report Support for Retail Strips: General Policy Proposals describes the characteristics of retail strips as follows: "Retail strips are the City's traditional shopping districts - the rows of stores and shops that are threaded throughout the City, lining many of its major streets. The strip is an old retail form which developed before the automobile was widely used for shopping trips. People walked to stores or took the streetcar. The retail strip's physical form reflects the importance of pedestrian access. Buildings are narrow, and little open space separates them from the sidewalk or their neighbours. The ground floor businesses usually have doors and display windows along the sidewalk. The strips developed as a result of many individual decisions and, in this sense, are "unplanned". There is no central control or management of the shopping environment other than that afforded by the city government. Most of the businesses in retail strips are independently owned as opposed to being members of corporate chains. The store sizes tend to be small.

8 8 Most retail strips lie adjacent to residential neighbourhoods. They are the neighbourhoods' traditional centres for shopping activity, and serve as meeting places and community service centres. Therefore, the amenity of the city's residential neighbourhoods is very much affected by what goes on in the retail strips. The physical form and appearance of the strips and the activities that locate in them all influence neighbourhood life." This description of characteristics s applicable to much of the West End commercial area although variances occur particularily along a portion of Robson Street and in the Georgia/Alberni area. The four commercial character areas are described in the following sections. 2.2 DAVIE VILLAGE Davie Village is located at the crest of the hill which rises from Sunset Beach, making access for the elderly or handicapped difficult from the south. The commercial area itself is relatively flat. The area is surrounded on three sides by apartment development of varying height with a greater concentration of taller buildings to the south, down the slope. To the north and east St. Paul's Hospital and low scale commercial development extend along Burrard Street. To the west is a three block residential strip along Davie between this area and the Denman/Davie commercial area. Davie Village character. In this report the cardinal directions are used as is typically done by residents, e.g. "West of Denman", even though the street pattern is 45 to the cardinal axis.

9 This area is primarily a retail/service area for local residents offering a range of shops and services. It also contains general business offices and entertainment, facilities, particularly at its eastern end adjacent to downtown. Dominating single uses are a twenty-two storey hotel, a supermarket, and a set back suburban style commercial plaza. The most prevalent use in the area is restaurants which represent 24.5 percent of the shops and services. A listing of shops and services is in Appendix 7.2. The predominant building height is two storeys although, in addition to the hotel, there is a six storey and a twenty-four storey residential building. Davie Village Land Use EM3 Residential ^^ Office uto/parking Map No. 2 The pedestrian character of this area is generally weak. There are significant gaps in pedestrian interest caused by long blank facades, parking areas, and office uses. Weather protection is minimal. Pedestrian volumes decrease east of Thurlow. Signalized crossings of Davie exist at Burrard, Thurlow, and Bute which facilitate pedestrian crossings. The subdivision pattern is varied with parcel widths ranging from thirty-three feet to a full block. A number of parcels front the side streets intersecting Davie which creates commercial frontages on these streets. This pattern creates parking, loading, and garbage container locating problems and, to some degree, reduces shopping continuity along Davie Street.

10 0 Map No. 3 Davie Subdivision Village Bumuimrr st Davie Street has had a seedy image, particularly prior to the injunction against street soliciting. The image of the area appears to be improving with the movement of the prostitutes to other areas of the city. The general population appears more comfortable in the area and tends to dilute problem elements. There continues, however, to be some people in the vicinity of the liquor store on Bute at Davie whose behaviour or appearance is disturbing to others. Concerns about panhandling., aggressive behaviour, litter, and loitering have been expressed. As there have been recent activities to improve Granville Mall, residents have expressed concern that some undesirable retail uses and their associated clientele may shift to Davie Village. 2.3 DENMAN/DAVIE The Denman/Davie area includes Denman Street from English Bay to Robson Street and the two western blocks of Davie Street. Denman Street character

11 The highest point of the area is around the community centre. From there the land slopes north, affording views towards Coal Harbour and the North Shore mountains. The slope south to English Bay is more gentle. Shoppers approach the areas predominantly from the east and west along relatively flat terrain. To the east, west, and south of the area are apartment buildings of varying height. A greater concentration of taller buildings is found to the west and south taking advantage of the views of Stanley Park and English Bay. To the north are the Georgia/Alberni and Robson areas which are discussed in the next sections. The Gabriola (Hy's Mansion) is located immediately east of this commercial area. The area is near the recreational areas of Stanley Park and English Bay which draw many people to the vicinity. The area provides primarily a retail/service function for local residents, although it also contains a 280-room and 9-room hotel and shops and food outlets which cater to the beach and park trade. A prevalent land use in the area is small restaurants (twenty-one percent of shops and services). However, a broad range of shops and services is also available including three supermarkets (see Appendix 7.2). Communitjy Centre & School SHotei imall Denman/Davie Land Use Residential ^M Office I Auto/Parking Map No. 4

12 2 The predominant building form is one and two storeys with small shops oriented to the street. Significant exceptions are the hotels, supermarkets, and residential towers on the south side of Davie. The pedestrian character and activity of the area is mixed. The south side of Davie with its residential, gas station and supermarket development has little pedestrian interest. The pedestrian activity is most intense along Denman between Barclay and Davie, particularly in the summer when the sidewalks act as a promenade. Traffic signals exist at Davie, Nelson, Haro and Robson. Crosswalks exist at all other intersections. The subdivision pattern and the shallow (66 ft.) depth of commercial zoning are deterrents to new development along Denman Street. The lack of a lane to the rear of commercial properties creates service access, parking access, and garbage container location problems. These difficulties are particularly acute for parcels or shops which do not flank a street or lane. Iff i j i! Denman/Davie Subdivision Map No. 5

13 3 2.4 ROBSON The Robson Area is relatively flat between Denman and Cardero where it begins to rise seventy feet to Jervis. Cardero also marks a functional change along Robson between essentially a local shopping character to the west and a mixed use character (offices, hotels, retail, residential and restaurants) to the east. To the south is the central residential area of the West End. Although high rises exist in this area, the greatest proportion of buildings are four storeys or less. The grades along the north-south streets leading from the residential area to Robson are flat affording easy access. To the north is the Georgia/Alberni area described in the following section and downtown. To the east is the most active retail area of Robson-- Robsonstrasse. The section of the area between Denman and Cardero performs primarily a retail/service function for the local community. The area contains a supermarket, liquor store and public market as well as numerous small shops and services (see Appendix 7.2). As with the Davie Village and Denman/Davie areas, restaurants are a prevalent use (twenty percent of shops and services). The Robson Office of the Health Department is also located here to serve West End residents. The section of the area between Cardero and Jervis performs a mixed role without a strong local neighbourhood character. Hotels, offices, and restaurants predominate although smaller shops and residential uses do exist. Robson Street east of Broughton Buildings in the Denman-Cardero section are generally low with shop fronts facing the street. Significant exceptions are two residential buildings of nine and twenty-two storeys. Buildings in the Cardero-Jervis section vary significantly in height and density and provide no visual coherence.

14 4 sr Robson Land Use fhh Residential [Office Retail I Auto/Parking dl Vacant Map No. 6 The pedestrian character of the Denman-Cardero section is fairly strong. However significant gaps in pedestrian interest exist caused by surface parking, supermarket, and gas station uses. Weather protection is also discontinuous. Jhe pedestrian character of the Cardero-Jervis section is weak. Pedestrian elements of visual interest, landscaping, and uses and buildings with a pedestrian orientation are limited. The subdivision pattern of the entire area is similar to the Davie Village area with parcel widths varying from thirty-three feet to nearly a full block. Some parcels front the side streets which intersect Robson but most of these are consolidated as single development sites. Thus the pattern neither presents special opportunities nor detriments to development. I nm\_m =fl III IHIHIIII Illl E Robson Subdivision Map No. 7

15 5 2.5 GEORGIA/ALBERNI The Georgia/Alberni Area slopes gently north to the city's most important, prestigious and ceremonial street Georgia Street. The area has been called an "emerging area" one which has not yet developed but has great potential. The area is surrounded by great variety of land use and form. To the north is Devonian Harbour Park, the Bayshore Inn, the marinas of Coal Harbour and views of Burrard Inlet and the North Shore mountains beyond. To the east is the Downtown office area which additionally contains a number of significant residential buildings. To the south is the Robson retail area and the residential area south of Albemi Street. To the west is Stanley Park. Georgia Street vacant sites The area is characterized by a preponderance of vacant sites and older underdeveloped one or two storey buildings containing what appears to be relatively interim footloose retail uses. These conditions indicate there is significant potential for redevelopment throughout the area. The City recently purchased the motor vehicle testing station site. B.C. Hydro owns and is currently marketing approximately 3/4 of the block to the south across Alberni. These sites present significant development opportunities. The most dominant new developments in the area of a permanent nature are three prestigious high rise residential buildings on the south side of Alberni. In summary this area presents the greatest opportunity for redevelopment of all the commercial areas and, in fact, of all the West End.

16 6 I I I I ITOO iaoo GEORGIA ST /I iiiiiiiiiiiiiiiiiiimiimiiimmiiii j J...L ROBSON ST Georgia Alberni Land Use IHI Residential H=li Of f ice lauto/parking CZIvacant Map No. 8 GEORGIA ST irih""mumuuhuiiiitullimuuuutuuiui»miiiiiiimiiiiiiimiiuulullluiuiiiiuiiiiiiiiimwiuiuuiiiiiiiiiitllluiiuiuiiiiiiiiiiiim ST n 8 I UMIIIII! IIHUI UillllHI u ROBSON ST Georgia Alberni Subdivision Map No. 9

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18 9 3 PLANNING ANALYSIS AND ISSUES 3. DEVELOPMENT CONTROL The round of discussion and reports generated by the review of the City's development control process and local concerns expressed about the approval of Burger King Restaurant on Denman Street point out a desire for greater clarity in development regulations and guidelines. This desire is shared by community residents, developers and architects, and City Council and staff. The work involved has been termed "review and rationalization". It includes: clarifying and standardizing development control documents; updating policies, regulations and guidelines; minimizing the need for discretion in the review of developments where appropriate; minimizing the amount of regulations. The West End planning proposals and means of implementation contained herein have been developed with this objective in mind. Burger King restaurant on Denman

19 AMOUNT AND DISTRIBUTION OF COMMERCIAL SPACE A fundamental decision is required as to the appropriate amount of commercial space potential for the West End. Should an amount surplus to West End residents' needs be provided to serve a regional market or should space be balanced with local area needs? Section 2 describes the current distribution and roles of the commercial areas of the West End and shows that they are well distributed to serve the community each residential area being within easy walking distance of a shopping area. Section 2 also notes that the existing zoned potential for retail space is more than adequate to serve the population of the West End and that there is some room for growth through redevelopment. Because the commercial areas are well distributed and adequate in floor space to serve the West End population, commercial expansion, either through density increases or land area increases would require drawing upon a larger market than the West End community. While people from other communities currently use the West End shops and services and vice versa, providing more commercial space, out of balance with the local population, would increase non-local traffic and exacerbate an already difficult parking problem. On the other hand more commercial space could yield more choice for West End residents and the regional market. While we recognize that people from throughout the region will use some of the West End's shops and services, we believe the commercial potential should not be increased to depend upon a regional market. The negative impacts would outweigh benefits. Ample opportunities for region serving retail development exist nearby in Downtown. While we do not support commercial expansion, two areas occasionally suggested for expansion are the three block residential area on Davie Street between the Davie Village and Denman/Davie commercial areas and an increased depth of commercial zoning along Denman Street. In addition to the reasons outlined above, these expansions are undesirable because both areas contain valuable housing stock and the age and condition of much of the housing is such that redevelopment would be slow. This slow pace would yield a difficult transition period with a discontinuous retail pattern which is disruptive to residents and undesirable for merchants. Reasons supporting such expansions are the difficulty of developing along Denman, partially due to the shallow parcel depth, and the acoustical challenges posed for residential development along Davie Street. Other solutions for Denman are suggested in Section 5. The residential reports which will follow this commercial areas plan will address residential development on major streets.

20 2 Davie Street apartments east of Denman 3.3 ROLES OF THE COMMERCIAL AREAS As described in Section 2 and noted below, the commercial areas of the West End presently have varying primary roles: Davie Village: local serving retail/services Denman/Davie: Robson: local serving retail/services (with some regional use, particularily by beach and park users) Denman to Cardero: local serving retail/services Cardero to Jervis: mixed use (hotel, restaurant, office) Georgia/Alberni: undefined, underdeveloped with no strong role: an emerging area Each of these areas also have secondary roles including residential, hotel, and entertainment functions, but the roles noted above are clearly dominant. They evolved in response to site and area-specific opportunities. The appropriate future roles of these areas are analyzed on the following pages.

21 Retail/Service Areas The local serving retail/service roles of Davie Village, Denman/Davie and the western portion of Robson should be maintained and reinforced for the following reasons: they are well distributed to serve the residential areas; the market appears responsive to building for this use; the alternative commercial options of large region serving commercial uses, hotels, and general and administrative offices are inappropriate due to traffic and parking demand generation; other uses would reduce the amount of land available for local serving commercial uses, possibly to an amount below that needed to serve the community; other uses interspersed with pedestrian oriented shops and services would disrupt the pedestrian continuity reducing the attractiveness of these areas for shoppers; in the case of the western portion of Robson, a local retail/service role was recently affirmed by City Council when adopting the Character Area Descriptions. It would be undesirable if the three retail /service areas specialized to the extent that they exclude desirable goods and services. In particular, convenience goods and services such as groceries, personal toiletries, banking, shoe repair, hair cutting, film processing, laundry and dry cleaning, should be available to residents in each of the areas. Residents require easy access to such goods and services in order to satisfy their basic personal and household needs. Presently the three retail/service areas are well distributed and provide the needed goods and services. Concern has been raised by some residents that the range of commercial uses is being threatened by the number of restaurants outbidding other uses for commercial space. Twenty to twenty-four percent of the shops and services in each of the areas are restaurants. Many of these serve a broader than local market, in particular, along Denman Street, the beach and park visitors. Review of the lists of shops and services contained in Appendix 7.2 suggests a wide range continues to be found in the three areas with these percentages of restaurants. While it is not possible to require uneconomic uses to remain, it may be possible to limit the number of restaurants by placing a ceiling on the percentage of a given commercial frontage which may be occupied by restaurants (San Francisco uses twenty-five percent in some districts). Setting aside legal, administrative and property owner concerns which may arise, such a ceiling is not proposed at this stage because restaurants do not appear to be excluding other desirable goods and services. On the other hand, over time this could become a concern. We therefore intend to monitor the range of uses and report with suggested actions if legitmate concerns do arise.

22 23 The essential character of the retail service areas should be maintained by encouraging uses which are compatible in scale and type with the areas in which they are located. However, they also should be allowed to evolve over time in response to changes in the neighbourhoods they serve and changes in consumer tastes and preferences. Our approach is not to steer the areas in particular directions but rather to provide opportunities for a broad range of uses while at the same time excluding noxious or disruptive uses Robson Mixed Use Area As noted, the role of the Robson area between Cardero and Jervis is mixed. It acts as a transitional area between the West End and Downtown in terms of density and land use. The area does not have a strong local neighbourhood character evident in built form or land use. Given the current state of development with substantial non-retail buildings, many of which are well over the currently allowable density, requiring the continuous ground floor street related retail expected in the retail/ service areas does not seem practical or desirable. As suggested in the recently approved Character Area Descriptions document, the area would best continue to develop with a mixed use character having particular regard, with land use and design, to compatibility with the residential community to the south and pedestrian interest along Robson Street Georgia/Alberni Area Presently the Georgia/Alberni area is of indeterminate character. The preponderence of vacant sites, older one or two storey buildings, and footloose uses indicate that the area is underdeveloped with significant potential for redevelopment. Traffic and public realm development issues including the Chilco bus loop, park roadway realignment, the connection of Georgia to Alberni, and the street landscaping concept are yet to be resolved which makes a detailed development concept difficult to propose. The Official Development Plan designates this area as 'C'and 'CH' permitting hotels and a range of "small-scale commercial uses catering primarily to the needs of West End residents" in addition to residential uses. Non-local commercial uses such as general and administrative offices are not permitted. No hotels have been developed. Retailing in this area is divorced from the West End residential areas and is surplus to the community's retail space requirements. The retailing activity which does occur fronting Georgia Street tends to have a commuter rather than a West End orientation. Opportunities for residential development in this area have been considered for a number of years. The Greening Downtown study suggested a significant residential component would be suited to this area. The Character Area Descriptions which arose from extensive committee analysis of this study also suggested a residential component. The predominant new buildings in this area are high quality, high rise residential. Current floor space ratio and units/acre maxima coupled with a lack of interest in commercial development in this area have yielded yery large suite sizes in these buildings.

23 24 The high level of amenity in this area, inherent compatibility with existing residential use, residential development interest, and general oversupply of commercial space combine to make residential development of the Seorgia/Alberni area an attractive option. The major impediment to residential development is existing and potential traffic impacts. Because the major traffic and public realm design issues are unresolved at this time and because the potential for a significant residential component in this area needs further exploration (particularily in light of Council's preference for a connection of Georgia to Alberni at Chilco Street) analysis of this area will be continued and reported concurrently with the residential component of the West End Program in 986. Residential development on Alberni Street

24 CHARACTER OF THE RETAIL/SERVICE AREAS The primary role of each of the retail/service areas is to provide neighbourhood servicing goods and services. To achieve this function while reducing the need for automobile use and increasing the convenience and comfort of shopping, the pedestrian orientation of these areas should be maintained and enhanced. Building design and public improvements should contribute to this orientation through an overall urban design concept. Variances among the areas' characters' will evolve due to their varying locations, localized markets, subdivision patterns and existing development. Presently, as noted in Section 2 there are numerous gaps in pedestrian interest and weather protection. Other aspects of importance to the convenience, pleasantness, and success of these areas are: parking which suits local demand, efficient shop servicing (loading, garbage storage and pickup), public realm improvements, litter containers and clean up, and building design considerations to achieve compatibility with nearby residences, suitable street scale, sunlight access and view retention. An additional issue affecting the comfort of these areas frequently raised is concern about panhandling, aggressive behavior, and loitering. In addition to issues which are common to the local retail/service areas, the character areas have specific issues as noted below. Davie Village Reinforcing the local retail/service role and image through building design and public improvements is particularly important. The area is on the edge of Downtown, lacks a strong identity, and could easily become just another Downtown commercial street. The relationship of development along Davie Street to that on Burrard Street at Davie requires study to achieve scale and pedestrian compatibility. Commercial frontages along side streets which intersect Davie Street require consideration related to servicing, appearance, parking, and shopping continuity. Robson-Denman to Cardero Pedestrian continuity is particularly weak in this area. Penman/Davie This area is in the heart of the West End and has a feeling distinct from the Downtown. It is a focus of community activity containing the community centre, library, high school, and two movie theatres. While not diminishing the importance of serving general community needs, secondary use orientation can evolve to serve seniors who form a sizable portion of local residents and beach and park users. Parking, loading, garbage storage and residential interface issues caused by the subdivision pattern, depth of commercial development and lack of lanes parallel to Denman Street require resolution.

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26 29 4 OBJECTIVES The following Objectives have been established to form the basis for development and improvements in the West End commercial areas. The Objectives respond to the existing area characters and issues described in Sections 2 and AMOUNT AND DISTRIBUTION OF COMMERCIAL SPACE 4.. To maintain a commercial space potential which is in balance with the size of the current West End population and allows modest opportunity for growth to accommodate changing population size and consumer trends To maintain a distribution of commercial space such that each residence is within a comfortable walking distance of a retail/service area. 4.2 ROLES AND CHARACTERS OF THE COMMERCIAL AREAS 4.2. To maintain and strengthen the local retail/service roles of Davie Village, Denman/Davie, and the Denman to Cardero section of Robson by developing quality, pedestrian oriented urban design characters and maintaining a broad range of goods and services To maintain and strengthen the mixed use role of the Robson Area between Cardero and Jervis, having particular regard, with land use and design, to compatibility with the residential neighbourhood to the south and pedestrian interest along Robson Street To emphasize residential development, view retention, the dominant prestigious, ceremonial image and character of Georgia Street, and the other development objectives outlined in the Georgia Street Character Area Description in the Georgia/Alberni area. (Note: The residential emphasis noted in this objective will vary with the location of the future Georgia/Alberni connection. However, residential opportunities will be maximized based upon the constraints and opportunities afforded by each option.)

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28 32 ENGLISH BA Y D Policy Areas A Retail/Service B Mixed Use C Georgia/Alberni (.00 Map No. 0

29 33 5 POLICIES The following Policies are based upon the Objectives listed in Section 4 and provide specific guidance with respect to development, improvements and services in the West End commercial areas shown on Map 0. These Policies supercede the currently approved policies listed in Section 7..2 of the Appendix. They are organized into four sections: 5. General Commercial Area Policies 5.2 West End Retail/Service Areas 5.3 Robson Mixed Use Area 5.4 Georgia/A!berni Area 5. GENERAL COMMERCIAL AREA POLICIES The Policies in this section apply to all the West End commercial areas except Georgia/Alberni which is subject to the separate review of Policy They are intended to provide an appropriate amount and distribution of commercial space, complementary ancillary services, residential development opportunities, and needed public improvements and programs. Policy 5.. Maintain the existing extent and density of commercial development potential. Implementation: Do not change in new zoning district schedules. Discussion: The current amount of commercial development potential is ample to serve the present needs of the West End and provides reasonable opportunity for growth. Increasing this potential would require drawing upon a larger market than that which exists in the West End thereby increasing non-local traffic and exacerbating an already difficult parking problem. While increasing the potential may also increase consumer choice, we believe the negative effects outweigh possible benefits.

30 34 Policy 5..2 Maintain the existing distribution of local serving retail/service areas. Implementation: Develop zoning boundaries corresponding to the existing commercial area designation. Discussion: The current distribution of local retail/service areas, which is shown on Map 0, is such that each resident is within one-quarter mile of a residential area which is a comfortable walking distance for most people. Policy 5..3 Encourage residential development which, through its design, density and location, is compatible with commercial uses and surrounding residential development. Implementation: Include opportunities for residential development in the new zoning district schedules. Discussion: The commercial areas already contain a significant number of residences. This opportunity should be continued. A mixed commercial/residential character makes retail areas more diverse and active and strengthens their social and community functions. Residential use also increases street surveillance and safety. In the local retail/service areas residential use is not desirable at grade fronting the shopping streets because it interferes with the continuity of shopping. In those areas it is proposed for the upper floors. Regulations and guidelines would be developed to achieve acceptable livability standards and compatibility with commercial development. Policy 5..4 Require efficient and unobtrusive ancillary commercial facilities including garbage storage, parking, loading, and mechanical venting. Implementation: Include appropriate regulations in new zoning district schedules. Discussion: It is these ancillary commercial facilities which can have the greatest negative impact on nearby residents. These facilities are generally located at the rear or sides of commercial buildings overlooked from residences. The zoning district schedules will include standards governing the location and screening of garbage containers. The development standards of parking and loading facilities will be achieved through Section 2 of the Zoning and Development Bylaw. Standards of mechanical venting will be reviewed with the Health Department to achieve a suitable standard to reduce noxious odours. Screening of rooftop mechanical equipment will be controlled by the new zoning district schedules.

31 35 Policy 5..5 Improve the safety, attractiveness and pedestrian orientation of the public realm through an overall urban design and maintenance program which includes: (a) providing attractive and strategically located litter receptacles. (b) encouraging merchants to help keep the streets clean and if necessary promoting increased street cleaning services, as is done in certain other commercial areas of the city. (c) increasing sidewalk width by eliminating difficult to maintain boulevards. (d) reviewing potential for landscaping in boulevard areas where it would not conflict with on-street parking or traffic safety. (e) filling gaps in street tree planting along Robson and Davie Streets. Implementation: Request the City Engineer and the Director of Planning to report back within three months on the cost, feasibility and method of achieving these projects. Discussion: Public realm urban design improvements and maintenance should be undertaken to achieve a strong, attractive physical identity and to complement the standards expected of private development. In public meetings the maintenance and cleaning of the streets and sidewalks was a frequently raised concern. An additional concern raised is the appearance of lanes which intersect Denman Street. The design and location of litter receptacles will be assessed. Street cleaning programs will be discussed with merchants. Davie Village public realm

32 WEST END RETAIL/SERVICE AREAS In addition to the Policies listed in Section 5., the following Policies apply to the retail/service areas shown on the map below. ENGLISH BAY West End Retail/Service Areas Map No. These Policies are intended to encourage a local serving, pedestrian orientation for these areas and improve their interfaces with the nearby residential areas. Together with the Policies of Section 5., they achieve Objective 4.2..

33 37 Policy 5.2. Provide for a range of retail and service uses catering to the needs of the West End and compatible with its primarily residential character. Implementation: Include appropriate uses in new zoning district schedule and exclude uses which are incompatible with the area's residential character. Include frontage regulations to control shop size. Discussion: The current criterion for judging the suitability of a commercial use is that the use must "cater primarily to the needs of West End residents". This causes problems. A population of close to 40,000 needs virtually ewery commercial use, yet some of these uses are clearly problematic and are better located in non-residential areas. On the other hand, some uses, such as specialty shops, need a larger market than 40,000 people. Such shops are not soley "local serving" yet they can be perfectly compatible with the local shopping areas in terms of scale, form, pedestrian interest, and parking and traffic generation. Therefore, the local/non local serving distinction is not a practical means to assess the appropriateness of a use. The following principles will be used in drafting the regulations and guidelines controlling uses in the local retail/service areas: (a) The size of shop or service should generally fit the local market, recognizing that small specialty shops may serve a larger area and individual uses may vary in size (a supermarket may require a larger floor area than a shoe repair shop in order to serve the same market area). Shop sizes will be controlled in most cases by a maximum frontage requirements (current guideline is twenty-five feet). Any desirable exceptions (e.g. supermarkets, gas stations) can be specified in the zoning schedule or guidelines. (b) Some uses are objectionable or inappropriate in a residential area and should be specifically excluded in the zoning schedule, for example, drive-in restaurants and the sale or rent of sex-oriented products. The current regulations prohibiting the sale of sex-oriented products was quashed by the Court of Appeal. The Legal Department is exploring alternatives and proposes to report on these later this year.

34 38 Policy Maintain and enhance the pedestrian orientation of the retail/service areas through an urban design concept which: (a) limits shop front widths for most uses; (b) provides pedestrian interest to any wide shop frontages through display windows, planting, facade articulation, etc.; (c) requires continuous retail/service use at grade fronting the shopping streets; (d) locates auto-oriented facilities to minimize pedestrian interference; (e) achieves continuous but individualized weather protection along shop fronts; (f) establishes building height limits which allow sunlight access to opposite sidewalks at noon on the equinox, preserves important public and private views, and achieves a suitable street scale. Implementation: Include provisions in new zoning district schedule and guidelines. Discussion: The intent of these proposals is to improve the convenience, comfort, and interest of these areas for the pedestrian. These proposals are currently achieved with guidelines. Where practical they will be incorporated in the new district schedule as regulations. Policy Improve the commercial/residential interface and access to parking, loading, and garbage storage along Denman Street where there is not an intervening lane by: (a) encouraging site consolidation with adjacent residential properties for mixed use development; (b) encouraging site consolidation along Denman Street between streets and lanes which intersect Denman to achieve lane access for each shop for servicing and parking. Implementation: Reference to concerns with small sites would be made in the zoning district schedule or guidelines. Negotiations to encourage consolidation would be undertaken because redevelopment of small sites would require relaxation of parking, loading and garbage container locating requirements.

35 39 Discussion: The lack of a lane behind commercial development on both sides of Denman Street creates problems for loading, garbage storage, and parking access. This is especially acute for properties without flankages on a street or lane as shown on Diagram A. Street Street Street I c CO c o Q c 03 E I c CO c o Q Lane r Lane B Lane r It is not practical to create lanes parallel to Denman Street. The commercial properties are too shallow to dedicate and retain reasonable development potential. There is no incentive for residential properties to dedicate. Purchase of residential properties would be very costly for the benefit achieved. The most practical means to achieve efficient servicing and parking is through consolidation as shown on Diagrams B and C. Consolidation Option B is preferred because the residential/commercial interface can be handled on the one development site. However, this is practicable on only three of sixteen sites due to recent or substantial adjacent residential development. If Option B were achieved, the commercial floor space would be calculated on the currently designated commercial area (i.e. one lot depth off Denman). Variety and pedestrian interest would.continue to be achieved through the provisons of Policy , that is, even though the site is consolidated, small individualized shop frontages would be developed along Denman. Consolidations similar to Option C currently exist in four of the sixteen sites with an additional three subdivided sites currently in common ownership. On consolidated sites, parking and servicing can occur from the lane. As in Option B, variety and pedestrian interest would be achieved through the provisions of Policy In all of the above situations, there is no increase in the existing commercial FSR potential, nor is there an 'expansion of commercial uses into the residential area.

36 40 Policy Encourage consolidations of corner properties along Davie and Robson Streets to provide parking* loading and garbage storage access for properties which currently have no lane access. Implementation: Reference to concerns with small sites would be made in the zoning district schedule or guidelines. Negotiations to encourage consolidation would be undertaken because redevelopment of small sites would require relaxation of parking, loading and garbage container locating requirements. Discussion: The subdivision pattern shown below exists in a number of instances along Davie and Denman Streets. Shopping Street Lane Residential The pattern creates servicing problems for those lots without lane access. With consolidation achieved and the primary commercial frontage focussed on the shopping street, the treatment of the flanking elevation on the side street becomes important. Opportunities arise for display windows, outdoor seating areas (with secondary access to restaurant or cafe) and other features of pedestrian interest. Screening and/or landscaping of the rear yard service and parking areas is very important.

37 4 5.3 ROBSON MIXED USE AREA In addition to the Policies listed in Section 5., the following Policies apply to the Robson Mixed Use Area shown on the map below. I C^T3 Map No. 2 Together with the Policies of Section 5., these Policies are intended to achieve Objective Policy 5.3. Provide for a density and range of uses which achieves a transition between the West End and Downtown having particular regard to the interface with the residential area to the south. Such uses would include, in addition to those permitted in the retail/services areas, hotels, general offices, and residential as a principal use. Implementation: Include provisions in new zoning district schedule and guidelines. Discussion: This area provides a transition in density, and mix of uses between the West End and Downtown. It also is a linkage along Robson Street between the Robsonstrasse area and the Robson retail/service area proposed to the west. Given the current state of development with several hotels and offices it does not seem feasible or desirable to require continuous street-related retail uses, although such uses should certainly be permitted. Offices and residential buildings are additional suitable uses in keeping with the area's transitional role and current use mix. Design regulations and guidelines will be established to achieve compatibility with the residential area to the south and pedestrian interest along Robson Street. While hotels are an acceptable transitional use between the residential area and Downtown, ancillary facilities such as large beer parlours cause disruption in the abutting neighbourhood and should be excluded.

38 42 Policy Provide pedestrian Interest at street level by: (a) restricting auto-oriented facilities (b) achieving continuous but Individualized weather. protection (c) applying the "Street Definition and Visual Interest" and "Pedestrian" sections of Robson Street Character Area Guidelines as adopted by Council (d) establishing building height limits which allow adequate sunlight access to opposite sidewalks at noon on the equinox, preserve Important public and private views, and achieve suitable street scale. Implementation: Include provisions in new zoning district schedule and guidelines. Discussion: This section of Robson between Jervis and Cardero is a link between the Robson Downtown and Robson West End shopping areas. As noted in the Robson Street Character Area Guidelines, the pedestrian character of Robson is important and should be enhanced through this area. As the area is not primarily intended as a shopping street, the continuity of shopping is not critical. Other means of maintaining pedestrian interest, such as planting, are equally appropriate. Robson looking east from Cardero

39 GEORGIA/ALBERNI AREA The following Policy involves the preparation of a plan for the Georgia/Alberni area. Until such a plan is completed the current regulations and guidelines of the West End District Official Development Plan will continue to apply to this area. UIMI \\ IJOO n MUM ITl IOO Map No. 3 Policy 5.4. Formulate a Plan for the Georgia/Alberni area which achieves Objective contained in this report. Implementation: The Planning Department will develop such a plan. Discussion: As noted in Section the land use emphasis of this area should be residential. The preparation of a detailed development concept should proceed concurrently with the resolution of the traffic patterns in this general area and with a review of the residential area to the south. This work is programmed for 986 as a separate study to be reported to Council.

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41 47 6 IMPLEMENTATION Upon adoption, the Objectives and Policies contained in Sections 4 and 5 would replace the Policies listed in Appendix Policies 5..5 and 5.4. involve reports back from the City Engineer and Director of Planning. It is intended that these reports include any desirable implementation steps. The remaining policies will be implemented through new district schedules and guidelines for the commercial areas of the West End which would replace portions of the West End District Official Development Plan. However, the West End District Official Development Plan will remain in effect for the residential areas and Georgia/Alberni area until reviews of these areas are completed. It is intended that the new commercial zoning district schedules be considered at public information meetings and a Public Hearing in the spring of 986. All implementation will involve further consultation with residents, merchants, and property owners. In addition, issues of panhandling, loitering, and street safety concerns were noted in the description and analysis sections of this Plan. Representatives of the Police Department have agreed to meet with West End residents at a public meeting to discuss current crime levels, policing issues related to the West End, and crime prevention and enforcement programs. Such a meeting may lead to further work or reports to Council. New Robson Public Market

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43 50 f' '' ' j^-'l'-j an ENGLISH 8 A Y H3XImun Area Floor Ratio Space * Heiqht (ft.l I, * 9.^ a Map No. 4 - Floor Space Rat io [F.S.R. is the rigun obtained v.hen che area of the floor of Che buildings on a site is divided by Che area of the site.