CITY OF VANCOUVER

POLICY REPORT
URBAN STRUCTURE

 

Date:

January 24, 2004

 

Author:

Ted Sebastian

 

Phone No.:

873 7458

 

RTS No.:

03734

 

CC File No.:

8009/8019

 

Meeting Date:

March 23, 2004

TO:

Vancouver City Council

FROM:

Director of City Plans in consultation with the General Manager of Engineering, the General Manager of the Park Board, and the Director of the Housing Centre

SUBJECT:

Adoption of the Hastings-Sunrise and Renfrew-Collingwood Community Visions

RECOMMENDATIONS

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of A, B, and C.

COUNCIL POLICY

In June 1995, Council adopted CityPlan: Directions for Vancouver as a broad plan for the city. In July 1996, Council approved the CityPlan Community Visions Terms of Reference [hereafter CCVToR], together with funding and staffing to test the process in two communities as a pilot project. Community Visions were designed to bring CityPlan to the local level. In July 1999, City Council approved the continuation of the Community Vision Program through the predominantly single family areas of the city.

SUMMARY AND PURPOSE

This report first describes how the completed Hastings-Sunrise and Renfrew-Collingwood Community Visions meet the criteria set out in the Terms of Reference which Council adopted in 1996. It then provides highlights from each Vision. Recommendation A is that the approved Vision Directions be adopted. Recommendation B instructs that the adopted Hastings-Sunrise and Renfrew-Collingwood Vision Directions be used to help guide decisions affecting these two areas, starting immediately. In addition, recognizing that following up the 20-year Visions will be a long term effort by both the City and community, Recommendation C is for a report back on an implementation action plan.

BACKGROUND

On many topics, CityPlan calls for local communities to determine more precisely how the plan's city-wide directions should be carried out locally. The mandate of the Community Visions Program is to "...have communities, assisted by staff, develop Visions that incorporate a wide range of community interests and describe common ground for moving in CityPlan directions." The program asks each community "...to implement CityPlan directions in a way and at a scale and pace that suits the community." [CCVToR]

The Vision process requires each community to move forward in CityPlan Directions, but allows flexibility in how that movement is undertaken. For example, the city already has enough unit capacity under current zoning to meet the regional population objectives, as noted in the City's adopted Regional Context Statement. Nevertheless, CityPlan calls for greater neighbourhood housing variety and housing affordability. The Visions program works with residents to find out what new housing types and locations are supported by the community, rather than imposing targets. The result has been that each completed Vision includes support for additional housing. A parallel approach is taken with other topics including services, facilities, parks, and transportation.

Visions for Kensington/Cedar Cottage (KCC) and Dunbar, the two pilot communities, were completed and adopted in July and September 1998. A complete evaluation of the pilot program was done, the program was modified, and Council approved continuing the Visions program throughout the mainly single family areas of the city, most of which have never had any local planning. The Sunset and Victoria-Fraserview/Killarney Visions were approved by


Council in January 2002. This report focuses on the Hastings-Sunrise and Renfrew-Collingwood Visions. Map 1 shows the communities and the Council-endorsed order for Visions planning.

DISCUSSION

1. Adoption of Community Vision Directions

The CCVToR set out criteria which the community process must meet for the Vision Directions to be considered valid, which can be summarised as:

(a) Furthering CityPlan

Appendix C describes in detail how Vision Directions carry out the 14 CityPlan Directions. To mention a few highlights, the Visions:

The City Perspectives Panel (CPP)

The CCVToR calls for a panel of respected citizens, who live outside the Vision communities, to wear a `city hat' while providing commentary on how well the Visions meet CityPlan directions. A six person City Perspectives Panel was appointed by Council at the start of the Hastings-Sunrise and Renfrew-Collingwood Vision process. They met to comment on how the Directions in the Choices Survey relate to CityPlan and regional plans. Their comments were included in Choices Survey for the information of people filling out the survey. They also reviewed the survey response. The CPP feels that the Hastings-Sunrise and Renfrew-Collingwood Visions fulfill the requirements of CityPlan and the CCVToR. The Panel's comments are attached as Appendix G.

(b) Reflecting Informed Community Opinion

The CCVToR call for the Visions program to seek common ground and the opinion of the broad community, not just a few people. There are to be a variety of ways for people to be involved, in an informed way. Appendix D provides detailed information on the public participation in the Visions. Below are some highlights.

Overall, the Hastings-Sunrise and Renfrew-Collingwood Visions meet the CCVToR criteria of furthering CityPlan, and reflecting informed community opinion. They are also the result of broad, valid input, and a legitimate reflection of community opinion. Staff therefore recommend Council endorse the Vision Directions, as outlined in Recommendation A.

2. A Summary of the Community Visions

Appendices A and B contain the Hastings-Sunrise and Renfrew-Collingwood Community Visions for Council endorsation. Each contains over 120 Vision Directions on a full range of CityPlan topics that will guide decisions in the communities for up to 20 years. They reflect how the communities will balance citywide and community concerns, and meet the challenges of the future. Only a flavour of the Vision Directions can be provided in this summary.

(a) Hastings-Sunrise Vision

Hastings-Sunrise is a community of 33,045 residents, with two major language groups (by mother tongue): 41% Chinese and 38% English. In 2001, the median household income was $43,031 compared to the overall Vancouver median of $42,026. Other than the port lands bordering Burrard Inlet and a small industrial area adjacent to Boundary Road, the area is predominantly small lot single family, with secondary suites permitted and common. The area was almost fully developed prior to World War II, and there is now a mix of older "character" and newer redeveloped houses, particularly north of Adanac. At the request of community leaders, the Vision area also includes the apartment area bounded by Hastings, Nanaimo, Semlin, and Burrard Inlet. This area's 5,600 residents have a lower median household income (about $29,000) and higher ratio of English as a mother tongue (about 50%) than the rest of the community.

Hastings-Sunrise is a community rich in diversity and history. Its residents value the area's distinct single family neighbourhoods, character homes, views of the mountains and Burrard Inlet, and convenient shopping areas. The area's community centres and neighbourhood houses are heavily used and its parks and open spaces are considered key assets. The community's tradition of involvement in local issues continues with active neighbourhood groups, community schools, business improvement association, and community policing office.

The Hastings-Sunrise Vision seeks to enhance an already appealing community. Here are some key messages.

Unlike most of the city's single family areas, Hastings-Sunrise had a local area plan adopted by Council in 1985. Most of the plan's policies and actions had been implemented before the Vision process began. Other policies were no longer community concerns while some continued to be important issues. The Vision is a contemporary expression of community priorities, addresses the full range of CityPlan topics, and covers the full Vision area. As a result, the Vision replaces the 1985 plan.

Hastings-Sunrise also has two areas which require both more detailed planning and more binding commitment than the Vision can deliver: the port lands and Hastings Park. As a result, separate planning processes have been established for each of these areas. The plans which emerge from these initiatives will supplement the Vision, `filling in' areas which the Vision did not address in anticipation of these plans for subareas of the community.

(b) Renfrew-Collingwood Vision

Renfrew-Collingwood has 44,950 residents, with 44% Chinese and 27% English as major language groups. In 2001, median income was $42,185 compared to a Vancouver median of $42,026. Renfrew-Collingwood has a mix of residential neighbourhoods. Higher density townhouses and mid-rise apartments are clustered around the Joyce SkyTrain station. Nanaimo Station has some medium density apartments nearby and there are new rowhouse developments on old motel sites on Kingsway near Norquay Park. Apartments above stores are starting to be developed in commercial areas. However, most of the community is made up of neighbourhoods of single family homes. Lots are larger and houses generally newer than in Hastings-Sunrise, giving the area a more `suburban' character. The area also includes the large format retail and industrial uses between Grandview and Broadway.

Renfrew-Collingwood residents value the area's single family neighbourhoods, views from public places, and open sections of Still Creek and Renfrew Ravine. The area's parks offer precious open space and are heavily used as are the community centre, pool, neighbourhood house, libraries, and community policing centre. The Vision seeks to maintain these community assets.

The Renfrew-Collingwood Vision also seeks to improve the community. Key Vision messages include:

Overall, each Vision is a rich expression of community priorities that identifies what residents value and want to protect, as well as things that should change, and how.

3. Implementing the Hastings-Sunrise and Renfrew-Collingwood Community Visions

Recommendation B directs that Visions be used to guide City decisions, corporate work priorities, budgets, and capital plans. Beyond that, Recommendation C directs staff to report back (as we have done in KCC, Dunbar, VFK, and Sunset) with a detailed action plan for each community developed in consultation with community members (action plans are posted, and regularly updated, on the Community Web Pages of areas with adopted Visions, e.g. http://www.city.vancouver.bc.ca/commsvcsplanning/cityplan/visions/VFK_Actionpln.htm).

Several CLG members from Hastings-Sunrise and Renfrew-Collingwood have expressed an interest in being involved in the implementation of their Vision. The experience in other communities has been that these long-term participants are joined by new volunteers with a keen interest in seeing the Vision implemented. Overall, the broad participation and bottom-up nature of the Community Vision process helps build community capacity to move forward through implementation.

The implementation process in these two communities will be initiated using existing resources. A subsequent report will discusses additional requirements for Vision implementation in the longer term.

FINANCIAL IMPLICATIONS

The CityPlan direction on City finances is to continue to be cautious about increasing spending, and to use CityPlan to re-direct funds. This direction was taken as a given during the Vision programs, including the workshops and Choices Survey.

Adopting the Vision Directions for Hastings-Sunrise and Renfrew-Collingwood does not imply an increase to the City's budget. In order to achieve some Vision Directions in the short-term, hard choices among civic spending priorities would be required. However, in the longer-term, Vision implementation may be supported by the development of servicing efficiencies, the creation of new partnerships, and the harnessing of external resources.

The Visions will help the City and the communities set priorities and direct or reallocate funds to programs which achieve the Visions (for example the refocusing of Community Planning staff to complete Neighbourhood Centre commercial realm and housing plans in KCC). Changes will happen over time, extending over the life of the Visions, 15 to 20 years into the future.

PERSONNEL IMPLICATIONS

The teams which helped the community develop the Hastings-Sunrise and Renfrew-Collingwood Community Visions are now working in Riley Park/South Cambie and Arbutus Ridge/Kerrisdale/Shaughnessey. A subsequent report will discuss staffing recommended to work with Hastings-Sunrise and Renfrew-Collingwood on implementing their Visions.

COMMUNICATIONS PLAN FOR THE FINAL VISIONS

After the Vision is adopted, a Newsletter is prepared which announces adoption of the Visions, contains Vision highlights, and invites people to attend a large workshop to initiate the implementation process (the newsletter contains the same information in English and Chinese). The newsletter is delivered to each household and business in the community. The Vision is posted on the City website and copies are provided in the community's libraries, community centres, and neighbourhood houses. This concludes the Community Vision process.

Funds for printing and distribution of the newsletter and final Visions, as well as the website posting, come from the Community Visions Program budget.

CONCLUSION

The Community Visions developed in Hastings-Sunrise and Renfrew-Collingwood through the Community Vision Program succeed in the tasks set by the Council-adopted Terms of Reference. They "...incorporate a wide range of community interests and describe common ground for moving in CityPlan directions...in a way and at a scale and pace that suits the community." When adopted, the Vision Directions will help provide guidance for both City and community action.

LINK TO APPENDIX A

LINK TO APPENDIX B

LINK TO APPENDICES C TO G

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