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Does Vancouver need to rezone when it already has lots of zoned capacity?

February 14th, 2012 · 77 Comments

New councillor Adriane Carr is bringing a motion to council on a topic much beloved by the various groups that have sprung up in opposition the last few years to various redevelopments, towers, rezonings and so on.

Those groups have made the point, or tried to, that there is lots of capacity in existing city land that’s already zoned for more density. They’ve been trying to get a number from the city to prove this.

Carr’s motion coming to council Tuesday is one more poke at this.

But I’d like to hear more from them about how useful they think this would be. The underlying assumption that I think I hear in their requests is that, if they can prove that there is already room for 100,000 more units in existing zoning that hasn’t been taken up yet, the city shouldn’t approve any more rezonings until that’s all gone.

I hope it’s not that simplistic, but I fear that it is. And if it is, getting that number will do nothing. Because, as anyone who knows anything about land development knows, just because someone’s land could be built at a higher density doesn’t mean that person is willing to tear down their existing building and rebuild something larger — even if it theoretically meant more money.

Sometimes they can’t be bothered. Sometimes they like what they have and don’t want to redevelop (hard to imagine in this city, but it exists). Sometimes they can’t get access to the capital needed to rebuilt. And hundreds of other reasons.

I live in an RT-5 zone, which theoretically allows everyone in the neighbourhood to tear down their house and build a duplex. In the 10 years I’ve lived there, that has only happened once in my particular quadrant of the city — last year. And it’s not going to result in more affordable housing. The builders have torn down some big old place that was rented out in suites to many people, most of whom seemed to have an unfortunate predilection for classic rock played loudly at 2 a.m. It will now be two million-dollar-or-more units.

The same is true in many other zones of the city.

I think (but could be wrong) that “we’re not anti-growth just better planning” groups might argue that, if rezonings were choked off everywhere else, then developers would be forced to go to the existing sites that have zoning capacity already.

However, I have my doubts that this would work. If existing owners don’t want to develop, the only way to entice them to is to offer more money. Developers could do that, but then they’d have to sell the units for more money. And the market may not be willing to pay the end price.

Those are my preliminary thoughts, but I’d very much appreciate it if someone could explain the thinking behind this drumbeat to know the number on Vancouver’s zoned capacity.

 

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  • boohoo

    gasp 50,

    Ok, so we sprawl out in the suburbs. Then what?

    Also,

    “More highways, he argues, will cut down on traffic congestion…” is entirely and totally false. Can anyone anywhere can find a single example of this being true?

  • Scott Mitchell

    I lived on Cambie in 3 storey 1950 walk up coop. No elevator, no outdoor space, huge 2 bedroom. Fantastic starter with min 25% down. Close to neighbourhood shops and transit. But car pollution. Why do we always suggest density should be on busy traffic arterials? Leave the arterial to two storey businesses and create zoning away from arterials. Oh that’s where the single family district is.

  • gasp

    boohoo,
    Last comment I’m making on this thread – personally I would like rail – like Japan, or England has – and hydrofoils and ferries coming into Burrard Inlet – like Sydney Australia had – to move people quickly and efficiently from town to town and across the water.

    adios

  • Chris Keam

    Suburbia will make sense again when companies realize how silly it it to make white collar workers drive across town to sit at a desk and work on a computer that’s probably older and slower than the one they have at home. It’s too bad we don’t have the visionary business leaders we need. Life would be so much better for so many people. Looking at the stressed and depressed faces of the people in their vehicles and on transit in the morning makes you wonder how far we are going to stretch people before they start to snap in significant numbers.

  • Lewis N. Villegas

    Lewis… I agree with you that there is an important role and need for ‘fee simple’ (that is to say, individually owned row houses, not part of a condominium) in Vancouver. For the life of me, I cannot understand why Vancouver’s Law Department says we need a charter amendment before they can happen. They happen virtually everywhere else in the world!

    Geller 5 responding to my first ever post on Fabula 6 may 2009. It was the night following the FormShift competition.

    Let’s let Michael be Michael, and bring on the row houses. You probably see them in Puerto Vallarta, especially in the historic neighbourhoods, built as courtyard houses. The Greeks had them, the Romans used them…

    The point about Development Cost Charges get passed on to the market place begs the other questions, “Doesn’t land lift get passed on as well?”

    So, Tax Increment Financing is a sensible way to pay for street revitalization and social infrastructure. The senior governments better be on board for when that included social housing. As the City Manager’s report of 1 february last year clearly demonstrated, our homeless are coming from provincial and federal care. Let’s write up the bill.

    However, the motion we are contemplating is just a number. Where I beg to differ with the Michaels is where the new development should take place.

    Over coffee we were looking at the zoning on Dunbar. C2-RS1-C2-RS1-C2 (red-white-red-white-red). Clearly, those white areas can intensify, and a plan can be in place to plant trees on that arterial, improve the trolley, and create more spaces that support social mixing.

    One member of our group raised the point that to do that is to trigger an immediate spike in land prices. If we make them fee-simple row houses, then the price of a lot for subdivision will jump from one million to two million.

    From the other side of the table came the suggestion to zone all the arterials out-right, at the same time as a way of flooding the market, creating competition, and hedging against Oak-Street-Style speculation.

    What I liked about that suggestion is that it is the “New Vancouver Special”. We didn’t build this town with a multiplicity of products. The cottage on a lot (25, 33, and 50-foot wide) happened everywhere, all at once, from before 1884 right up to today.

    We just need the high density alternative. Here are the particulars (dawn for the hardest case, the subdivision of the 25-foot lot):

    http://wp.me/p1mj4z-oJ

    On the thread on Translink, I’ve posted the ‘urbanist’ take on transportation. The same house can build out south of the Fraser.

    I can hear the price of housing dropping now. Half of a stacked town on the west side will cost more than in Cedar Cottage, which will cost more than Newtown, Cloverdale, Langley and ultimately Chilliwalk, more or less in that descending order. As the commuter rail trip lengthens, the price drops.

    Market economics.

    It is fundamental for ‘good’ urbanism that we understand how the parts fit together. How building type, transit choice, neighbourhood footprint and street revitalization on the arterials come together to give us the city and region we want:

    livable streets, walkable neighbourhoods, affordable regions.

  • Lewis N. Villegas

    CORRECTION: Cambie-Street-Style speculation… one arterial over.

    However, there are plenty of lots for subdivision along Oak. And the street conditions on Oak have been made un-livable due to High Traffic Volume.

  • boohoo

    gasp,

    I’m unclear how your point about rail meshes with the article you linked. Do you think densification is a good or bad thing? How do you even define that?

  • West End Gal

    Lots of chatter, lots of professional advice, lots of unsubstantiated opinions. Too bad the Vision propaganda bureau do not read other people’s advice. They have their own ideas, right?

  • Lewis N. Villegas

    net result [of Laneway Housing + extra FSR] is no affordable housing, huge tax free capital gain for owner, and another unaffordable “SFH” has been built, further reducing the housing stock for families.

    An idea for a better solution – if you take down a SFH of eg. 1750 sq feet then you have to build 2 SFH of that size or a duplex twice that size to provide housing for 2 families on that same lot… the fact that increasing the FSR would just increase the unnecessary destruction of older or smaller and more affordable homes was presented to City Council during their “EcoDensity” public hearings

    gasp 47

    Gasp, that’s a great post. The option you describe of putting two bungalows on one lot of the same size is being done in places like Marpole, zone RT-2 if I am not mistaken.

    However, the larger problem you present is the one about losing old houses, character buildings, to erect new monsters. I agree with you that we can do better than that.

  • Mira

    Quite true Lewis #59, I too agree with you. And after re-reading gasp #47 again I have also agree with Glissando #9 (task Force Agenda 1,2,3) We cannot deal with actions of the ones presented by gasp #47 and not have to think of what’s the root of the problem for that 🙁

  • brilliant

    A lot of these “solutions” merely seek to help homeowners cope with Vancouver’s ridiculous prices, rather than address the ridiculous prices. Pop the bubble!

  • Lewis N. Villegas

    Mira, anecdotal evidence is so important to understanding urban problems. We are all looking at the same concrete facts, but we all see them just a little bit differently.

    Brilliant, when that bubble pops, we could be looking at an even worse problem. Florida mortgages are over-valued by 60% if I recall correctly.

    I agree with you in the sense we are in an overheated market. Prefer a soft landing. However, there are also some opportunities. If you already own the land, then the cost of borrowing and the cost of construction are pretty cheap. Good time to build social housing for example.

    The other thing that touches on what Mira and gasp are touching on is the idea of targeting growth as the engine of change.

    Aside from affordability, what is the other problem afflicting our city?

    For me, it is the toxic arterials. Now, if we can wrap public investment in transit with private investment in residential intensification, and rebuild the arterials as greener, cleaner and quieter places that deliver maybe 3x more trip capacity (on transit vs. private cars) why not go there first?

    Why mess around as gasp and others have said in the neighbourhood streets that were working just fine, thank you very much.

    Not every solution “merely looks to help homeowners”. Some of us are working on urbanism as a multi-pronged problem requiring a more sophisticated solution than a Rise Tower.

  • MB

    @ brilliant #61: “Pop the bubble!”

    What bubble? We don’t have a housing price bubble, we have a land price challenge.

    A million more people are expected to arrive here over the next couple of decades where fresh, developable land is at a premium , and the seas are rising.

    Now, what is your realistic solution to the “bubble”?

  • MB

    @ Lewis #62: “Why mess around as gasp and others have said in the neighbourhood streets that were working just fine, thank you very much.”

    Many, many residential streets still contain row after row of 66-foot lots where the vast acreage in mown | potable water consuming | drugged up lawns offers a spectacular opportunity to address our urban challenges.

    Many of these low density neighbourhoods are cheek-to-jowl with arterials and town centres (e.g. Oakridge), which neatly illuminates one of the major inadequacies of our planning today. Towers to single family with only a thin invisible plane between them.

    This is not to say I disagree with the development of our arterials, and living close to one I appreciate the new services and amenities (and find the new low rise projects in my neighbourhood quite pleasing), especially when supported by a high-frequency, clean, high-capacity articulated electric trolley bus service.

    A $2.5 million 66-foot lot on the west side with one 3,000 sf house could otherwise support four $750,000 row houses at 2,000 sf if allowed to attain 0.9 to 1.0 FSR. If higher FSR could be allowed, some of the row houses could also have lane-oriented granny flats above a garage, or if designed similarly to a London terrace house, a generous secondary suite in the basement. All would still have garden space, albeit small.

    There are much cheaper 50 or 66-foot lots on the east side and in nearby suburbs, which should bring the per-dwelling price down.

    There is no physical reason why a string of 10 33-foot lots couldn’t be subdivided into a string of, say, 16 20-footer or 20 16-footer row houses, all much less expensive than a 33-footer, and still have 10 feet left over for a pedestrian walkway piercing through.

    Currently, this level of FSR is not allowed for single-family, nor is freehold attached row houses because of some archaic legal glitch. Surely the fire, privacy and management concerns can be addressed through design and having a simple contract with the neighbours.

    Moreover, we currently have heritage protection, and an architect worth his salt could incorporate existing houses with heritage value into the row housing mix, arguably adding interest. In addition, materials from the demolished houses (with, presumably, little architectural or heritage value — there are thousands!) could be recycled | resused in the new houses, though this step will increase the cost.

    Instead, and as the result of the existing situation, we get the 6,000 sf Max Monster displacing the original often charming smaller house without regard to the potential of the lot, save for additional laneway houses and secondary suites, many within 200 metres of high density towers.

    We can do better.

  • brilliant

    @MB 63-Of course there’s a bubble. Vancouver’s not London, Hong Kong or New York where economic activity justifies the price. And this is not the only city hemmed in by geography.

    I’ve outlined my solutions before. They’re realistic if there was political backbone. Abolish the investor immigrant class. We may need investors and immigration but that oesn’t mean we need to sell citizenship to thise with no intent to fully live here. To paraphrase your point, the only thing worse than a house on a 66 ft lot is an empty house on a 66 ft lot. Second slap a nice tax on second properties, other popular jurisdictions like Florida do it.

  • MB

    It may be possible to selectively abolish entire classes of immigrants, but I doubt it can be done without building the Great Wall of Vancouver or violating our core constitutional values.

  • brilliant

    It just takes the stroke of a pen. Canada is not bound to selling citizenship by any international agreement or the Charter of Rights. Everybody should enter on the points system, including the 1%.

  • Lewis N. Villegas

    … one of the major inadequacies of our planning today. Towers to single family with only a thin invisible plane between them.

    MB 64

    Last I checked lots on the west side were 50-foot. Most of Vancouver is 33-foot. But, the earliest areas, what we have termed the Historic Quartiers were platted with 25-foot wide lots.

    All three—25, 33 and 50 widths—can be subdivided to yield two houses on two (new) lots.

    The typology has been in place for centuries. I pick up the scent in 1600 Paris, when Henri IV develops Place Royale (des Vosges), Place Dauphin (alongside his his Pont Neuf—an incredible place to see the sun set into the Seine), and a set of town houses around a circular open space that was never built (Mansard built Place Victoires a few centuries later, no doubt with the projects of Henri IV in mind).

    However, what resonates with me most about your post is the notion of looking for places in our city where things are awry, including streets and arterials where the noise & pollution are too high to support redevelopment.

    Can we create a synergy there between triggering redevelopment and implementing transit? Does everyone understand that if transit goes on the ground, it removes cars from the road? But, that if it is Skytrain in the air, then it will be creating space from more cars?

    These are some of the ways in which urban design principles combine that are not immediately obvious to the common understanding.

  • Elizabeth Murphy

    Regarding Councillor Carr’s motion on existing zoned capacity, I fully support this motion which I think has been mischaracterized in the article.

    As I mentioned previously in post #26, existing zoned capacity is essential information required for planning processes and was used to create the last Regional Context Statement in 1999.
    http://vancouver.ca/commsvcs/bylaws/ODP/rcs.pdf
    See pages 6 to 11.

    Although providing updated zoned capacity information was already part of the work plan for the upcoming new Regional Context Statement for the recently passed Regional Growth Strategy, Councillor Carr’s motion moves this work ahead of schedule so that it is available to inform the new Community Plan processes for Grandview, West End, Marpole and DTES.

    See item 8 in the meeting minutes for the final motion that was approved.
    http://vancouver.ca/ctyclerk/cclerk/20120214/documents/cfsc20120214min.pdf

    Note the wording of the motion that confirms the calculation of existing zoned capacity is just part of staff’s existing work plan.

    “THEREFORE BE IT RESOLVED THAT Council request staff to report back, in a form that
    is practical, useable and within the existing work plans for the Regional Context
    Statement, with the following information:”

    Councillor Carr correctly understands that in order to plan for the future you have to first know what you have. She has a degree in Urban Geography from UBC and studied under the famed Walter Hardwick.

    This motion is nothing unusual and is why Council passed it unanimously.

    Once the information is available it will give opportunity for further analysis, but at this point it is premature to jump to assumptions.

  • Frances Bula

    @Elizabeth. But maybe you can explain to me exactly what you think this will be useful for. Even if zoned capacity exists, you can’t force landowners to develop their land if they don’t want to. So how do you see this information being useful for anything more than coffee-table discussion? I feel as though I’m missing some link here.

  • Frank Ducote

    The existing zoned capacity calculation is but the first step in a process. One must then make informed estimates of likelihood of change actually occurring within a particular planning horizon, based on historical trends, age and condition of buildings, cash flow to the owner, size of the property yada yada. Michael Gordon identified these and other factors previously. The size and shape of the parcel(s) in question matter quite a lot, as does zoning, since small commercial properties are difficult to assemble for many contemporary uses.

    The raw number is nothing in and of itself, IMO.

    Btw, it hasn’t been possible to build a strip mall in Vancouver since the bylaw was changed to preclude parking in front of them. Yet we still have many of them, since they turn a nice little profit for the owner.

  • Elizabeth Murphy

    @ Frances. Calculating existing zoned capacity is a standard part of the planning process. It is necessary to know what the total is and from there they estimate how much of that total is likely to be built over set periods of time. Assumptions are made about what will be eventually built to their highest and best economic use which is generally to the maximum allowed under outright zoning.

    It has been shown that whenever a property is redeveloped it is usually built to the full FSR allowed under that zoning bylaw. For instance if you look at older areas that were previously upzoned such as Fairview slopes (which was upzoned in the 1960’s-1970’s) it has been almost totally built to the maximum allowed under the zoning. There are very few of the original houses left in the area. The West End was on its way to complete build-out until the city brought in tower separation guidelines in the 1970’s to limit the number of towers.

    The commercial C2 zones are being developed incrementally, and when properties are redeveloped it is generally to the maximum allowed under the zoning bylaw. In C3A zones of Central Broadway it is allowed to land density from the Heritage Density Bank so those areas may be developed much higher than allowed outright. Downtown Districts can also add 10% to the FSR and height without the requirement to rezone if they buy the density from the Heritage Density Bank. And of course there are many CD1 rezonings that go far above what is allowed outright. Very seldom would a property be redeveloped to below the maximum allowed.

    It is true that some owners do not want to develop, but at some point in the future, say in 10 or 20 years they may want to sell and the new owner may want to develop it since the market value of the property would reflect. the highest and best use at the time which would be the outright zoning or higher. The farther into the future the planning process is projected, the higher the percentage of build-out of existing zoned capacity would be assumed.

    So basically existing zoned capacity is important when considering long term planning such as neighbourhood Community Plans or the Regional Context Statement. It is not intended for everything to be developed at once, but incrementally over time. It gives an overall picture to know what potential is available.

  • MB

    Thank you Elizabeth for articulating your reasoning behind supoorting Counc. Carr’s motion.

    But it doesn’t remove the discomfiture that the data could be used, for example, by a minority of NIMBYs to stop or block projects only because there’s a density vacuum elsewhere. I think it’s very important to identify the limits to growth in our neighbourhoods and what it will take to acceptably go beyond those limits. Because such things are always within a range, there is flexibility.

    Some projects may achieve greater acceptance in a community while others wouldn’t, though they may be of equal density. Benefits to the neighbourhood, design … elements like these have value beyond density.

    Perhaps the majority of readers would agree that more fine grain planning and urban design at the neighbourhood level in workshops would be a major step in the right direction. Constructive workshopping has a lot going for it, and it is there that a neighbourhood’s rigidities are defined and flexibilities uncovered, and therein where consensus can be built on development.

    The data set Carr is after may be just too rigid and broad of a measure to serve as an objective more complex than ‘for information purposes only’.

  • Michael Gordon

    I appreciate this discussion of housing capacity in areas of the city where we will be doing community planning over the next couple of years – the West End, Grandview-Woodland, the Downtown-Eastside and Marpole.

    My earlier comments were informed by a study that I supervised by a masters planning student who is interning with us that focused on mixed use buildings. Also, my thinking about this issue of the redevelopment of older commercial buildings on shopping streets began to change when I noticed that two good sized parcels on West 4th Avenue were developed a couple of years ago with one storey commercial buildings by a local commercial developer whose family holds the property and rents out the retail spaces. So I asked him, why did they not build housing above and benefit from selling residential condo’s on the upper floors. He told me that rents on West 4th Avenue made the numbers work and his family were more interested in the long term income and they looked at the properties as ‘long term holds.’ I am also intrigued that the owner of the development site being developed at Nelson and Denman chose to not develop the residential above the commercial even though they had originally obtained approval in a rezoning to develop a mixed use building. I had assumed that of course the housing would be developed because selling condo’s can be quite profitable for developers. But now my thinking has changed.

    So my student intern and I interviewed many people involved with commercial and mixed use developments on our shopping streets. It became apparent to me that different types of developers look at these sites quite differently:
    -some just are interested in building only commercial if it is a successful shopping district, and
    -some developers are primarily interested in building mixed use buildings and their primary interest is in selling strata units – commercial CRU’s on the ground floor and strata residential above.

    I anticipate that some commercial districts and sites will indeed over time site by site build out as mixed use and others, I believe, will remain primarily commercial. Also, commercial streets where there will be night life, restaurants with busy patios, and of course retail, may develop as solely commercial or if as mixed use, we must take care that the ground floors work as homes for businesses, that they are flexible well designed commercial spaces and can work for a variety of businesses and of course, that we look at ways to design the buildings to ensure that homes above can be designed to minimize noise and odour impacts (in the case of restaurants or bars).

  • Bill McCreery

    It seems that MG’s take @74 confirms one of the reasons why we need to know what the existing unused zoning capacity is, besides that it is step 1 in any planning process (if you owned a business would you not know to the last item what your inventory is?). If that information is known on an on-going basis plus the rate of change information, and its rationale that he also raises, these can be applied to knowing how much added zoning capacity a given neighbourhood might consider adding. It might allow planning and the neighbourhood to consider changing the existing zonings to encourage other kinds of redevelopment that property owners might find more attractive, and so on.

    The suggestion that Cllr. Carr’s motion is pandering to NIMBYs is inappropriate and misguided. I have worked with neighbourhoods across the City for the past couple of years and did as well in the 70’s. If you spend some time with them you will find by and large that these groups are not against development Frances. On the contrary, they want to see their neighbourhoods improve in as positive way and most recognize that some kinds of growth is part of that equation.

    What neighbourhoods do want is more certainty in the planning and development processes. Interestingly, developers also want more certainty for their own reasons. The present spot rezoning/CAC extraction process gives neither residents nor developers certainty, and the lack of it also increases land speculation, resulting in higher housing costs and creating conditions where more developers and contractors find themselves in financial circumstances not particularly of their liking.

    It has been said above that the zoned land along the arterials is not being developed. Historically for the past 40 years that has generally been the case because we’ve had bigger, easier pickings such as False Creek, etc. But, in the past few years I’ve notice a marked increase in new projects along Main Fraser, W. 4th, Broadway, Granville, Hastings. Maybe in addition to finding out how much zoning capacity we have Cllr. Carr needs to ask what the rates of change or zoning uptake there has been in various parts of the City and within various key zoning categories.

  • Frank Ducote

    Bill@75 – the uptake in arterial mixed use development you’ve noticed in recent years is due largely to C2 zoning changes in 1989 that made it more attractive to include residential in such zones, usually in 4-story forms. Prior to then, the residential portion was severely limited.

    The political motivation for this and other changes during that critical and booming period was to help protect older rental housing stock in areas zoned for high rise development, like Kerrisdale.

  • Victor

    What an informative discussion. Thank you everyone who participated. It should be Zoning 101 for the whole City. Excellent comments