1 City of Surrey PLANNING & DEVELOPMENT REPORT File: Rezoning Development Permit Proposal: Rezone from RA to CD and Development Permit to permit the construction of two office buildings which will include a Withdrawal Management Centre. Recommendation: Approval to Proceed Location: 13718/32/48 - Zoning: RA 94A Avenue OCP Designation: Commercial Owner: South Fraser Healthcare Foundation
2 PROJECT TIMELINE Initial Application Submission Date: March 17, 2004 Completed Application Submission Date: July 19, 2004 Planning Report Date: September 7, 2004 The applicant is proposing: a rezoning from RA to CD; and a Development Permit to permit the development of a Withdrawal Management Centre and offices for health care related uses at 13718/32/48-94A Avenue across the street from Surrey Memorial Hospital, at the southern edge of Surrey City Centre.
3 The Planning & Development Department recommends that: 1. a By-law be introduced to rezone the property from "One-Acre Residential Zone (RA)" (By-law No ) to "Comprehensive Development Zone (CD)" (By-law No ) and a date be set for Public Hearing. 2. Council authorize staff to draft Development Permit No generally in accordance with the attached drawings (Appendix II). 3. Council instruct staff to resolve the following issues prior to final adoption: (a) (b) (c) (d) (e) ensure that all engineering requirements and issues including restrictive covenants, and rights-of-way where necessary, are addressed to the satisfaction of the General Manager, Engineering; submission of a subdivision layout to the satisfaction of the Approving Officer; input from the Department of Fisheries & Oceans, Canada; submission of an acceptable tree survey and a statement regarding tree preservation; and submission of a landscaping plan and landscaping cost estimate to the specifications and satisfaction of the City Landscape Architect. REFERRALS Engineering: The Engineering Department has no objection to the project subject to the completion of Engineering servicing requirements as identified in the attached (Appendix III). SITE CHARACTERISTICS Existing Land Use Temporary surface parking lot. East: Parking lot and 3-storey medical building zoned C-8 and LUC 291, designated Commercial. South: Quibble Creek (on a lot partially occupied by a commercial nursery and garden centre), zoned CD By-law No , designated Urban. West: Three-storey medical building, zoned C-8, designated Commercial. North: Surrey Memorial Hospital, zoned CD By-law No , designated Urban. PLAN AND POLICY COMPLIANCE OCP Designation: Complies. DEVELOPMENT CONSIDERATIONS The subject site at 13718/32/48-94A Avenue at the southern edge of Surrey City Centre is currently designated
4 Commercial under the Official Community Plan and is currently zoned One-Acre Residential Zone (RA). The applicant, the Surrey Memorial Hospital Foundation, is proposing to consolidate the three lots and rezone them from RA to a Comprehensive Development Zone (CD) in order to permit the development of two office buildings, a portion of which will be occupied by a Withdrawal Management Centre. The project will be developed in two phases. Phase One will consist of a 2,629 square metre (28,000 sq. ft.) two-storey building that will house a Withdrawal Management Centre on the ground floor and space for offices on the second floor. The Phase one building will be located on the east half of the site. Phase Two will consist of a two or three-storey office building containing 1,400 to 2,400 square metres (15,000-26,000 sq ft.). At present, the applicant has no firm plans with respect to the siting, design and layout of the building proposed for Phase Two. The Phase Two building will be located on the west half of the site. The applicant will apply for a separate Development Permit for the Phase Two building in the future. The proposed CD By-law will be based on the C-8 Zone, in terms of density, lot coverage and building height, but uses on the site will be restricted to offices, community service uses limited to referral and counseling on an out-patient basis, and an alcohol and drug recovery house (Withdrawal Management Centre). The C-8 Zone permits a wider range of commercial uses. Since the southern edge of the site is impacted by Quibble Creek, a Restrictive Covenant will be placed on the southerly 34.0 metres of the site for riparian area protection purposes. Withdrawal Management Centre A substance and alcohol detox centre was operated for many years on Provincial government land in New Westminster under the name of Maple Cottage Detox. A few years ago, the Provincial Government sold the land on which Maple Cottage was situated. As a result, Maple Cottage moved to temporary facilities in Burnaby until a new location for the facility could be found. The Surrey Memorial Hospital Foundation recently decided to develop three lots on 94A Avenue that are currently occupied by a temporary surface parking lot. The parking stalls in this temporary parking lot are not required, from the perspective of the Zoning By-law parking requirements, in relation to Surrey Memorial Hospital. Both the original Temporary Use Permit to allow development of the surface parking lot on these lots, and the extension of the Temporary Use Permit that allowed a 2-year extension of the parking lot use have expired. The Surrey Memorial Foundation is proposing to construct two buildings on the three lots, which will be consolidated into one lot. Maple Cottage, (i.e. the Withdrawal Management Centre) which is operated and completely funded by the Fraser Health Authority, is now partnering with the Surrey Memorial Hospital Foundation to occupy the entire ground floor of the first phase building proposed for the subject site. The Withdrawal Management Centre will occupy an area of 1543 square metres (16,600 sq. ft.) and will contain 28 single occupancy rooms and 1-double occupancy room which will permit a maximum of 30 clients to be treated at the facility at any one time. Two of the rooms will be wheelchair accessible.
5 Although the Withdrawal Management Centre provides substance withdrawal management primarily to male and female adults, the facility will also provide 6 permanent beds for youth (those 18 years of age and under). These 6 youth beds are included in the 30 beds provided in the facility. In addition to sleeping accommodation, the facility will also contain a dining room and associate kitchen support areas, communal washrooms, lounges, multi-purpose and meeting rooms and associated maintenance and building support rooms. The northerly end of the facility facing 94A Avenue will be occupied by offices, meeting rooms and support rooms for staff. The Withdrawal Management Centre assists persons during the withdrawal period that immediately follows the cessation of substance use. Clients may be withdrawing from alcohol, street drugs or prescription drugs. The Withdrawal Management Centre will not provide any needle exchange facility. Clients are referred to the facility by area hospitals, community agencies and physicians. Clients may also selfreferral. The facility will cater to persons from all walks of life and to all socio-economic groups from the homeless to middle and upper-class persons with family and full-time employment. The Withdrawal Management Centre is a voluntary facility where clients have the right to check-in or to discharge themselves. During treatment, however, clients must stay within the confines of the facility until they are discharged. Normally clients stay at the Withdrawal Management Centre an average of 5 days. Under rare and exceptional circumstances, the length of stay may be extended to a maximum of one week. To protect the confidentiality of clients, the general public is denied access to the facility, although clients may have visitors, who are restricted to specific sections of the facility. The facility operates with three staff shifts. There are 12 staff members, including medical practitioners, on-site during the day, with a minimum of 4 staff on-site during the evening shift and 4 staff during the night shift. Justification for the Withdrawal Management Centre The Withdrawal Management Centre is funded and operated by the Fraser Health Authority and provides medical supervised substance withdrawal management. This is the only facility within the Lower Mainland under the jurisdiction of the Fraser Health Authority to provide this level of service. When clients complete their stay at the Withdrawal Management Centre, they are often in need of additional psychological and counseling support services. If clients do not have their support system (such as family members) or the financial resources to obtain their own psychological and counseling services, they may seek help at a alcohol and drug recovery house, which is the next step in the recovery process after withdrawal. There are number of alcohol and drug recovery houses throughout Surrey, usually housed in single family dwellings. These alcohol and drug recovery houses are managed by independent operators under contract with the Fraser Health Authority. These alcohol and drug recovery houses do not provide medically supervised withdrawal services. As a medically supervised facility, the Withdrawal Management Centre compliments the services provided by Surrey Memorial Hospital and by the Fraser Health Authority on the Surrey Memorial Hospital site.
6 The subject site on which the Withdrawal Management Centre proposes to locate is a small, isolated pocket of commercially designated lands immediately south of Surrey Memorial Hospital that is deemed appropriate for hospital related activities. The lots immediately to the east and west of the subject site are occupied by medical offices that are compatible with the office buildings proposed for the site, as well as with the Withdrawal Management Centre. Council has recently given third reading to a By-law to rezone the lot at A Avenue, two lots to the west, to accommodate a 36 unit alcohol and drug recovery house to be operated by the Phoenix society. This facility provides support services and short term accommodation to assist clients to reintegrate into society once they have completed substance withdrawal and is therefore compatible with the services provided by the Withdrawal Management Centre. There are no residential uses on 94A Avenue in the vicinity of the subject site, other than the congregate care facility at the western end of 94A Avenue close to King George Highway. Although there are existing single family neighborhoods to the south and east of the subject site, Quibble Creek provides a significant buffer and barrier between the subject site and these single family neighborhoods. Council recently adopted Locational Guidelines for Alcohol and Drug Recovery Houses (Appendix IV). One of these criteria indicate that such facilities should be located on arterial roads. Although the proposed Withdrawal Management Centre is located on 94A Avenue which is not an arterial, the site is half a block from King George Highway which is a major arterial. The guidelines also indicate that alcohol and drug recovery houses should be located more than 600 metres from a school/park site and from other recovery houses. The guidelines, however, permit recovery houses to be located less than 600 metres from such facilities if they are unlikely to generate negative impacts. Even though the subject site is less than 600 metres from Queen Elizabeth High School, the site is located in an isolated pocket on a local street and is separated from Queen Elizabeth High School by King George Highway, and will not have any negative impacts on this educational facility. Further, even though the proposed Withdrawal Management Centre is located less than 600 metres from the proposed Phoenix Alcohol and Drug Recovery House, these two facilities are complimentary and no negative impacts are anticipated. As noted in the Pre-notification section of this report, staff received no objections from landowners within the 100 metre pre-notification area to the proposed Withdrawal Management Centre. The lands to the north, east and south of Surrey Memorial Hospital are designated commercial and are expected to accommodate commercial, residential and institutional uses that are related to, or complimentary to, the activities and uses on the Surrey Memorial Hospital site. The ownership of the proposed buildings by the Surrey Memorial Hospital Foundation will influence the use of the site. The applicant advises that the space will likely be occupied by groups and organizations that are related to, or associated with, Surrey Memorial Hospital or the Fraser Health Authority. The proposed office buildings conform to the existing commercial designation of the site and to the long term vision for the Surrey Memorial Hospital precinct.
7 As a medically supervised substance withdrawal facility, the proposed Withdrawal Management Centre provides services that are complimentary with both Surrey Memorial Hospital across the street and with the proposed Phoenix alcohol and drug recovery house two lots to the west. As a result, the proposed rezoning and Development Permit are supported by staff. PRE-NOTIFICATION Pre-notification letters were sent on April 1, 2004 and staff received no comments. As no comments were received from area property owners in response to the pre-notification letter, a public information meeting was not held. DESIGN PROPOSAL AND REVIEW The proposed Phase One building will generally be two-storeys in height, although the southerly portion of the building, occupied by the residential component of the Withdrawal Management Centre, will be only one storey in height. The majority of the ground floor of the proposed building, will be clad in wood siding and wood panels to give the building a softer, more residential feel. The second floor of the building will be clad in a dark glass curtain wall that, along the northern and western sides of the building, will extend to the ground. Stucco and concrete block accents and metal trim have been incorporated into the exterior design in order to provide additional architectural interest. The main entry, including the main stair access to the second floor offices, will be clad with substantial amounts of clear glazing to give more prominence to the entry. After Phase One will include the retention of 124 surface parking spaces on the balance of the site. Access to these parking spaces will continue to be from 94A Avenue. Of the 124 parking spaces, a total of 51 parking spaces in this surface parking lot will be set aside for use by the Withdrawal Management Centre and the second floor office component of the Phase One building, which is 21 more parking spaces than is required under the proposed CD By-law. The remaining 73 parking spaces will be available for use by the public until construction of the Phase Two building. ADVISORY DESIGN PANEL ADP Meeting: August 12, 2004 The ADP recommendations remain outstanding and will need to be addressed prior to final approval. The principal issues that still need to be addressed are as follows: Refinement of the main entry Appropriate screening of rooftop mechanical units/fixtures Reconsideration of the loading area
8 Improved street edge and internal landscaping The applicant has indicated that these issues will be addressed and revised plans submitted in due course. INFORMATION ATTACHED TO THIS REPORT The following information is attached to this Report: Appendix I. Appendix II. Appendix III. Appendix IV. Appendix V. Appendix VI. Lot Owners, Action Summary and Project Data Sheets Site Plan, Floor Plans and Elevations, and Landscape Plans Engineering Summary Advisory Design Panel Comments Proposed Locational Guidelines for Alcohol and Drug Recovery Houses CD By-law INFORMATION AVAILABLE ON FILE Detailed Engineering Comments dated May 6, Soil Contamination Review Questionnaire prepared by Richard Coulter and dated March 10, GAG/rdd/kms v:\wp-docs\planning\plncom04\ gag.doc KMS 9/7/04 12:06 PM Murray Dinwoodie General Manager Planning and Development APPENDIX I Information for City Clerk Legal Description and Owners of all lots that form part of the application: 1. (a) Agent: Name: Richard Coulter Address: 1491 Corey Rd. White Rock, B.C. V4B 3H9 Tel: Properties involved in the Application (a) Civic Addresses: 13718/32/48-94A Avenue (b) Civic Address: A Avenue Owner: South Fraser Health Care Foundation PID:
9 Lot 8, Section 33, Township 2, NWD (c) Civic Address: A Avenue Owner: South Fraser Health Care Foundation PID: Lot 9, Section 33, Township 2, NWD (d) Civic Address: A Avenue Owner: South Fraser Health Care Foundation PID: Lot 10, Section 33, Township 2, NWD (a) Introduce a By-law to rezone the property. v:\wp-docs\planning\plncom04\ gag.doc KMS 9/7/04 12:06 PM DEVELOPMENT DATA SHEET Required Development Data Minimum Required / Proposed Maximum Allowed LOT AREA* (in square metres) Gross Total 10,710.0 m² Road Widening area 84.5 m² Undevelopable area 2,208.0 m 2 Net Total 8,421.5 m² LOT COVERAGE (in % of net lot area) Buildings & Structures 50% 18% Paved & Hard Surfaced Areas Total Site Coverage SETBACKS ( in metres) Front 2.0 m. 8.4 m Rear 7.5 m m Side #1 (E) 3.6 m. 3.6 m Side #2 (W) 3.6 m m BUILDING HEIGHT (in metres/storeys) Principal 12 m. 8.0 m. Accessory 4.5 m. Proposed Zoning: CD
10 NUMBER OF RESIDENTIAL UNITS Bachelor One Bed Two Bedroom Three Bedroom + Total FLOOR AREA: Residential FLOOR AREA: Commercial Retail Office Total FLOOR AREA: Industrial FLOOR AREA: Institutional TOTAL BUILDING FLOOR AREA 6,737 m² 2,629 m² * If the development site consists of more than one lot, lot dimensions pertain to the entire site. Development Data Sheet cont'd Required Development Data Minimum Required / Maximum Allowed Proposed DENSITY # of units/ha /# units/acre (gross) # of units/ha /# units/acre (net) FAR (gross) FAR (net) AMENITY SPACE (area in square metres) Indoor Outdoor PARKING (number of stalls) Commercial Industrial Residential Bachelor + 1 Bedroom 2-Bed 3-Bed Residential Visitors Institutional Total Number of Parking Spaces Number of disabled stalls
11 Number of small cars Tandem Parking Spaces: Number / % of Total Number of Units Size of Tandem Parking Spaces width/length Heritage Site NO Tree Survey/Assessment Provided NO v:\wp-docs\planning\plncom04\ gag.doc KMS 9/7/04 12:06 PM
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