1986Copy 2

Vancouver. Planning Department

Mi seel 1aneous

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Planning Department

City of Vancouver

January 1986

City of Vancouver

Planning Department

LIBRARY

TABLE OF CONTENTS

Page

INTRODUCTION 1

DESCRIPTION OF THE COMMERCIAL AREAS

2.1

2.2

2.3

2.4

2.5

Overview

Davie Village

Denman/Davie

Robson

Georgia/Alberni

7

8

10

13

15

PLANNING ANALYSIS AND ISSUES 17

3.1 Development Control 193.2 Amount and Distribution of Commercial Space 203.3 Roles of the Commercial Areas 213.4 Character of the Retail/Service Areas 25

OBJECTIVES 27

4.1 Amount and Distribution of Commercial Space 29

4.2 Roles and Characters of the Commercial Areas 29

POLICIES 31

5.1 General Commercial Area Policies 335.2 West End Retail/Service Areas 365.3 Robson Mixed Use Area 415.4 Georgia/Alberni Area 43

IMPLEMENTATION 45

APPENDIX 49

7.1 Existing Commercial Areas Policies, Regulations 51

and Guidelines and Proposed Changes

7.2 Current Uses in Retail/Service Areas 56

1 INTRODUCTION

City Council in October 1984 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 1986. 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 7.1. 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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7

2 DESCRIPTION OF THE COMMERCIAL AREAS

2.1 OVERVIEW

The commercial areas consist of four character areas as shown on Map 1:

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 1300 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 1,265,200 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 1,730,700 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 2,180,300 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 thesidewalk 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

Most retail strips lie adjacent to residential neighbourhoods. Theyare 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 isvery 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 1s 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

south1. The commercial area itself is relatively flat. The area issurrounded 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

1. 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.

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

Map No. 2

uto/Parking

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 thesestreets. This pattern creates parking, loading, and garbage container

locating problems and, to some degree, reduces shopping continuity along

Davie Street.

10

Map No. 3

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Davie Village

Subdivision

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 inthe 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 RobsonStreet 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 119-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 isalso available including three supermarkets (see Appendix 7.2).

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12

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 commercialzoning 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.

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Denman/Davie

Subdivision

Map No. 5

13

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 functionalchange 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 andDenman/Davie areas, restaurants are a prevalent use (twenty percent ofshops 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

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Map No. 6

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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.

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15

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 indicatethere 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

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19

3 PLANNING ANALYSIS AND ISSUES

3.1 DEVELOPMENT CONTROL

The round of discussion and reports generated by the review of the City'sdevelopment 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. Thisdesire 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

20

3.2 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.

21

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:

Denman/Davie:

Robson:

local serving retail/services

local serving retail/services (with some regionaluse, 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.

22

3.3.1 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 thefollowing 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 torequire 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.

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.

3.3.2 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.

3.3.3 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 beenconsidered 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.

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 lightof 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 1986.

Residential development on Alberni Street

25

3.4 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, andshopping 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.

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 3.

4.1 AMOUNT AND DISTRIBUTION OF COMMERCIAL SPACE

4.1.1 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.

4.1.2 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

4.2.1 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.

4.2.2 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.

4.2.3 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.)

32

ENGLISH

BA Y

D

Policy Areas

A Retail/Service

B Mixed Use

C Georgia/Alberni

0 100 200 (.00 Map No. 10

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 10. These

Policies supercede the currently approved policies listed in Section

7.1.2 of the Appendix. They are organized into four sections:

5.1 General Commercial Area Policies

5.2 West End Retail/Service Areas

5.3 Robson Mixed Use Area

5.4 Georgia/A!berni Area

5.1 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

5.4.1. 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 5.1.1 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.

34

Policy 5.1.2 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 10, is such that each resident is within one-quarter

mile of a residential area which is a comfortable walking distance

for most people.

Policy 5.1.3 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 5.1.4 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 12 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.

35

Policy 5.1.5 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 cleanand 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 tomaintain boulevards.

(d) reviewing potential for landscaping in boulevard areaswhere it would not conflict with on-street parking or

traffic safety.

(e) filling gaps in street tree planting along Robson andDavie 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

36

5.2 WEST END RETAIL/SERVICE AREAS

In addition to the Policies listed in Section 5.1, the following Policies

apply to the retail/service areas shown on the map below.

ENGLISH

BAY

West End Retail/Service Areas

Map No. 11

These Policies are intended to encourage a local serving, pedestrianorientation for these areas and improve their interfaces with the nearbyresidential areas. Together with the Policies of Section 5.1, they

achieve Objective 4.2.1.

37

Policy 5.2.1 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 localmarket, 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). Anydesirable exceptions (e.g. supermarkets, gas stations) canbe specified in the zoning schedule or guidelines.

(b) Some uses are objectionable or inappropriate in aresidential 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 productswas quashed by the Court of Appeal. The Legal Department is

exploring alternatives and proposes to report on these laterthis year.

38

Policy 5.2.2 Maintain and enhance the pedestrian orientation of theretail/service areas through an urban design concept which:

(a) limits shop front widths for most uses;

(b) provides pedestrian interest to any wide shop frontagesthrough display windows, planting, facade articulation,etc.;

(c) requires continuous retail/service use at grade fronting theshopping streets;

(d) locates auto-oriented facilities to minimize pedestrianinterference;

(e) achieves continuous but individualized weather protectionalong shop fronts;

(f) establishes building height limits which allow sunlightaccess 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 practicalthey will be incorporated in the new district schedule as

regulations.

Policy 5.2.3 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 residentialproperties for mixed use development;

(b) encouraging site consolidation along Denman Street betweenstreets and lanes which intersect Denman to achieve laneaccess 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.

39

Discussion:

The lack of a lane behind commercial development on both sides ofDenman 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

co

Q

c

03

E

ILane

rLane Lane

B

c

CO

£co

Q

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

5.2.2., 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 5.2.2.

In all of the above situations, there is no increase in the existing

commercial FSR potential, nor is there an

into the residential area.

'expansion1 of commercial uses

40

Policy 5.2.4 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 orcafe) and other features of pedestrian interest. Screening and/orlandscaping of the rear yard service and parking areas is very important.

41

5.3 ROBSON MIXED USE AREA

In addition to the Policies listed in Section 5.1, the following Policies

apply to the Robson Mixed Use Area shown on the map below.

I 31 31 31 3C^T3

Map No. 12

Together with the Policies of Section 5.1, these Policies are intended to

achieve Objective 4.2.2.

Policy 5.3.1 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 betweenthe West End and Downtown. It also is a linkage along Robson Street

between the Robsonstrasse area and the Robson retail/service areaproposed to the west. Given the current state of development with

several hotels and offices it does not seem feasible or desirable torequire continuous street-related retail uses, although such usesshould 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.

42

Policy 5.3.2 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 adequatesunlight 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

43

5.4 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 DevelopmentPlan will continue to apply to this area.

U1IMI \\

IJOO1

n 1MUM ITl

I1OO

Map No. 13

Policy 5.4.1 Formulate a Plan for the Georgia/Alberni area which achievesObjective 4.2.3 contained in this report.

Implementation:

The Planning Department will develop such a plan.

Discussion:

As noted in Section 3.2.3 the land use emphasis of this area shouldbe residential. The preparation of a detailed development conceptshould proceed concurrently with the resolution of the trafficpatterns in this general area and with a review of the residential

area to the south. This work is programmed for 1986 as a separate

study to be reported to Council.

0.)

47

6 IMPLEMENTATION

Upon adoption, the Objectives and Policies contained in Sections 4 and 5

would replace the Policies listed in Appendix 7.1.2. Policies 5.1.5 and

5.4.1 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 1986. 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

1

50

f'■''■'■j^-'l'-j

an

ENGLISH

8 A Y

Area

1

7

3

*

5

6

7

a

- Floor

H3XImun

Floor

Ratio

I,

2.

0

9

3

.

3

6

Space Rat

Space

*

5

2

io [F.S.R.

Heiqht (ft.l

60

60

300

1.^0

300

300

70

300

is the rigun

100 200 1-00 Map No. 14

obtained v.hen che area of the floor of

Che buildings on a site is divided by Che

area of the site.

51

7 APPENDIX

7.1 EXISTING COMMERCIAL AREAS POLICIES, REGULATIONS AND GUIDELINES AND

PROPOSED CHANGES

Following are excerpts from the West End Official Development Plan and

Council approved policies and guidelines which apply to the West End

commercial areas. Map 14 shows permitted densities and heights in the

West End commercial areas and surrounding areas.

The changes proposed by this Plan are noted in italics after each

section. These will be developed in detail at the implementation stage.

An important aspect of this Plan is the development of explicit

objectives and policies. Additional components not noted in this

appendix are the proposed follow-up urban design, engineering services

and police work.

7.1.1 West End Official Development Plan

The following uses are permitted in the commercial areas:

(a) Residential uses

(b) The following "small scale commercial uses catering primarily to

the needs of West End residents"

Bowling Alley;

Gasoline Service and Self-Service Stations;

Veterinary Hospital for the training or boarding of dogs or

cats;

- Offices;

Restaurant (excluding a drive-in);

Retail store or business;

School (business or commercial);

Theatre (excluding a drive-in);

Temporary Parking Area (public);

Uses of a similar character to the above.

(c) Hotels - only on the south side of Georgia Street between Chilco

and Cardero Streets, on Robson between Cardero and Jervis

Streets, and on the Sylvia Hotel site.

Residential uses would not be permitted at grade along the local

shopping streets. Commercial uses would be denoted with standard

by-law terms in a complete listing of outright and conditional

uses.

The maximum permitted floor space ratio is 2.2 with the maximum

floor space ratio for commercial uses being 1.2. The maximum floor

space ratio where hotels are permitted is 2.5.

52

Commercial use "shall not include the sale or rent of sex-orientedproducts". (Note: This clause was quashed by the Court of Appeal.)

Appropriate provisions would be provided based upon the upcoming

report from the Director of Legal Services.

The maximum permitted dwelling unit density within the 'C areas

shall be 70 units/acre. There is no maximum listed for the 'CH'areas.

The height of buildings shall not exceed sixty feet and a building

envelope. This maximum may be relaxed to 210 feet subject to impactanalysis.

This height provision would remain pending a review of heights

covering the entire Vest End.

Parking and loading requirements: "have regard to section 12 of the

Zoning and Development Bylaw".

Wording would be amended to reflect standard by-law.

"Exclusion from Floor Space Ratio

The following amenities and facilities are excluded from the floor

space ratio limitation provided that the area of such excluded

facilities contained in this section does not exceed 20 percent of

allowable floor space ratio or 10,000 square feet whichever is the

lesser. Such facilities will be excluded from the floor sapce ratio

provided that the areas are open to and primarily for the use of

residents, tenants and employees.

List of Excluded Uses:

(i) saunas;(ii) tennis courts;(iii) swimming pools;(iv) squash courts;(v) gymnasiums and workout rooms;(vi) games rooms and hobby rooms;(vii) other similar related indoor uses of a social or

recreational nature which in the opinion of the Development

Permit Board are of a type which contribute to social

amenity.

Wording would be amended to reflect standard by-law.

53

Off-street Parking:

No off-street parking spaces shall be provided in excess of the

number of employees on any one working shift (for included areas)

This phrase would be deleted and parking would be required inaccordance with Section 12.

Bonuses for Provision of Social and Recreational Amenities:

Where a need for any public, social, or recreational facility hasbeen demonstrated to the satisfaction of the Development Permit

Board, the Board may authorize for any building which includes one

or more of such facilities, an increase in the permitted floor space

ratio or density of a building, subject to prior approval by City

Council.

In determining the Increase 1n floor area or density that may be

authorized, the Development Permit Board shall consider:

(a) the construction cost of the facility;(b) any costs to the developer of continuing maintenance required

for the facility;

(c) the rental value of the Increased floor area;(d) the value of any authorized relaxation of other restrictions.

If appropriate such facilities shall be preserved in the public

domain by way of a registered agreement and operated by the city or

its delegates."

This section would be revised upon adoption of revised amenitypolicies.

7.1.2 West End Planning Policies (adopted by Council May 13, 1975;prior to adopting O.D.P.)

"Reduce permitted commercial densities of Davie Street, Denman

Street, and the 1600 and 1700 blocks of Robson Street."

"Encourage continuous retail or service use frontage on the groundfloor of shopping streets, and arcades on other pedestrian routes toadjacent streets."

"Encourage outdoor restaurants and other similar outdoor commercialuses of pedestrian interest."

"The number of service stations should not be Increased."

These policies would be deleted and replaced by the Objectives and

Policies contained in Sections 4 and S of this Plan.

54

7.1.3 West End Design Guidelines

The West End Design Guidelines document contains guidelines for

residential development which also apply to residential development in

the commercial areas. The reader is referred to that document for

residential guidelines. Commercial guidelines are listed below.

The intent of these guidelines is generally consistent with the

Objectives and Policies of this Plan. Wherever practicable,

guidelines would be changed to regulations. Where guidelines are

more appropriate the wording would be reviewed for clarity of

meaning. The Plan proposes additional aspects to be covered.

Entrance Shape and Location

Where existing retail stores directly abut the property lines, new

individual stores should continue to maintain the same existing

pattern to provide continuing pedestrian contact.

The individual entrance should be defined with a recess.

Half Levels

Retail stores should generally not be vertically separated from the

main pedestrian flow.

For retail stores to form part of the street activity; when built on

split levels, the retail level should not have a height difference

of more than 4'-5' from the main pedestrian path.

Local Scale Shopping Streets

The character of local shopping streets is achieved by small scale

buildings; signs, street furniture. Each store has individual store

front facades. Each building has an individual expression.

To maintain a local scale retail street each shop front should be

defined and articulated by distinctive building facade, canopies and

signs.

To create diversity and create a lively enjoyable pedestrian

environment store fronts should, where possible, be no more than 20'

- 25' wide along a street.

Any application for a development with individual store fronts

exceeding 25' wide shall be considered by the Development Permit

Board. The Board shall have particular regard to the 20' - 25'

store front width guideline and refer to City Council for advice

those instances which the Board may feel are controversial or

instances where the Board may believe a greater width is justified

but which have generated public controversy during the normal

Development Permit Board process. (Adopted October 16, 1984)

55

Weather Protection*

To make streets more pleasant in all weathers, canopies should be

provided that are not too small nor set back from the main

pedestrian path.

Shelters must be provided and designed to afford continuous rain

protection but not shut out any available direct sunshine.

The shelter must be located to protect the common pedestrian path.

The shelter can be of varied form, and canopies could be

convertible.

*See also Central Area Weather Protection (1979), approved by City

Council December 12, 1978

Outdoor Cafes

Outdoor cafes, including use of street space, will be encouraged.

As the sun is an important component in the comfort and use of this

outdoor space, buildings along the north sides of streets will be

encourged to have 15 feet (approximately) recessses to provideoutdoor restaurant seating space.

This space should be separately defined from the public space by special

paving, texture or treatments.

Buildings along the south sides of streets should maintain street facade

continuity and the outdoor space be convertible to indoor space in

inclement weather.

Outdoor dining would be permitted. Guidelines suggesting setbacks

would be deleted in favour of continuous retail frontage.

Additional guidelines convering Georgia, Alberni, and Robson Streets

are contained in the Downtown, West End, HA-1 and HA-2 Character

Area Descriptions. The reader is referred to those documents.

For convenience, the guidelines applicable to the West End would

be included in the West End Commercial Areas guidelines.

56

7.2 RETAIL/SERVICE AREAS CURRENT USES

The following are lists of current uses found in each of the

retail/service areas.

7.2.1 Davie Village Retail/Service Areas

Restaurant

Convenience Store

Laundry/Dry Cleaner

Office

Hair Stylist or Barber

Financial Institution

Clothing

Personal Care

Gas Station

Night Club

Bakery

Health Foods

Deli

Jewellry

Take-Out Food

Art/Poster

Sex

TV/Video

Hotel

Supermarket

Drug Store

Butcher

Liquor

Sporting Goods

Optical

Shoe Repair

Travel

Plants

23 (24% of shops) Stationary10 Photo

9 Auto Repair

5 Pet Supplies

4

3

3 TOTAL NO. OF

3

2

2

2

2

2

2

2

2

2

2

1

1

1

1

1

1

1

1

1

1

57

7.2.2. Denman/Davie Retail/Service Area

Restaurant

Convenience Store

Hair Stylist or Barber

Financial Institution

Clothing

Laundry/Dry Cleaner

Take-Out Food

Drug Store

TV/Video

Night Club

Supermarket

Bakery

Health Foods

Gift Shop

Jewellry

Photo

Art/Posters

Theatre

Travel Agent

Gas Station

Hotel

Pub

Deli

Sex Shop

Florist

Office

Butcher

Fish

Liquor

31 (21% of shops)12

12

7

7

6

6

4

4

3

3

3

3

3

3

3

3

2

3

2

2

2

2

2

2

1

1

1

1

Tailor

Phone Store

Kites

Furs

Bicycles

Books

Sporting Goods

Shoe Repair

Tobacco

Pet Supplies

Sewing

Optical

Cards

Chocolates

TOTAL NO. OF SHOPS:

1

1

1

1

1

1

1

1

1

1

1

1

1

1

14

58

7.2.3. Robson Retail/Service Area

Restaurant

Convenience Store

Hair Stylist or Barber

Laundry/Dry Cleaner

Office

Supermarket and Public Market

TV/Video

Clothing

Bakery

Liquor Store

Gas Station

Drug Store

Deli

Photo

Vacuum

Books

Shoe Repair

Personal Care

Art

Sports

Gifts

8 (20% of shops)

3

3

3

3

2

2

2

2

1

1

1

1

1

1

1

1

1

1

1

1

TOTAL NO. OF SHOPS 40

CBR:ds

1986 01

CBR

21