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Development Permit Staff Committee Report for the Development Permit Board
DE404352 - Zone I-2
2799 Renfrew Street (Renfrew SkyTrain Station)
(Complete Application)
For: Monday, August 9, 1999
Index
Development Permit Staff Committee Members
Applicant
Executive Summary
Issues
Development Permit Staff Committee Recommendation: Support
Technical Analysis
Discussion
Planning Department Conclusion
Urban Design Panel
Real Estate Services
Engineering Services
Permits and Licenses Department
Vancouver/Richmond Health Board
Fire & Rescue Services
Notification and Public Involvement
Development Permit Staff Committee Comments
Appendix A - Development Permit Staff Committee Advice and Comments
Appendix B - Standard Notes & Conditions of Develoment Permit
Back to Agenda
DEVELOPMENT PERMIT STAFF COMMITTEE:
Present: Also Present:
B. Boons (Chair), Planning Department
N. Peters, Engineering Services
K. Yuh, Real Estate Services
T. Driessen, Parks & RecreationS. Hein, Planning Departmnet
R. Segal, Planning Department
B. Fong, Planning Department
M.B. Rondeau, Planning Department
B. Macdonald, Engineering Services
R. Waite, Engineering Services
J. Bird, COV Rapid Transit Office
F. Ducote, COV Rapid Transit Office
M. von Housen, COV Rapid Transit Office
L. Laclaire, COV Rapid Transit Office
C. Sinasac, COV Rapid Transit Office
W. Johnston, Permits & Licenses
R. Gates, Social Planning
APPLICANT: OWNER OF DEVELOPMENT: Baker McGarva Hart
1285 West Pender Street
Vancouver, B.C.
V6E 4B1Province of British Columbia
Rapid Transit Project2000 Ltd. ("RTPO")
1285 West Broadway
Vancouver, B.C., V6H 3X8Proposal: To construct a new rapid transit station with at grade entry and elevated platform/guideway.
See Appendix A - Standard Comments/Advice
Appendix B - Standard Notes and Conditions of Development Permit
Appendix C - Plans and Elevations
Appendix D - Applicant's Design Rationale
Appendix E - Context/Local Area Information
Appendix F - Alternate Layout for Community Amenity Space
Appendix G - Anticipated Parcel Configuration
Appendix H - Crime and Safety Observations
Appendix I - Station Precinct Public Enhancement Plan(APPENDICES C - I ARE NOT INCLUDED - COPIES OF THE FULL REPORT MAY BE OBTAINED FROM THE PLANNING DEPARTMENT)
Issues: The following principal issues are identified:
1. Provision of a safe environment
2. Public realm quality, including Station Precinct Public Enhancements, relationship to adjacent and future development
3. Provision of a community amenity space
4. Integration of proposed Central Valley Greenway and Bikeway along proposed guideway
5. Future commercial/retail opportunities on siteUrban Design Panel: Support
DEVELOPMENT PERMIT STAFF COMMITTEE RECOMMENDATION: SUPPORT
THAT the Board SUPPORT Development Application No. 404352 as submitted, subject to Council's approval of the final form of development, the plans and information forming a part thereof, thereby allowing the construction of a rapid transit station and associated site development, subject to the following advice and comments:1.0 Prior to the submission of the building permit application, revised drawings and information shall be submitted to the satisfaction of the Director of Planning, clearly indicating:
General Design Considerations
1.1 design development to refine future commercial-retail and community-socially oriented tenant opportunities, specific location, potential area and height, phasing considerations and anticipated adjustments to off and on-site pedestrian and vehicular circulation patterns;
1.2 clarification of future escalator and stair requirements;
Note to Applicant: Assuming an increase in future station ridership, consideration should be given to additional escalators and/or stairs.
1.3 design development to both upper platform and lower entry zone canopies to achieve the image of "lightness" that is proposed;
1.4 clarification of proposed colours for significant architectural/structural elements, including the main roof;
Note to Applicant: Colour may be considered as a means to distinguish individual station/ municipality sites.
Crime and Safety Considerations
Introductory Note: Noting that RTPO will not be the operator (TransLink) of the rapid transit system, staff have withheld comment on operational aspects, except where there are crime and safety considerations.
1.5 consideration given by advising RTPO and/or TransLink to providing full time personnel (formal, full time security/policing) to ensure a safe environment, in consultation with the Chief Constable of the Vancouver Police;
1.6 provision of a community amenity space, as generally shown in Appendix F to provide opportunities for station "ownership";
Note to Applicant: Consideration should be given to the provision of related tenant improvements as required.
Station Precinct Public Enhancement Considerations
1.7 provision of Station Precinct Public Enhancements as indicated in Appendix I;
Note to Applicant: The Station Precinct Public Enhancements address transit connectivity and the integration of the station site into the neighbourhood. They include:
- treatment of adjoining sidewalks and street areas,
- major intersections and connecting streets, and
- circulation and access to and around the site.On Site Considerations
1.8 provision of a Central Valley Greenway/Bikeway through the station site on the north side;
Note to Applicant: As an alternative, if available within the BNSF property, the Central Valley bikeway could be on the south side of the station between the station house and the BNSF railway.
1.9 provision of additional permanent seating in the plaza area both in the form of seating walls and benches to accommodate the pedestrian amenity and activity;
Note to Applicant: The seating walls, where applicable, should be designed to minimize any abuse by skateboards or graffiti; permanent seating should be located in highly visible waiting areas; consideration should be given to replacing the proposed rubble retaining wall at the plaza entrance with a type of seating wall.
1.10 provision of street trees and a grassed boulevard as set out in the Station Precinct Public Enhancement plan to the approval of the General Manager of Engineering Services and the Park Board;
1.11 provision of further details and clarification of the type, materials, location and height of proposed fencing in and along the station area;
Note to Applicant: Balancing the access, safety and visual attractiveness of the station areas is important to create a safe and desirable space to be in and pass through. Clear vision from 12th Avenue through the plaza to the BNSF rail lines should be provided.
1.12 further design development of the western plaza area of the Station to clarify the function of the pavilion structure, grade changes and the public programming of the space so that it provides a safe and attractive pedestrian/bicyclist environment;
Note to Applicant: Illustrated sections through the plaza should be provided to show the street, plaza, greenway and station interrelationships.
Public Art Considerations
1.13 include a public art component into the station site;
Note to Applicant: Brian Newson, Office of Cultural Affairs, is available for assistance.
Law Department Considerations
1.14 agreement to the satisfaction of the Director of Legal Services and the General Manager of Engineering Services for use of abutting City streets and lanes by the expanded SkyTrain system;
2.0 That the advice and comment set out in Appendix A be met prior to the submission of a Building Permit Application.
3.0 That the Notes to Applicant and Advice and Comment set out in Appendix B be supported by the Board.
Technical Analysis:
PERMITTED (MAXIMUM)
REQUIRED
PROPOSED
Use Public Authority
-
Public Authority
Site Size -
-
Irregular
Site Area -
-
Approx. 7 666 mē
Floor Area 2 067 mē
FSR 3.0 (max.)
-
0.27
Height 18.3 m
-
13.22 m (to top of roof)
Parking -
N/R
Nil*
Loading -
N/R
Nil
Amentiy
-
See Condition 1.6
Community Amenity Space
(alternate layout plan shown in Appendix F)
*Note on Parking: Parking may not be required for the proposed use. However, in the event any space is proposed for commercial use, parking should be provided in accordance with the Parking By-law.
Legal Description* History of Application
Lots: To Be Assembled 99 06 02 Urban Design Panel - WORKSHOP
Block: 99 07 12 DA submitted
Plan: 99 07 28 Development Permit Staff Committee
District Lot:
* The City understands that RTPO has not at this time assembled the property required to create the site on which the station will be located. It will do so by acquiring an interest in the properties shown in Appendix G.Site: The site is located at the southwest corner of Renfrew Street and 12th Avenue (which is to be realigned).
Context: Significant adjacent development includes:
(a) The proposed redevelopment by Bentall Development Corporation of the Eaton's Warehouse site located to the northeast for high technology office use. Final build-out for this site could see 8 buildings totalling over 1 million square feet of gross floor area over the next seven to ten years.
(b) Universal Supply, The Real Canadian Wholesale Club and Dryco Distribution Warehouse to the north.
(c) Revy Home & Garden to the northwest.
(d) Vancouver Tech High School to the northwest.
(e) One to two storey strip commercial-retail mall to the south.
(CONTEXT MAP)
Background:Review/Approval Context and DP Board Role: The Province, through a company called Rapid Transit Project2000 Ltd. (RPTO), is responsible for the design and construction of an extension of the existing SkyTrain line. Phase 1 of this extension consists of an elevated track running west in or near the Burlington Northern Santa Fe (BNSF) railway, from New Westminster to a station at Vancouver Community (VCC) between Glen and Clark Drive in Vancouver. Within Vancouver, there will be four stations: at Rupert Street just north of Grandview Highway, at Renfrew Street just north of Grandview Highway, at Broadway and Commercial Drive and at or near VCC.
RTPO is not required to obtain a development permit for the guideway or the stations. However, it has agreed to participate in the development permit process, and to appear before the Development Permit Board for advice and comment. While this advice does not constitute formal conditions, it is the City's understanding that RTPO is participating in this process in good faith, and intends to incorporate, where reasonably possible, the comments of the Development Permit Board. Moreover, the comments of the Development Permit Board will form the basis of City staff reporting to City Council.
Zoning, Context, Current Policy and On-going Precinct and Station Area Development: The application is located in an I-2 (light industrial) zone that allows for a range of light industrial uses as well as ancillary retail and office uses. This zoning also allows for a number of cultural, recreational, educational, and institutional uses on a conditional approval basis. This application proposes a rapid transit station, with related guideway and site development, under the conditional institutional heading of Public Authority Use. The area surrounding the station is zoned 1-2, C-1 or CD-1. The intent of the Still Creek CD-1 zone is to protect and enhance Still Creek while generally maintaining the other I-2 provisions, while the Revy Home & Garden location to the northwest has site-specific CD-1 zoning. The C-1 zone provides for a range of small-scale neighbourhood commercial uses located primarily around the major intersections.
The Grandview/Boundary Industrial Area, extending west to east from Slocan Street to Boundary Road and north to south from Broadway to Grandview Highway, is currently under review to introduce a new I-3 zone that would permit high technology uses subject to fulfilling interim rezoning policies and guidelines. In association with this study, highway-oriented retail uses will be emphasized along the Grandview Highway frontage. Within this planning area, a specific Renfrew Station Precinct Plan (see Appendix E) is currently being prepared to coordinate street improvements, public amenities and adjacent land uses with the station design and anticipated new development.
Proposal: Site: The proposed site for this elevated side-loading platform station is north of the BNSF rail line and immediately west of Renfrew Street. The site, which is located in a distinct hollow within the general area topography, is essentially flat. The guideway alignment requires the station house to be sited adjacent to the southerly edge of the site with the entry facing bus stop locations, the proposed high technology office development on the Eaton's warehouse site and anticipated pedestrian travel to the east. The station house is located as close as possible to Renfrew Street. Minimal future commercial-retail opportunities are available within the station house itself, as well as under the guideway alignment to the west. Site specific development, including landscaping, is minimal to ensure clear entry identity and circulation routes, as well as provide for emergency access if required. Glass enclosed elevators, and associated stair/escalators, are located at the easterly end of the station house. Service related station functions, including equipment rooms and restricted service vehicle parking, have been sited away from pedestrian areas as much as possible.
Building: This station is one of two proposed to serve the emerging "high tech" development area located between Broadway, Grandview, Boundary Road and Slocan Street. The proposed architectural expression, including the station house and canopy systems, is consistent with the anticipated building expression for this area. Proposed materials include a steel/glue-laminated structure, painted steel and glass walls and transparent enclosures for circulation elements. The proposed design will re-use salvaged heavy timbers from the existing Dry Co. Building. Station planning at grade orients all public spaces and services towards the east where anticipated new development and the main bus drop-off is located. Non-public functions are oriented to the west, with future tenant opportunities under the guideway further west. The fare paid zone commences at the bottom of the stairs/escalators/elevators with future turnstile potential possible. The platforms have been staggered to open the station's elevated platforms up to the surrounding local context. A highly visible community oriented amenity space at grade is possible with a revised station house design (see alternate ancillary space layout in Appendix F).
Crime and Safety: The Planning Department and the Police are undertaking a thorough study of crime and security on SkyTrain. Although the study is not complete, it is clear, as expected, that there are a number of crime issues related to the system that warrant preliminary discussion. These fall into two categories: lack of "ownership" of the system and; the natural tendency of rapid transit systems to facilitate crime. Lack of "ownership" causes increases in crime because there are minimal measures to stop it. This can be fairly easily controlled through increased presence of personnel and community measures in the stations. The natural facilitation of crime near heavy flows of people is more difficult to control since crime results as a function of people coming to and from the stations. Treatment of the pathways and the station area to ensure openness, connection to the street, eyes of the surrounding neighbours and clear sightlines can reduce opportunities for these crimes.
Staff consider that the best way to discuss the crime and security issues is to begin with the existing system (focusing outside of the downtown area), utilizing the opportunity to learn from current experience, after which the local crime environment of the Renfrew station will be reviewed with the intention of predicting the type of crime patterns that are likely to occur. The comments in Appendix H contain observations of crime that is happening on the existing SkyTrain system. It is important to keep in mind that the following comments deal only with the crime concerns rather than the many benefits of SkyTrain. Staff also emphasize that SkyTrain is only one component in the overall crime picture of the neighbourhood.
Renfrew Station Site Specific Observations: The station site is located within an isolated industrial area that is a few blocks from stable, single family neighbourhoods to the north and south.
The key influence on crime at Renfrew Station will be the high school located to the northwest. Staff anticipate similar patterns to those of Nanaimo Station where robbery, assault (fights) and vandalism will take place on the way to and from the station as well as at the station plaza. It is expected that students will change their transit habits from the Broadway bus to use SkyTrain, thereby achieving increased mobility to more attractive entertainment such as Lougheed Mall or possibly Metrotown. Staff anticipate increased car crime in big box retail parking lots and on other surface parking lots. If trucks continue to park on 12th Avenue they will likely experience an increase in theft and vandalism. If night school students currently use buses then it will be important to ensure these students have safe routes from the station to the school. Convenient pathways adjacent to the rail right-of-way should be provided so that people are not inclined to use the tracks themselves, some of which will undertake vandalism on the way. The proposed industrial/office park on the Eatons warehouse site and other possible projects will likely have a positive influence by bringing workers to the station area especially during lunch and breaks (as the Liquor Board does now at Rupert). However, the cars and the industrial/office ground level units will be more vulnerable to theft and B+E. Given the experience of other station areas, it will be important to recognize the natural pathways that will be created.
Crime and Safety Considerations for Renfrew Station: By far, the most powerful way to reduce crime associated with SkyTrain will be station "ownership" by providing full time presence by people who have a stake in the station and the system (both formal security/policing personnel and informal community members, business people and residents). Although the provision of the personnel is outside of the scope of this proposal, the physical space requirements must be considered as part of this proposal. Provision of a community amenity space will allow flexibility for programs that will significantly reduce the existing types of crime on the system and mitigate displacement crime to the proposed extension. Designs that encourage a sense of neighbourhood character and "ownership" are also important. Yet, even with this "ownership", some crimes will still occur on the pathways in the vicinity of the station, out of the control area of the station. Staff suggest that these pathways, both natural and planned, should be designed with the utmost care taking into consideration the principles of Crime Prevention Through Environmental Design (CPTED). Any new buildings adjacent to the station should be designed with windows close to the station to encourage casual surveillance.
Engineering Considerations:
Arterial Streets:
Broadway, Grandview, and Renfrew Streets are large arterial roads carrying significant regional traffic. The impact of the new station on traffic volumes is expected to be negligible.Truck Routes:
Grandview Highway North is a truck route that carries some regional traffic. Construction of the elevated SkyTrain guide way will result in Grandview Hwy. N. being dropped from the truck network. The north side of the Grandview Cut has been identified for Greenway development.Local Streets:
Kaslo and Slocan Streets provide local access to businesses and residents and are expected to retain their role. Both 12th Avenue and Hebb Avenue will be realigned to accommodate both Renfrew Station and the columns for the elevated guide way.Pedestrian (Patterns/Connections):
Development of Renfrew Station will require a number of improvements to the pedestrian facilities in the station precinct. Sidewalks will need to be built where they are missing and others will need to be widened to accommodate volumes and enhance pedestrian safety. A fully actuated signal (pedestrian/ cyclist/vehicle) will be in place at the Renfrew/Hebb intersection prior to the first day of SkyTrain operation.Bikeways (Bicycle Routes):
There are existing Bikeways on Slocan Street and Lakewood Drive. A new Bikeway running parallel to the new SkyTrain guide way will be designed and developed in conjunction with the SkyTrain.
Bus Routes and Integration (TransLink Bus Service):
The existing level of bus service provided by the #16 should be adequate to service Renfrew Station in the short term (2002). Bus bulges will be considered for the bus stops on Renfrew Street. Development of the Eatons Warehouse site with high technology office will result in the elimination of the short turn bus loop at Broadway and Renfrew Street. A Broadway-Kaslo-12th Avenue-Renfrew routing will replace this bus loop.Parking and Loading:
It is projected that eight short term (15 minutes or less) parking spaces will be required immediately adjacent to the station house for kiss and ride.Renfrew Station Precinct Enhancement: The Renfrew Station Precinct Public Enhancement plan was developed in response to public input and the report of the Special Commission - SkyTrain Review of May 1999. Refer to Appendix I. Staff's comments and advice in this regard are set out in consideration 1.7.
Applicable By-Laws and Guidelines:
1. I-2 District Schedule
2. I-2 Interim Re-zoning Policies and Guidelines (Approved by Council on July 22, 1999)Response to Applicable Guidelines:
1. The proposal generally meets all requirements of the District Schedule with respect to land use (Public Authority Use is conditional), height, yards and density. Parking is not a requirement of this application, although necessary arrangements, to the satisfaction of the Director of Planning, will be required for future retail/commercial areas.
2. The I-2 Interim Rezoning Policies and Guidelines discuss a more specific architectural expression that relates to the anticipated high technology uses for the Grandview Broadway Precinct. The guidelines also require efforts to provide an enhanced pubic realm though higher quality landscaping, lighting and weather protection. Greater commercial activity near station sites is also sought. The proposal generally achieves the requirements of the guidelines, including a "high tech" expression using quality materials. Weather protection for transit users, including those transferring from other forms of transit, is provided in the form of entry canopies and the system guideway itself. An enhanced public realm is achieved though high quality landscaping and coordination/integration of existing and proposed pedestrian pathways and bicycle routes. Public open space is also provided on site and near anticipated future commercial activities.
Conclusion: The proposal generally reflects previous discussions and arrangements with staff for this station's design. Staff commend the station architects for producing an aesthetic and functional design response. Some aspects of roadworks design and landscaping need to be addressed as reflected in the advice and comments. Staff strongly recommend the provision of a community amenity space to ensure a safer station environment and a sense of community ownership. Staff support the proposal with the advice and comments provided.
A workshop was held with the Urban Design Panel on June 2, 1999. Workshop discussion focussed on potential emerging/anticipated local and station area development associated with I-2, I-3 and Highway Oriented Retail zoning, CPTED considerations and site specific considerations for station design. Integration with proposed system wide local amenities, such as the Central Valley Trail and the daylighting of Still Creek, were supported. The panel also supported new commercial-retail zoning opportunities, including greater intensity of use directly adjacent/near the new stations. Further understanding of proposed ridership, and how other forms of transit are to be integrated, was a concern of the panel. Highly visible and transparent stations were supported. The staggered platform approach was also supported. Architectural expression was generally supported. Realignment of 12th Avenue/Hebb Avenue was supported with advice on alignment that is consistent with the submission.
Following are the notes from a workshop discussion on June 2, 1999:
Jane Bird, Rapid Transit Project Manager, briefly reviewed the background of this project to extend the SkyTrain system. The proposed Vancouver stations in the first phase (Broadway-Lougheed Mall-New Westminster) are at Rupert Street, Renfrew Street and Broadway/Commercial, with a future station provided at Grandview. The City's assumption is that the technology, route and station locations are given. The design phase for the three stations is now underway. While each station will be designed uniquely, Baker McGarva Hart has been retained to design all three stations. The station at Commercial Drive will be the subject of a future meeting. The City has established a team of planners and engineers who are engaged in the planning and design of the stations and the area immediately around the stations (the "station precincts"). The objective is to ensure that the area around the stations complements the stations and to ensure the integration between the stations and surrounding neighbourhood fabric is as seamless as possible.
Scot Hein, Development Planner, noted that, in addition to the design of the two stations, a secondary focus relates to some of the emerging policy work and patterns of anticipated development. Specific areas for the Panel's advice/discussion relate to:
- general design approach, particularly with respect to the contextual fit, noting the emerging high-tech expression in this area;
- ridership comfort and general amenity of the stations including weather protection;
- ridership security;
- station specific commercial opportunities;
- general CPTED observations;
- use, height, and commercial opportunities in the station precinct;
- area-wide public amenity opportunities.Michael von Hausen reviewed the context of the proposed stations, noting the vision for the Grandview/Boundary Area Plan is a high quality, high tech, campus-oriented park with greenway connections and convenient access to transit. Mary Beth Rondeau addressed the crime and safety issues. She explained that a detailed study is underway to determine the actual crime that is occurring associated with SkyTrain stations. The objective is to design for the sorts of crime that can be expected.
In the question period that followed, Frank Ducote, Senior Planner, advised that live/work use is not being considered for this area.
Members of the design team reviewed the station designs in greater detail.
Following informal discussions with the applicant team and staff, the following points were made by the Panel:
General Comments:
- generally, the buildings are looking very interesting, but it is not clear that the designers are solving the overall issue, which is how these stations relate to the context - i.e., the creation of a "sense of place". The Renfrew station is better than Rupert in this respect and has the characteristics that will start the creation a future parti with respect to the overall context;- congratulate Transit for the commitment to designing each station differently;
- the greenway must be integrated with the station to be a fully integrated urban space;
- asymmetry: both stations have one side facing the railroad tracks. There may be an opportunity to consider the track side as one expression and the urban, street side as another expression to give further character to the station;
- the bus drop-off on both stations is a concern: there should be a pull off for the buses;
- it is crucial to create more of a functional linkage between the bus and SkyTrain systems, noting existing stations are not successful in this regard. Given the major public investment, commuters must be encouraged in every way;
- the designs of the stations will be improved if pedestrian bus drop off areas are incorporated into the station precinct;
- public policy with respect to land use should be carefully considered - more of a mixed use scenario should be considered given the major public investment in the public transit system - the more uses and more people that can be brought into these areas the more successful the transit system will be in the short term;
- with respect to CPTED issues, urge the introduction of active uses and visible transit staff during operating hours;
- bus stops should be located as close as possible to the stations;
- support considering uses other than retail under the guideway;
- the street offset will work better if it is straight and avoids left-over space;
- there is no planning for bicycle parking - this should be emphasized more in the early stages;
- congratulations on the soft shape for the roof, it should be detailed well, and the shape continued to be studied;
- there needs to be an effort to bring some of the lightness of the structure that supports the canopy on the upper level down to the ground to mitigate the scale of the structure of the guideway with respect to pedestrian interface;
- encouraged by the translucency of the roof - encourage the applicant to light it in a way that maintains that translucency from the point of view how it appears as a beacon on the skyline - it is the catalyst for development in this area in the future;
- suggest the more urban it is at the edges the more successful it will be as a people place;
- re land use around the stations, some of the future developments need to be encouraged to reinforce their pedestrian network with respect to connections to the stations;
- the roofs of both stations are very substantial structures, and because users are forced to use one side or the other, it presents a strange proportion of the roof to waiting passengers. The roof may provide an opportunity to identify where the train will stop;
- it is a missed opportunity that the commercial components are not designed as integral parts of the stations;
- the integration of commercial is critical;
- the integration of the bus system is critical. It has not been accommodated sufficiently in either scheme;
- the general approach to the roofs is the right way to go to get some dynamics into the forms of the stations, and the concept of motion is evident;
- the offsetting of the platforms is a good technique and it tends to open the station visually to the street, although it only works well in one direction.
Renfrew Station:
- support for the transparency of the Renfrew station;- dividing the roof into two segments weakens its visual impact;
- the elevations on the Renfrew side are too transparent. More should be done to tie together covered pedestrian pathways along pedestrian desire lines from transit links and future uses;
- the southwest corner is hidden from view;
- the architectural rather than the engineering alignment of 12th Avenue makes a much more successful street in terms of its relationship to the station;
- the small commercial opportunity should be much more strongly integrated and its visibility from the south considered;
- with respect to the barrier along the railway edge, whether something should be provided there that is integrated with the design of the building, i.e., at the ground plane, particularly on the Renfrew Station, whether there needs to be a piece of architecture or landscaping that separates the property footprint from the tracks;
- the geometry of the street is very important and the engineering solutions are a concern; there needs to be some exploration of the character of that space;
- wonder whether the Renfrew station should be on the other side of the street in the new high tech park where there is opportunity to make it all work together.
Property assembly will be necessary. Based on recent search of land titles, the triangular parcel located southeast of Kaslo and 12th Avenue is owned by Dryco Holdings Ltd., and a triangular parcel located northeast of Renfrew and the current 12th Avenue is owned by Delasalle Holdings Ltd., as described in the diagram in Appendix G. Staff advice and comment regarding assembling the property required for the station site and the proposed realignment of 12th Avenue is set out in Appendix A, consideration A.2.1 (a) to (c) inclusive.
Pending final property assembly, Engineering Services has prepared several alternate alignments for 12th Avenue between Kaslo and Renfrew Street, including retaining the existing alignment to mid block, ending in a cul-de-sac, which would obviate the need for property from the parcel immediately north of 12th Avenue, owned by Delasalle Properties Ltd.
The recommendations of Engineering Services are contained in the comments and advice noted in Appendix A attached to this report.
PERMITS AND LICENSES DEPARTMENT
This Development Application submission has not been reviewed for complete compliance with the applicable Building By-law nor the code criteria which staff understand will form the basis of evaluation. The applicant is responsible for ensuring that the design of the building complies with the Vancouver Building By-law or the code criteria accepted by the City of Vancouver. The options available to assure Building By-law compliance at an early stage of development should be considered by the applicant in consultation with Permits & Licenses staff.
To ensure that the project does not conflict in any substantial manner with the Building By-law, the designer should know and take into account, at the Development Application stage, the Building By-law requirements which may affect the building design and internal layout. These requirements would generally include issues related to: spatial separation, fire separation, exiting, access for physically disabled persons, type of construction materials used, fire fighting access and energy utilization requirements.
Based on a preliminary review of the drawings submitted it was noted that the following issues may not comply with the literal requirements of the Vancouver Building By-Law;
An overhead grill which separates the ground floor station concourse from the street is proposed. It should be noted that man doors are required adjacent to the proposed grill or within the grill itself in order to provide exiting from the sky train station in the case of a fire emergency. These doors would have to be sized to comply with exit capacity requirements of the Vancouver Building By-Law.
It appears that a second exit may be required to serve the ground floor. The maximum floor area and travel distance requirements related to egress and exiting for assembly occupancies should be reviewed.
It is recommended that Vancouver Building By-Law requirements related to interconnected floors be reviewed in order to ensure that compliance is achieved. If literal compliance cannot be achieved equivalencies may be required to address these issues.
Attention should be given to barrier free access for disabled persons on the platform level. It appears that two exits are proposed on the platform level (an open stair providing access to the station concourse and an enclosed exit stair at the eastern portion of the platform). Areas of refuge may be required for disabled persons on this level. This issue may have to be addressed as a building code equivalency.
All exit facilities must be designed to meet the exit capacity requirements of the Vancouver Building By-Law based on assembly use occupant load factors.Please note that the above items do not represent a complete building code review of the proposed SkyTrain Station. A complete review will be required prior to issuance of a building permit.
VANCOUVER/RICHMOND HEALTH BOARD
The Vancouver/Richmond Health Board recommends the submission of an acoustical consultant's report that assesses noise impacts on the neighbourhood and recommends noise mitigation measures.
The Health Board advised that the applicant should take note of the following:
(i) mechanical equipment (ventilators, generators, compactors) shall be designed and located to minimize noise impacts on the neighbourhood and comply with Vancouver Noise By-law #6555;
(ii) detailed drawings of amenity spaces should be submitted for review by the Health Board for compliance with Vancouver Health By-law No. 6580 and the Food Premises Regulations prior to construction.
Fire & Rescue Services cleared this application for fire apparatus access, subject to City of Vancouver Building By-law No. 3.2.5.4(15) and 3.2.5.5(4).
Fire fighting access to the station as a building is acceptable, subject to later review of the building's fire protection equipment.
Note: the draft Station Building Code Criteria drafted by LMDG is under review and discussion, and has not been accepted by VFRS.
NOTIFICATION AND PUBLIC INVOLVEMENT:
The City of Vancouver and RTPO posted the usual sign on the site. Although the City did not notify neighbours of this application by mail, since September 1998 the Applicant has been engaged in an extensive public process. The planning and urban design phase for the SkyTrain Phase 1; New Westminster stations began the summer of 1998 and concluded in February of this year. At that point, the technology, alignment and station locations had been determined. During that time, RTPO, in collaboration with the City, held a segment wide open house in September, followed by an open house for Renfrew and Rupert stations in November. In addition, two segment wide open houses were held in February to confirm the alignment and station locations. The alignment and station locations were the subject of a public Council meeting on February 18, and Council recommendations on February 23, 1999.
The station design phase commenced in March of this year. RTPO commissioned four architecture firms to consider the existing Nanaimo and Joyce stations as case studies for station design. The firms were asked to develop architectural ideas that could ultimately be incorporated into the station design for the new stations. These ideas were the subject of a system wide "Ideas Forum", and a specific design forum for Renfrew and Rupert stations held at Thunderbird Community Centre March 31, 1999. A design workshop for both stations was held April 17, 1999 at the Stay 'n Save in Burnaby. Participants, largely residents and tenants of the immediate industrial area, provided comments to the station architects and City staff on station design issues and station precinct concerns, including access, station "look and feel", transit connections and supportive uses. A design workshop was held July 20, 1999 at which the preliminary station and landscape designs were presented.
City staff and RTPO have had individual meetings with adjacent property owners, including, in the case of Renfrew Station, Delasalle Properties Ltd., Universal Supply and Bentall Development Corporation.
Following is a summary of public comments recorded at the above events:
Overview of Public Concerns:
Station design concerns, including crime and safety, noise and visual impacts, traffic patterns and future development-particularly relating to elevated guideways and stations near residential areas and schools;
Noise during construction, operation and maintenance of SkyTrain lines and stations;
Potential for loss of trees and green space, and impacts on fish habitat and other environmentally sensitive areas;
The connectivity of the SkyTrain system with other modes of transportation, including bus, car, bicycle, and pedestrian traffic;
Legacy opportunities-including a multi-use pathway along the length of the guideway and a greenwayRenfrew SkyTrain Station and Precinct Public Comments:
- improved neighbourhood connections to and from existing schools, bus links etc. thru landscape mitigation
- provide convenient passenger drop-off, taxi bays, bus transfers points
- provide mitigation for neighbourhood disturbance from SkyTrain construction, noise, reflected noise, Guideway structure
- provide maximum safety for students, school staff, residents, etc. during construction and operation of SkyTrain and Station
- maintain involvement from the Collingwood Policing Centre, Van Tech and PAC (Parents Advisory Committee)
- types of businesses, accessibility (disabled) and safety will effect at least 5 disabled housing buildings within 10 blocks of the stations
- address noise, security, safety, related crime elements, isolated, ‘gated' communities etc. in the neighbourhood
- maintain the area as single family residential, not multi-family complexes
- station(s) designed to fit with community and surroundings; ecologically unobtrusive as possible; aesthetically-pleasing
- visually open, clear sightlines, simple station design for surveillance of SkyTrain patrons in station, public plaza; glass walls on stairways; overhangs for weather protection
- a safe, secure, friendly and clean place with people around; bathrooms in station; adequate lighting within and adjacent to station, escalators, elevators on both sides of station, ticket activated gates/turnstiles, visible security personnel (not just cameras), emergency call system
- provide methods of surveillance that ensure fares are paid
- ease of access (ramps at 4% or less) for disabled/wheelchair within and adjacent to the station
- provide a secure place/storage locker for bicycles
- station design and SkyTrain right-of-way to facilitate bicycle commuters and recreationalists
- provide convenient retail/commercial infill that addresses the neighbourhood profile (including schools) and its related uses, neighbourhood safety etc. such as, cafes/coffee shops, grocery store, farmer's market, restaurants, community services, businesses, postal outlet, 24-hour stores, telephones, non-profit group office or activity spaces etc.
- provide a Community Policing Station
- design and mitigation concepts (landscape and architectural) that address views, open space, aesthetics, neighbourhood fit and mitigate for the elevated guideway portions such as trees, brickwork on the columns etc. which will also deter graffiti
- coordinate landscape screening of guideway with proposed street improvements at Kaslo and Grandview Highway
- illustrate crime prevention principles in landscape design
- provide a strong Greenway/Bikeway connection at and between the stations including pedestrian-oriented lighting, benches, rest stops, water fountains etc.
- clear separation between bike and pedestrian paths; attention to street intersections with bikeway access; address possible bicycle and bus conflict zones
- provide convenient and efficient pedestrian and bus connections with existing and proposed transit routes
- improve existing vehicle and pedestrian traffic lights, circulation/access and related surface treatment at railroad tracks, intersections, crosswalks, sidewalks etc. effected by SkyTrain integration
- provide parking areas on streetDEVELOPMENT PERMIT STAFF COMMITTEE COMMENTS:
The Staff Committee reviewed this application, noting concerns that the necessary assembly of land parcels requires completion. Requirements for off-site improvements to infrastructure and public realm was also of concern, noting the early development of the station sites, with adjoining sites developing at a slower rate. Given the ongoing planning work for the general precinct, as well as the local station area, Staff Committee emphasized the importance of linking the site with anticipated pedestrian and bicycle routes, as well as other forms of transit, including the taxi industry. Staff Committee recognized the current, and potential crime and safety patterns that may be initiated by the introduction of the proposed use, and support staff's advice to refine aspects of site and station design to try to reduce the possibility of undesirable occurrences. Staff Committee supported the provision of a community amenity space, noting that the applicant should also consider the provision of tenant upgrades as required.
DEVELOPMENT PERMIT STAFF COMMITTEE ADVICE AND COMMENTS:
The following is a list of advice and comments that Staff Committee request be observed prior to the submission of a Building Permit Application.
A.1 General Comments/Advice:
A.1.1 in the event any commercial space is proposed, provision of parking within the site, in accordance with the Parking By-law;
A.1.2 design development to further clarify site edge conditions to ensure appropriate separation and pedestrian safety from the Burlington Northern Santa Fe Railway to the south;
A.1.3 design development to further clarify and refine proposed site and station lighting (including provision of a lighting concept plan) to ensure maximum pedestrian and user safety;
Note to Applicant: Station house canopy lighting should clearly distinguish the site at night for pedestrians.
Crime and Safety Comments/Advice:
A.1.4 design development to take into consideration the principles of CPTED throughout the station and the station area;
A.1.5 consideration to widen the sidewalk at the station access stair on the realigned 12th Avenue;
A.1.6 provision of video surveillance cameras of the station area including the western portion of the station, under the guideway and around the free standing exit stairs that can be watched by the station personnel as well as at the main security office;
A.1.7 reduce opportunities for vandalism (graffiti and skateboarding) by:
(a) reducing blank wall areas by adding landscaping (clarify the exterior wall material for the ancillary space);
(b) setting glass walls back from the handrails beyond reaching distance and landscaping in front of the grade level glass and considering Mylar film over the for inexpensive removal where glass is exposed;
(c) screening utility boxes such as the signal box with landscaping;A.1.8 reduce opportunities for illegal drug marketing by locating public telephones under supervision of station personnel;
Landscape Comments/Advice:
A.1.9 provide clarification as to the feasibility of any landscaping within the BNSF right-of-way;
A.1.10 provide a detailed planting list including species, type, location and size;
Note to Applicant: These details should be mindful of the guideway shadow impact on the types of planting and the desirability of low maintenance requirements and native planting where possible.
A.1.11 coordinate the graphic and information signage between streets, greenways, bikeways and TransLink requirements to minimize confusion in the wayfinding to and through the station area subject to the approval of the General Manager of Engineering Services;
Note to Applicant: Signage will be coordinated through the various affected branches in Engineering Services and TransLink as noted above.
A.1.12 coordinate the Landscape and Architectural Drawings such that the information is consistent;
Note to Applicant: The setbacks and reuse of the existing buildings wood beams should be consistent in both drawings.
A.2 Engineering Comments/Advice:
A.2.1 arrangements to the satisfaction of the General Manager of Engineering Services, the Director of Legal Services and the Director of Real Estate Services, for:
(a) the closure of a portion of 12th Avenue west of Renfrew Street including its conveyance to the Province and consolidation with the Dryco site;
(b) the design and construction of the new portion of 12th Avenue and any connections with the existing portion of 12th Avenue and Renfrew Street and any ancillary work on 12th Avenue, including any relocation of utilities, documentation, plan preparation, registration, and closing costs;
(c) acquisition and dedication of various properties for the new portion of road;
Note to Applicant: The foregoing comments may also apply to the 12th and Kaslo intersection
(d) any special treatments and street furniture on City property;
(e) if single ownership of all lands on which the station is proposed to be constructed is not intended, then arrangements must be made to construct on multiple parcels;
Note to Applicant: Proposed property lines should be shown on all plans.
(f) pedestrian crossings;
Note to Applicant: Show upgraded pedestrian crossings of BNSF tracks on Renfrew and Kaslo Streets; show normalized crosswalk at the realigned Hebb/12th/Renfrew intersection and at the realigned Kaslo/12th intersection; delete the pedestrian bulge from the Northeast corner of Hebb Avenue and Renfrew Street.
(g) bus connections;
Note to Applicant: Show bus stop amenities, including benches, shelters, waste containers, and landscaping. The northbound bus shelter will be free-standing. The southbound bus shelter could be integrated with (or attached to) the SkyTrain guideway.
(h) bikeway and Greenway facilities;
Note to Applicant: Show the location of bike lockers and bike racks; show the details of the routing of the Bikeway/Greenway past the station (e.g. expected routing for a mounted cyclist).
(i) vehicle parking and street design;
Note to Applicant: Delete median from 12th Avenue adjacent the station (width to go to sidewalks or boulevard); indicate potential loading/parking provisions for the future retail units; show handicap drop off location; show driveways to Universal Supply and the Real Canadian Wholesale Club; show location(s) of any garbage (dumpster) and recycling loading; show service vehicle access locations and temporary parking, if any and provision of minimum 1 police parking to service the site (either on-street or on site). All street designs are to be coordinated with the City of Vancouver to the satisfaction of the General Manager of Engineering Services.
A.3 Vancouver Health Board Comments/Advice:
A.3.1 submission of an acoustical consultant's report which assesses noise impacts on the neighbourhood and recommends noise mitigation measures to achieve noise criteria;
Note to Applicant: Notation will be required, confirming that acoustical measures will be incorporated into the final design and construction based on the consultant's recommendations as concurred with or amended by the Medical Health Officer.
A.3.2 confirmation is supplied by the applicant that mechanical equipment (ventilators, generators, compactors and exhaust systems) will be designed and located to minimize noise impact on the neighbourhood and to comply with Noise By-law #6555;
A.4 Permits & Licenses Department (Environmental Protection Branch) Comments/Advice:
A.4.1 submission of a letter from the B.C. Ministry of Environment, Lands and Parks, regarding the soil assessment and remediation measures, if any, to the satisfaction of the Industrial Waste Control Branch of the Permits and Licenses Department.
A.5 Fire Department Comments/Advice:
A.5.1 clarification of fire-fighting requirements, including access and other fire protection measures for future on-site commercial-retail areas;
A.5.2 provision of a dry standpipe system for the guideway with a fire department connection at the station itself;
A.5.3 provision of a motorized transport unit, and associated storage, that can accommodate a minimum of four firefighters and related equipment;
A.5.4 confirmation of service and emergency access to the station;
Note to Applicant: Stretcher access to public areas should be confirmed.
B.1 Standard Notes to Applicant:
B.1.1 The applicant is advised to note the comments of the Permits and Licenses, Health Board and Fire Departments contained in the Staff Committee Report dated July 28, 1999.
B.1.2 It should be noted that the advice/comments contained in 1.0 and 2.0 should be resolved before the submission of an application for Building Permit.
B.1.3 A new development application is requested for any significant changes other than those required by the above-noted advice/comments.
B.2 Conditions of the Development Permit Application:
B.2.1 All requested off-street vehicle parking, loading and unloading spaces, and bicycle parking spaces shall be requested in accordance with the relevant requirements of the Parking By-law within 60 days of the date of issuance of any required occupancy permit or any use of occupancy of the proposed development not requiring an occupancy permit and thereafter permanently maintained in good condition.
B.2.2 All requested landscaping and treatment of the open portions of the site shall be completed in accordance with the approved drawings within six (6) months of the date of issuance of any required occupancy permit or any use or occupancy of the proposed development not requiring an occupancy permit and thereafter permanently maintained in good condition.
B.2.3 Any phasing of the development, other than that specifically supported, that results in an interruption of continuous construction to completion of the development, will require application to amend the development to determine the interim treatment of the incomplete portions of the site to ensure that the phased development functions are as set out in the supported plans, all to the satisfaction of the Director of Planning.
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Last modified: Auust 6, 1999
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