Whenever new building developments are proposed, one of the key metrics commonly used by municipal governments to evaluate a project is its density, which is determined by the floor area ratio (FAR) — also known as the floor space ratio (FSR).
The resulting ratio quantifying density is calculated by comparing the total floor area of the building to the land area of the lot it occupies.
For example, a theoretical tower with 200,000 sq. ft. of total building floor area sitting on a 20,000 sq. ft. lot would have a density calculation of 10.0 FAR. If the total building floor area were just 20,000 sq. ft. on the same development site size, it would have a 1.0 FAR.
But now, the City of Burnaby has abandoned FAR density calculations for determining project approvals and policies.
In its place, the municipal government is adopting a “Height-Based Development Framework,” with new building heights being the new regulatory determinant.
This new framework based on height now replaces the previous use of FAR to determine a site’s development potential or the permitted density.
According to the municipal government, the use of FAR has become problematic as it was complex for City staff to administer, difficult for the public and applicants to navigate, and resulted in unpredictable building heights and forms.
This new height-based approach focuses on the physical form and design of a building, instead of complicated density calculations. It is intended to improve predictability and transparency for both developers and the public.
The framework also takes aim at Burnaby’s town centre and urban village areas anchored by SkyTran stations. It applies to nine zoning districts, entailing CM1 Neighbourhood Commercial, CM2 General Commercial, R2 Townhouse, R3 Low-rise Apartment 1, R4 Low-rise Apartment 2, R5 Mid-rise Apartment 1, R6 Mid-rise Apartment 2, R7 High-rise Apartment 1, and High-rise Apartment 2.
Under the new residential districts and permitted base heights of the Burnaby 2050 Official Community Plan, R1, R2, and R3 can see heights of up to four storeys, R4 can see heights of up to eight storeys, R5 up to 12 storeys, R6 up to 20 storeys, R7 up to 30 storey, and R8 up to 40 storeys.
Additional height beyond the framework’s prescriptions can be considered for projects that provide more commercial space to enhance economic vitality and support local job growth, community amenities, and/or “height averaging” to support a variation and transition of the height of projects with multiple towers.
For example, on a site with a building height limit of 40 storeys under the framework, height averaging for a project with three towers could permit a 35-storey tower, a 40-storey tower, and a 45-storey tower.
Example of floor area ratio (FAR) or floor space ratio (FSR) density calculations. (City of Burnaby)
Height-Based Development Framework. (City of Burnaby)
Height-Based Development Framework. (City of Burnaby)
These new policies also enable the City to align itself with the provincial government’s new legislation relating to housing, including transit-oriented development at designated Transit-Oriented Areas.
“Addressing the housing crisis in our region requires real leadership and a drive to innovate at every step of the development process,” said Burnaby Mayor Mike Hurley.
“Switching to a height-based framework is part of our comprehensive approach to accelerating the number of homes we build in Burnaby — while also making it simple for everyone to understand how their neighbourhoods can develop.”
The first project to receive the City’s preliminary approval under the new Height-Based Development Framework is a new 50-storey, mixed-use rental housing tower by Gracorp Properties and The Neighbourhood Church, which owns the development site at 7135 Walker Ave. in the Edmonds area. This is also the provincial government’s first BC Builds project within Burnaby.
Designed by Musson Cattell Mackey Partnership, this project will contain 384 market rental homes, 96 below-market rental homes, and a new replacement church and community space with an auditorium that is also suitable for theatre/community arts and other performances, as well as community-serving spaces (such as a food bank) and some office and retail spaces.
“Our application for the property at 7135 Walker weaves together a variety of uses and community-oriented spaces. Delivering an exciting project like this in partnership with BC Builds would have never been possible without the flexibility afforded by the Height-Based Development Framework that allows for a greater focus on the merits of the project,” said Adrien Rahbar, Vice President of Real Estate for Gracorp Properties.
“Burnaby is a clear leader among municipalities in Canada during these uncertain times and we hope to do many more projects together.”
Concept of The Neighbourhood Church redevelopment at 7135 Walker Ave. in Edmonds, Burnaby. (Musson Cattell Mackey Partnership/Gracorp Properties)
Concept of The Neighbourhood Church redevelopment at 7135 Walker Ave. in Edmonds, Burnaby. (Musson Cattell Mackey Partnership/Gracorp Properties)
Concept of The Neighbourhood Church redevelopment at 7135 Walker Ave. in Edmonds, Burnaby. (Musson Cattell Mackey Partnership/Gracorp Properties)
The City’s new approach has also been endorsed by the provincial and federal government, as well as real estate industry representatives and other major developers.
“This initiative sets an example for other municipalities looking to modernize land-use policies and respond to the need for more efficient and predictable processes, particularly in the context of Metro Vancouver’s ongoing housing affordability challenges. We commend Burnaby’s effort to align this new framework with the goals of enhancing urban design standards and increasing flexibility for mixed-use development,” said Anne McMullin, president and CEO for the Urban Development Institute.
Evan Allegretto, president of Intracorp Homes, added, “The City of Burnaby is demonstrating innovation and leadership in housing. To completely change a system of planning in a relatively short time is an incredible achievement. The Height-Based Framework helps give the public a system that is far easier to understand while supporting the housing industry by encouraging innovation and good urban design principles over a floor area ratio.”
The Height-Based Development Framework is part of the municipal government’s multi-phased Zoning Bylaw Rewrite, which first began in 2023. Earlier policy changes consolidated 12 different zoning districts for single- and two-family housing uses into the single R1 zoning district for small-scale multi-unit housing, which aligns with provincial legislation.