POLICY REPORT
PHYSICAL SERVICES
Date: February 21, 2000
Author/Local: S. Chan/7437;
I. Shepherd/325-2646
RTS No. 00796
CC File No. 5127Council: March 7, 2000
TO: Vancouver City Council
FROM: Director of Non-Market Operations and Manager of Mountain View Cemetery
SUBJECT: Mountain View Cemetery Master Plan and Implementation
RECOMMENDATIONS
A. THAT Council receive for information the report MOUNTAIN VIEW CEMETERY MASTER PLAN with accompanying FINANCIAL REPORT, OPERATIONS REPORT, MANAGEMENT REPORT AND MARKETING REPORT AND IMPLEMENTATION SCHEDULE prepared by the consulting team of Philips Wuori Long, Pechet + Robb, Harris Hudema, E. Lees and Associates, CitySpaces and Michael Kluckner.
B. THAT Council approve the following recommendations to guide the Cemetery redevelopment:
1. That the Master Plan for Mountain View Cemetery to guide redevelopment of the Cemetery, be adopted in principle;
2. That, based on the 20-year Master Plan Cash Flow Projections showing a breakeven in year 8 and a surplus by year 10, Council authorize the establishment of a revolving Cemetery Capital Reserve and provide up to $1Million on an interim basis to facilitate the construction of capital projects AND THAT the Director of Finance be authorized to determine the appropriate source and repayment terms for this interim financing;
3. That staff be directed to bring forward amendments to the CemeteryBy-law that facilitate implementation of the Master Plan;
4. That staff be directed to proceed with the 2 to 3 year first phase of the Implementation Schedule as outlined in the Marketing Report, and in Appendix A and report back annually on progress;
5. That the current level of staffing at the Cemetery be maintained, but be restructured to improve efficiency and effectiveness and to deliver new services, subject to a review at the end of the first phase of implementation, and classification review by the General Manager of Human Resources;
6. Approve the addition of Marketing and Project Management expertise, from existing fund allocation, at an annual cost of approximately $120,000;
7. That a Mountain View Cemetery Advisory Board be established to provide a broad representation of community interests including one representative each from Heritage Commission, Heritage Vancouver and one nominated by the Vancouver Park Board. Staff to report back with the Terms of Reference and recommendations for appointment before the end of 2000;
8. That staff be directed to report back on the feasibility of establishing the Mountain View Cemetery Foundation at the end of the first phase of implementation;
9. That staff be directed to report back on alternatives for governing the Cemetery in the future at the end of the first phase of implementation.
C. THAT Council affirm the following principles:
1. Mountain View Cemetery will be operated as a City-owned public facility that reflects industry and market demands and provides options for interment and memorialization, and provides for long term maintenance funding;
2. Graves will not be relocated;
3. Heritage elements will be preserved and enhanced;
4. Landscape character will be improved;
5. Important views to the mountains and internal to the Cemetery will be preserved;
6. Public and volunteer participation will continue to expand the Cemetery's role as a welcoming and important public space in the City.
D. THAT Council designate the four Veterans' areas as Fields of Honour.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A, B, C and D.
COUNCIL POLICY
There are no applicable Council policies to govern most aspects of this report, however, the following policies apply to some aspects of the Cemetery:
The closure of 37th Avenue at Mountain View Cemetery west of Fraser Street be made permanent for Greenway development.
The closure of the Mountain View Cemetery for all burials be effective April 1, 1986, save to provide burial services to those plots sold and leased on a pre-need basis and for the burial indigents.
SUMMARY
Following receipt of the Vision Plan for Mountain View Cemetery on June 18, 1998, Council authorized the preparation of a master plan to guide Cemetery development for the next hundred years. By responding to the changing needs of the public for memorialization options and services; by more efficient use of scarce land resources; and by reclaiming unused plots for resale, the Cemetery could re-open for business and become financially viable. Mountain View Cemetery could then begin fulfilling the public's demand for memorialization opportunities within the City's boundaries.
The Master Plan was prepared with considerable public and stakeholder input. The Citizens Advisory Group and the Staff Liaison Committee provided valuable advice and guidance. Broader public input was obtained through public open houses and representatives of the Funeral Industry were also used to test support for the memorialization concepts in an openmeeting.
The Master Plan strives to create a more coherent and unified Cemetery. A new circulation plan bridges the streets which bisect the Cemetery. The plan acknowledges neighbourhoods with historically significant character within the cemetery. To address safety concerns, Crime Prevention Through Environmental Design (CPTED) principles are applied. More efficient use of scarce land resources is proposed with the closure of unnecessary roads; the development of higher density projects; the use of perimeters and boulevards; and the consolidation of maintenance, administration and caretaker uses into a single site. Columbaria, crypts, mausolea, a scattering pond, memorial walls and an open air chapel can be built on land made available through the above strategies.
The capacity of the Cemetery can be doubled with this range of interments and memorialization and provide for the more than 70% of British Columbian families that choose cremation. There are some outstanding issues concerning the perimeters and boulevards that require resolution with Engineering Services before projects in those areas may be contemplated. As there are services located within these perimeter areas, a business case must be made before these projects should proceed. Fortunately, the viability of the Cemetery is not dependent upon these perimeter areas being fully developed.
The Master Plan is accompanied by four other reports: the Financial Report, Operations Report; Management Report; and Marketing Report and Implementation Schedule.
The Financial Report is positive. The Cemetery is an asset that can generate sufficient revenue over the next 20 years to increase the Perpetual Care Fund to the sustainable $20 -25Million level and achieve an operating surplus. The value of only reclaimable plots is a capital asset worth from $7.2 - 15Million, with the higher value realizable as the Cemetery landscape is made more desirable after landscape improvements. With the introduction of new services and options at a range of prices, the public will be better served.
Sustainability of the Cemetery is contingent on the City's willingness and ability to support the Cemetery for another 5 - 7 years with either continued subsidies or loans. Mountain View must become a beautiful and welcoming place if it is to succeed in the increasingly competitive funeral services industry. It needs to be current and competitive with options, services and pricing. It must become customer-centred and operate with efficiency and effectiveness. Relationships with stakeholders must be cultivated and financial resources must be built to meet perpetual care obligations over the long term. To meet these objectives, the Cemetery By-law will have to be amended to facilitate implementation of the Master Plan.
The Operations Report reviewed the major functional areas of cemetery operations and recommends the current level of staffing be maintained but restructured to improveefficiency and effectiveness. Also that marketing and project management skills be added to facilitate implementation of the Master Plan.
The Management Report examines three governance and management models and recommends that Council establish a Cemetery Advisory Board as soon as possible; a Cemetery Foundation to encourage charitable support of the cemetery for heritage restoration and other non-revenue producing improvements; and a long term strategy for a new City Corporation to manage and govern the Cemetery.
The Marketing Report and Implementation Schedule outlines the steps for preparing an effective marketing plan and provides a detailed two-year first phase of implementation.
Two full set of reports are available at the City Clerk's Department.
PURPOSE
This report seeks Council approval, in principle, of the Master Plan for Mountain View Cemetery to guide development and care of the Cemetery while preserving and enhancing our heritage. Council approval of a funding strategy is also required in order to make the capital investments and site improvements that will offer the choice in service and memorialization that the community will expect at a revitalized Mountain View Cemetery.
BACKGROUND
Owned and operated by the City of Vancouver since 1887, Mountain View Cemetery has 106 acres of land with approximately 92,000 grave sites and approximately 145,000 interred remains. Located west of Fraser Street between 31st and 43rd Avenues, the Cemetery is bisected by several City streets including the 37th Avenue Greenway. Within the Cemetery is the Heritage "B" listed Vancouver Crematorium which is owned by the Loewen Group.
The operation of the cemetery is governed by the Cemetery and Funeral Services Act, Ministry of the Attorney General, Department of Consumer Services. The Minister appoints a Registrar to administer and enforce the Act. The Registrar regulates the operation of funeral services, interment facilities, cemeteries and crematoria in the province through the issuance of licenses and certificates. The Act also requires municipalities to adopt By-laws, approved by the Registrar, that govern administration and operation of the cemetery; rights and privileges of the operator; rates and charges; and the size, type and materials used for memorials. The Act also regulates the establishment and management of Perpetual Care Funds.
In 1912, a Perpetual Care Fund for Mountain View Cemetery was created and families could chose to buy perpetual care or maintain the grave space themselves. By 1958, the purchaseof perpetual care was made mandatory. Today there is less than $3Million in this provincially-mandated Fund, which is not enough capital to generate sufficient revenue to
cover operating costs.Since 1986, plots have not been sold except to the Province for the burial of indigents. As of November, 1999 no more plots were available for these burials. The closure of sales for the last 14 years has capped the Perpetual Care Fund and shifted some of the cost of operation onto the tax-roll. The Cemetery cost the taxpayers $750,000 in 1999. Since 1985, the City has subsidized the Cemetery a total of $7.5Million.
On May 16, 1996 Council decided to retain control and operation of Mountain View Cemetery and subsequently approved retaining the consulting team lead by Philips Wuori Long to undertake a study to re-position Mountain View Cemetery as a financially viable operation that would meet the present and future needs of the citizens of Vancouver for memorialization and interment.
DISCUSSION
A Cemetery is a sacred sanctuary where individuals, families and organizations honour the memory of their ancestors. It is also a place where the history of the City is preserved and where passive recreational activities take place in a unique open space. The challenge of balancing these uses in an environment of competition is a major issue addressed by the master planning process. Other considerations are the multi-cultural tradition of the Cemetery, the relationship with the surrounding neighbourhoods and the tax-roll support of the facility by the citizens of Vancouver.
The planning process was carried out by a multi-disciplinary team, working closely with a citizen advisory group, cemetery staff and city departments to build consensus. The result is five reports which together provide a guide to development of the cemetery into the future:
I. Master Plan - recommends research, design and development guidelines for the physical revitalization;
II. Financial Report - provides market, demographic and pricing analysis and business plan
III. Operations Report - reviews and restructures major functional areas;
IV. Management Report - proposes a management and governance structure, an advisory board and a foundation;
V. Marketing Report and Implementation Schedule - outlines broad marketing steps and implementation schedule that flows from the Master PlanI. Master Plan
The Master Plan takes a comprehensive approach to the redevelopment of the Cemetery by:
· establishing guiding principles and key objectives;
· recommending changes and developments such as in operations and landscape;· integrating historical legacies and customs;
· providing a landscape analysis and recommendations;
· revising circulation patterns;
· preserving important views;
· consolidating buildings and infrastructure; and
· including a detailed description of the 12 cemetery neighbourhoods.
Major aspects of the Master Plan are described below:
A. Complete Legal Survey and Perimeter
A legal and physical survey was undertaken by the Land Survey Branch to establish accurate base information. Because the Cemetery had never been completely surveyed, the legal/historical aspects of the process were complex and time consuming. A base plan was completed using aerial photography and legal property information.
Because the Cemetery is largely "full", 80% of the capacity is located within the perimeter areas. These areas are comprised of redundant internal roads and unused space between gravesites and property lines - some actual and some proposed. It was determined that some land from road rights-of-way and setbacks would be desireable for perimeter development and memorial products. The use of perimeter areas would create more opportunities for the public to be interred at Mountain View; would beautify the Cemetery landscape; and improve the security of the interface between the Cemetery and the neighbouring residences. It would also help to achieve fully the projected additional interment capacity while maintaining the low density character. A business case would have to made where services are located.
Consensus concerning the Cemetery's requirements vs. Engineering Services' needs was reached along most perimeters. However, ongoing discussions are required for some sections of Prince Edward, 37th Avenue Greenway, and 31st Avenue. Fortunately, the outstanding perimeter issues do not impact the viability of the Master Plan and, consequently, do not have to be resolved prior to implementation of unaffected Initial Projects.
The recommendations are to:
1. complete physical surveys first, in areas where they are required for development projects; and later, of the entire cemetery;
2. continue working with the Land Survey Branch and Engineering Services to resolve the Cemetery's requirements and objectives regarding the perimeter treatments and the 37th Ave. Greenway right ofway issues.B. Preserve and Enhance Cemetery Neighbourhoods
Mountain View Cemetery has a number of existing distinct areas. The Master Plan breaks the cemetery into twelve distinct neighbourhoods based on historical development and changes in landscape character. Each neighbourhood was analyzed and designed to retain and enhance some of its unique qualities. Attention was also paid to the connections and transitions among the neighbourhoods to produce a cohesive plan.
Within the Cemetery there are four Veterans' areas where staff, at the request of Veterans' Affairs Canada, identified 1200 Veterans' graves without markers. Veterans' Affairs Canada, the Last Post Fund and many Legion Branches have asked the City to designate the Veterans' areas as "Fields of Honour" to facilitate financing a formal commemoration of these veterans by the Last Post Fund.
C. Provide New Memorial Services
To reopen Mountain View Cemetery and provide memorial services to the public, new capacity must be found. The main focus of the Master Plan was to identify potential available space for new forms of memorials as well as for in-ground burials. The Master Plan has identified space for 130,000 more interments and recommends more efficient land use through:
1. focusing on cremation and new forms of memorials
2. closing redundant internal roads to vehicular traffic
3. developing the perimeter areas where feasible and where agreement has been reached with Engineering Services
4. combining administration, caretaker residence and service building within soils area.
All of these still preserve the low density character of the Cemetery.D. Protect Heritage
To ensure heritage issues are addressed in the planning and implementation of the Master Plan, the proposed Mountain View Cemetery Advisory Board includes representation from the Heritage Commission and Heritage Vancouver. Once the Master Plan has been largely implemented, tools, such as heritage designation, to achieve long-term heritage protection should be considered. The Master Plan recommends overall preservation of the historic infrastructure and monuments.
The recommendations are to:
1. restore significant sections of the remaining historic curbs where existing streets are being retained;
2. preserve the existing cemetery ledgers and transfer documentation to a computer storage medium;
3. mark sections and monuments of historical significance cemetery with plaques;
4. develop a conservation program for significant monuments and markers;
5. provide volunteer organizations with opportunities to coordinate initiatives to educate the general public about the Cemetery as a historical and cultural resource; conduct walking tours and provide self-guided tours;
6. have the Cemetery Foundation coordinate restoration, interpretation and identification with funds received by the Foundation.E. Enhance Landscape Character
Mountain View Cemetery's landscape is defined by the spectacular view of the north shore mountains. The topography and views, the plant material, the roads and paths, and the monuments and structures all serve to define the cemetery's landscape character. To guide the cemetery's growth and landscape development to a level befitting this significant open space, the Master Plan process prepared an inventory of the significant landscape elements, identifying strengths and weaknesses, and making corresponding recommendations summarized below:
1. improve drainage in low lying areas;
2. develop a tree management and replacement program which reinforces the character of significant trees; and plant appropriate tree species, forms and sizes;
3. work with Engineering Services to ensure appropriate street trees are planted around the cemetery.
4. emphasize minimal maintenance plant materials, natural fertilizers, and a biological pest management program as an approach to lawn maintenance;
5. use proper horticultural practices to preserve trees and monuments and enhance landscape character;F. Improve Circulation
The proposed Circulation Plan incorporates connectivity, orientation for the visitor, reclassification of the road system and traffic calming. The new circulation system gives structure to the landscape design and redefines the experience of the visitor to Mountain View as a quiet, contemplative and safe place.
The recommendations are to:
1. make the major pedestrian and vehicular gateways more aesthetically appealing;
2. encourage parking along the Cemetery edge, and do not develop large parking areas;
3. increase the number of pedestrian walks by reducing number of roads for vehicles;
4. create a unifying central road running north/south to link the sections;
5. use a variety of materials for different types of uses e.g. asphalt roads, gravel paths;
6. provide signage and name roads and paths;
7. incorporate public art.G. Preserve Views
A detailed view analysis was completed and important distant views, good internal views, moderate views and poor views were mapped. The important views both distant and internal should be preserved or enhanced. The moderate and poor quality views can be improved by upgrading the existing landscape character through tree planting, screening or redeveloping. Privacy of neighbours should be considered together with views into the cemetery and safety.
The recommendations are to:
1. preserve existing distant views towards mountains;
2. maintain and enhance good views within the cemetery;
3. maintain linking views within the cemetery;
4. improve the quality of moderate and poor views through upgrading the landscape character;
5. maintain views into the cemetery from the surrounding neighbourhood for safety considerations.H. Protect Safety and Security
The principles of Crime Prevention Through Environmental Design (CPTED) must be applied to address both the real and perceived concerns of safety andsecurity within the cemetery. Landscape treatments, access and egress, visibility are ways to maintain safety. The key recommendation is to ensure CPTED principles are followed in the design and development of cemetery projects.
I. Redevelop Buildings and Infrastructure
The buildings and infrastructure of Mountain View must be redesigned to be both efficient and gracious to address the issues of space and service. Facilities must provide comforting environments for grieving family and friends and also meet the administrative needs of cemetery operations. Public monuments and the Vancouver Crematorium should be protected and enhanced.
The Master Plan recommendations are to:
1. reduce and relocate the soils area and design a scattering pond, a gathering structure and columbaria for the present site;
2. construct an open-air mausoleum complex on the site currently occupied by the service building and yards.
3. build an administrative, caretaker and service complex on the administration site.
4. preserve and restore the Vancouver Crematorium, built in 1935, in consultation with the owner;
5. revise 1960 bylaw prohibiting above-ground burial markers and encourage in certain historical neighbourhoods;
6. revitalize and enhance the areas around the 5 notable public monuments: Chinese Pavilion, the military flagpoles, the Military Cross and Commonwealth Graves, Masonic Fountain, and Masonic Mausolea;
7. refurbish and reconstruct infrastructure that defines the landscape such as retaining walls, hedges, curbs, gates; but eliminate roads and entries that are non-essential;
8. determine the exact location of the services under the Greenway and assess feasibility of relocation to facilitate development of new interment facilities;
9. install an automatic irrigation system as new trees and plant materials are installed
10. bury overhead wires and install lighting around pedestrian and pedestrian/vehicular gateways, along Greenway and around administration/service building and scattering pond;
11. locate service islands, garbage receptacles, benches, street and information signs.J. Provide for Complementary Uses
As well as being a place of burial and commemoration, Mountain View also provides passive recreational opportunities such as strolling, dog-walking, or reading. The recommendations are to encourage passive recreational or alternative uses that are respectful; and uses that educate the public on the history of the cemetery and the City.
K. Initial Projects
The Initial Projects for the first 20 years of implementation upon which the 20-year cash flow projections are based, have been strategically located to demonstrate important changes to the public. Most of the Initial Projects are located within the neighbourhood which are in close proximity to the administration building. Appendix "B" lists the Initial Projects for the overall cemetery and by neighbourhoods for the next 20 years. (See Map I)
It is recommended that Council adopt, in principle, the Master Plan for Mountain View Cemetery as a plan to guide redevelopment of the Cemetery. This plan is not engraved in stone and will evolve subject to the changes in the industry, demand for services, and discussions with Engineering Services.
II The Financial Report
The Financial Report integrates the physical plan with an informed market, demographic and pricing analysis. The cemetery and death care industry has undergone major changes over the last 5 years. An understanding of the trends of aging, migration and regional demographics is necessary for projecting market share and determining the appropriate mix of services. The Financial Report is the business plan to help Mountain View make the transition from a cost burden to the City to a facility that covers cost and eventually generates a modest surplus.
Sustaining the cemetery, even during low cash flow periods, is contingent on sufficient Perpetual Care Funds. The recommended financial plan could see the Perpetual Care Fund grow to $20 - 25 million in 20 years so that interest accruing on the principal amount will be sufficient to sustain Mountain View Cemetery in perpetuity.
An incremental project development approach is recommended that would bring a variety of revenue generating services to the market; yet present a low level of risk. Projects will be selected to offer the public choices in product, services and pricing and be strategically located to demonstrate changes in the cemetery. The incremental approach will give management the opportunity to assess the financial impact of the new and renewed services.
The 20-year cash flow projections (on file) indicate that with modest market share captures, the introduction of new products and a modest increase in unit pricing, the annual operating deficit could be reversed into an annual operating surplus. Mountain View is in a very strong position to generate revenue based upon two key advantages:
1. there are still burial plots available at no additional cost to the City; and
2. the investment in cemetery structures has the potential to yield extraordinary returns which can range from 200 to 800 percent.The 20-year cash flow model forecasts stabilized annual revenue of approximately $3.1Million by Year 5 and increasing to $4Million in Year 20. Annual expenses are limited to approximately $3Million in Year 5 and $3Million in Year 20. The operating surplus is projected to increase to in excess of $500,000 by Year 20.
The Cemetery is a $750,000 per year burden on the taxroll today. The status quo in 20 years would cost the City $15Million. The net benefits of the Master Plan program, illustrated in Appendix C which includes contributions to the Perpetual Care Fund, indicates a net benefit of up to $36 million.
III Operations ReportThe Operations Report provides a detailed review of 9 major functional areas of cemetery operations, such as interment, turf management, etc.. The review reveals that the current staff complement is too large for the current level of activity, but staff layoff is not contemplated since the reopening will create new work.
The redistribution of staff resources into a series of functional teams, combined with skills upgrading for some staff, should result in higher levels of service and greater levels of efficiency and effectiveness. Important for financial viability is the reallocation of resources from non-revenue producing (general maintenance) work to revenue generating work (e.g. interment, monument setting).
The reorganization is based upon the following:
1. the level of activity will increase substantially as the plan is implemented and more products are sold and more projects undertaken;
2. the skill sets must expand to meet future initiatives;
3. the existing staff are committed to higher levels of productivity and skill upgrading;
4. the current subsidy is too large.The new organization has the Cemetery Manager overseeing all staff teams and championing the Master Plan and the vision for the cemetery. The Landscape Team will maintain the cemetery grounds: turf, horticulture and arboriculture. The Interment Team will look after the interment of both ash and full casket remains. The Special Project Team will work on new and major initiatives and planned maintenance projects. The Customer Service Team will consist of office workers who respond to customer requests and complaints, manage an electronic database and are involved with marketing and sales.
Staff will be assessed to determine their skill levels. Retraining will be provided for those who are willing and have the aptitude. For those who are not prepared to make the necessary changes, transfer to alternate employment will be sought in cooperation with CUPE 1004 and other City departments.
It is recommended that the current level of human resources be maintained but restructured and that Marketing and Project Management expertise be added to facilitate implementation of the plan.
IV Management Report
The Management Report examines three management and governance models:
1. a new City corporation
2. a board or commission
3. a division of a City department.Applying the principles of flexibility, innovation, partnerships and empathy which the consultants deem are crucial to meeting the needs of the Cemetery, the consultant recommends that the Cemetery remain in the City operations over the near and medium term; and become a new City Corporation as a long-term goal once costs are offset by revenues. The Corporation would function under the auspices of the City but would have financial and operating autonomy.
In the interim, a strategy and budget should be adopted that enables staff to embark on new projects, initiate organization and operation changes and reopen Mountain View for business.
The consultant also recommends establishing the Mountain View Cemetery Advisory Board of community representatives to advise Council; to advise the department in long range planning and financial decisions; and to act as liaison between the proposed Foundation and Council. The Mountain View Cemetery Advisory Board should be formed as soon as possible.
In addition, the Consultant recommends the formation of a Foundation to fund raise andprovide a structure to manage the stakeholders, partners and clients who are expected to recommit to Mountain View upon implementation of the Master Plan. This body would primarily gather community support for the Cemetery and provide information and other services to cemetery visitors. Staff believe this needs further analysis and recommend reporting back to Council after the initial implementation work is under way.
As the adoption of the recommendation to form a City Corporation does not impact the Implementation Schedule, staff can be instructed to report back on the implications and advisability of forming a corporation to govern the Cemetery.
However, given the citizen interest, it is recommended that Council establish the Mountain View Cemetery Advisory Board and staff will report back on the Terms of Reference and recommendations for appointment before the end of the year.
V Marketing Report and Implementation Schedule
This report is the final part of the plan and outlines the steps Mountain View Cemetery should take in preparing a marketing plan that addresses issues specific to marketing a range of services. It also presents the implementation schedule that flows from the Master Plan, financial projections and the marketing report.
In addition to an understanding of the market and the opportunities, the marketing plan should provide:
1. a set of objectives;
2. a marketing strategy;
3. action programs;
4. monitoring and controls.To implement a marketing plan, Mountain View must acquire a number of skills before a detailed annual plan can be finalized. These include diagnostic skills, company levels, marketing implementation skills, and implementation-evaluation skills. The purchase of marketing expertise to head the marketing initiative has been recommended.
3. Communications and Marketing Plan
A comprehensive communications plan will be developed to advise people of the changes which we are undertaking. The public must know that we are open for business and think of Mountain View when planning for their needs.
Over the last five years many people and organizations have expressed interest in the future of Mountain View Cemetery and are on existing mailing lists. They have been and will continue to be informed.Sensitivity, discretion and a respectful approach must be the hallmarks of our communications plan.
4. Implementation Plan
The Implementation Schedule (Appendix "A") is for a two year period and recommends a number of steps that should be initiated to meet the targets established in the Master Plan, the Financial Report, the Operations Report and the Management Report. It is recommended that staff be directed to implement the schedule and report back annually on progress.
The timeline prepared by the consultants is aggressive. Within four months of Council adopting the Report on the Master Plan, the By-law Amendment Report and the Fee Revision Report; and with agreement from the Registrar regarding the By-law Amendments and the Fee Revisions, the Cemetery revitalization can begin. Mountain View Cemetery can start meeting the pent-up demand by as early as summer or, more realistically, fall 2000. An incremental release of pre-need plots for sale will reserve a supply into the future. As need sales can be met without restriction. The project manager should be recruited immediately for project planning and development whereas the marketing specialist should be added when appropriate.
SOCIAL IMPLICATIONS
The reopening of Mountain View Cemetery with new memorial services will begin to meet the needs of the people of Vancouver today. Trends toward greater secular spirituality, cultural diversity and death care `products' have changed the way death is managed. We must heed these trends to serve our citizens adequately.
Because the Cemetery is surrounded by the City and has no reserved land, the Master Plan provides for some in-ground burial locations and some above-ground mausoleum locations. These spaces should give families wanting burial some choice. With more than 70 % of people choosing cremation, Mountain View Cemetery must offer affordable alternatives to burial. Shut out for 14 years, Vancouverites will again be able to choose Mountain View Cemetery as a final destination.
PERSONNEL IMPLICATIONS
Except for the addition of marketing and project management skills, the reports recommend that existing staff have an opportunity to participate in the revitalization of Mountain View. Employees will have the opportunity to learn new skills and to learn their role in the renewal process. Staff will be assessed and those with limited aptitude for retraining may be assisted with relocation to other City departments where their current skills are in demand.
The plan is to reallocate the staffing complement to become more efficient and effective. Benchmarks will be established to monitor and amend work practices. There will be changes in what staff do and how they work as efficiencies are adopted. Staff will be organized into functional teams and over time, work will shift from non-revenue to revenue producing employment. With management and staff working together, the cemetery can become the best choice for interment and/or memorialization in the Lower Mainland. If the desired levels of effectiveness and efficiency are not met within 2 years, there is a recommendation that an RFP process be implemented that would secure certain services from the private sector or through other City departments.
The specialized Marketing and Project Management skills are recommended to be added as they require an advanced level of training and experience. These skills are available on a part-time or contractual basis and should be purchased as needed.
FINANCIAL IMPLICATIONS
The Master Plan transforms Mountain View Cemetery from a pasture-like setting with few services and no products to a respectful and contemplative place. To become a preferred interment location, requires an investment in services, landscape, equipment, employees and facilities. What has been sacrificed due to lack of funds since 1986, must be restored and further enhanced with investments in both revenue and non-revenue producing projects.
The Master Plan assumes that the Cemetery's operations will remain an integral part of the City's operating budget. The current budget 'subsidy' to the Cemetery of $750,000 per year will decline, beginning in year 2 of the plan. Basic Cemetery operations will break even by year 8, and contribute ever increasing 'surpluses' thereafter. In the final five years of the plan, the 'surplus' from operations is expected to exceed $500,000 per year.
The plan makes assumptions about the timing of revenues and capital expenditures. However both revenues and expenses may be accelerated or delayed to take advantage of business opportunities. The plan recommends the City approve the establishment of a Cemetery Capital Reserve Fund to accumulate resources from Cemetery revenues to be used for major capital expenditures. Initial expenditures from the fund may be financed by up to $1Million borrowed from the City. The plan provides for $150,000 in financing charges to pay interest on any loans from the City.
During the life of the plan, the Cemetery's Perpetual Care Fund, will grow by almost $18Million to $20.7Mmillion. The interest earned on this fund in excess of inflation, (i.e. 4% interest per year) will cover the majority of our basic operating expenses at the Cemetery by year 2020. This helps eliminate the serious financial liability associated with the City's obligation to operate the Cemetery in perpetuity.
The Cemetery should be brought quickly to a high standard to compete with private and public cemeteries in the lower mainland. This is a competitive business where the private sector has a large active sales forces. To succeed, Mountain View Cemetery must first have something to sell besides plots. With a tasteful and discreet advertising campaign, accompanied by a sales strategy, the Cemetery will be launched towards financial independence and long term sustainability.
In order to give management the flexibility needed to produce the services and alternative products which are contemplated in the Master Plan and that will make the cemetery attractive in the marketplace, it is proposed that Council authorize the establishment of a Cemetery Capital Reserve. A portion of the revenue from the sale of products and services at the Cemetery will be transferred to the reserve and will be available to undertake the work proposed in the Master Plan to develop new products. This scenario is contemplated in the Financial Plan and it will not impact the plan to eliminate the Operating Budget subsidy to the cemetery. Council is also asked to authorize a line of credit of up to $1Million to balance the cashflow for these improvements. It is recommended that the Director of Finance be authorized to determine the source of this internal financing (likely to be either the Capital Financing Fund or the Property Endowment Fund) along with the terms of any advances provided on the understanding that market interest rates and reasonable repayment terms will apply.
There are few risks evident in the financial projections. The Financial Report's Cash Flow Projections based on conservative assumptions about the City's market share of interments indicate that the annual operating deficit could be reversed into an annual operating surplus. Revenue over the first 3 years could be in the range of $5 - 6Million to assist with offseting these expenditures.
The status quo in 20 years would have a negative taxpayer impact of $15Million. The benefits of the Master Plan program (Appendix C) including contributions to the Perpetual Care Fund are $21Million. Therefore, the net financial difference to the City between implementing the plan versus status quo, is $36Million over 20 years. Given this low-risk/high-benefit scenario, the City cannot afford to do nothing.
The addition of a Cemetery Foundation to attract contributions for non-revenue generating needs of the Cemetery such as restoration of significant heritage elements would further reduce risk. The feasibility of establishing such a foundation will be further investigated by staff with a report back and recommendation.
LEGISLATIVE REQUIREMENTS
As previously stated, the Provincial Cemetery and Funeral Service Act provides consumer protection and province-wide uniformity through the regulation of products, services, feescharges and management of perpetual care funds. Mountain View Cemetery also operates under City By-law 4162 which has not been substantially changed since the early 1960's other than amendments related to the "closure" beginning in 1986. In order to implement the Master Plan; to access the reclaimable space; and to allow alternative forms of memorialization, amendments to the existing By-law will be required.
The accompanying report, Amendments to Cemetery By-law 4162 is attached. These by-law amendments acknowledge that the Cemetery must continuously adapt to changing needs and public preferences. Revised fees and charges are included with this request for amendment and must also be reviewed and approved by the Registrar.
Simultaneously, an amendment to the Cemetery's Operating Certificate will be prepared for the Registrar's review and approval.
PRICING
New fees and charges need to be approved for the proposed reclaimed interment spaces; for the new forms of memorialization; and for bringing existing fees and charges in line with current market pricing levels. To preserve scarce supply of burial plots for residents, differential prices are proposed for residents vs. non-residents. This is a common practice for municipal cemeteries and has the approval of the Registrar. The accompanying report Amendments to By-law 4162 includes new and revised fees and charges for Council's consideration.
CONCLUSION
Mountain View Cemetery is a special place, a sacred place. It provides beautiful vistas and has long been a place of quiet contemplation and remembrance for the people of Vancouver. For over one hundred years, many of our citizens have been buried in the Cemetery. It continues to serve the needs of a growing Vancouver and has the potential of being treasured as a public open space and place of remembrance. As urban development continues to encroach upon the natural landscape, cemeteries are becoming places where people go to enjoy nature as well as to appreciate and learn about the lives of those who came before us. The Master Plan is the guide to ensure that Mountain View Cemetery will again serve the public and be a valued community resource into the future.
Due to the inadequacy of the Perpetual Care Fund, the tax-roll has been burdened with annual costs totalling $7.5Million since 1985. This can be addressed with the sales of products and services which will generate sufficient revenue to build the PCF to the $20 -25Million level that would sustain care in perpetuity after 20 years. The net benefit of the Master Plan to the City in 20 years is $36 million.
The public has been involved in the preparation of the Master Plan through the Citizens Advisory Group, workshops, and public open houses. The industry has been consulted and informed. The memorialization concepts, preservation of heritage elements, landscape enhancements, circulation improvement have met with a great deal of enthusiasm. The public is on side and eager to see change begin at Mountain View Cemetery. It is recommended that Council approve, in principle, the Master Plan, and the $1Million Cemetery Capital Reserve Fund to finance Cemetery projects, be established.
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APPENDIX A on file in City Clerk's Office
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APPENDIX B: INITIAL PROJECTS to achieve the 20-year cash flow results of the Financial Report
I. INITIAL PROJECTS - OVERALL CEMETERY
1. Develop Cemetery Guidebook, Walking Tours and Areas of Interest. Source of funding - Cemetery Capital Reserve Fund. Time frame - withing 2 years.
2. Install and re-install upright monuments. Source of funding - owner initiated and funded. Time frame - begin immediately.
3. Plant memorial trees throughout the cemetery in unused grave locations and at designed locations. Source of funding - owner. Time frame - begin immediately.
4. Locate memorial benches throughout the Cemetery at appropriate locations based on the Master Plan. Cemetery to determine a kit of parts and memorial bench design options. Source of funding - owner and Cemetery Capital Reserve Fund. Time frame - begin immediately.
II INITIAL PROJECTS by NEIGHBOURHOODS
1. Veterans' - Fields in collaboration with Veterans' organizations, phased approach to
of Honour upgrade these areas and to provide a selection of new memorialization choices for the families of Veterans. Source of funding- collaborators and existing maintenance budget. Time frame - begin immediately.
2. Horne West in concert with Engineering Services, maintain street trees and boulevards. Source of funding- Boulevard Tree funding and existing maintenance budget. Time frame - begin immediately.
amend roadway system and begin redefining Brewery Creek. Source of funding- Cemetery Capital Reserve Fund. Time frame- begin in 5 + years.
3. Old Horne re-introduce tree planting in selected areas and explore new ground cover products. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin immediately.
amend road access. Source of funding - existing maintenance budget. Time frame - 5 + years.
4. Abray in collaboration with Veterans' organizations, phased approach to upgrade these areas and to provide a selection of new memorialization choices for the families of Veterans. Source of funding - collaborators and existing maintenance budget. Time frame - begin immediately.
re-introduce tree planting in selected area. Source of funding-Cemetery Capital Reserve Fund. Time frame - begin immediately.
amend road system. Source of funding - existing maintenance budget. Time frame - 10 + years
5. Old Cemetery restore curbing in collaboration with Cemetery Foundation, phased approach to upgrade. Source of funding- collaborator's budget. Time frame - begin within 5 years.
re-introduce tree planting in selected area. Source of funding-Cemetery Capital Reserve Fund. Time frame - begin immediately.
6. Greenway resolve legal and infrastructure issues between Engineering Services Group and Mountain View Cemetery. Time frame -completed within 5 years.
collaborate with Engineering Services to complete detailed Greenway design and infrastructure review to provide safe, secure interment and memorialization choices in the perimeter areas. Source of funding for memorialization component -Cemetery Capital Reserve Fund. Time frame - begin in 5 - 10 years.
7. New Jones begin consolidation of administration and service buildingswhile concurrently planning for out-door mausoleum complex. Source of funding - Cemetery Capital Reserve Fund. Time frame - completed within 10 years.
begin development of Brewery Creek feature with memorial products within road closure and across landscape. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin immediately
development of service kiosk to include water, signage, benches and other amenities. Source of funding - Cemetery Capital Reserve Fund. Time frame - 5+ years.
amend road system. Source of funding - existing maintenance budget. Time frame - 5 - 10 years.
begin development of columbaria, develop dispersed double depth grave spaces, memorial books, trees, benches,. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
8. Jones West
in collaboration with various Veterans' organizations, a phased approach to upgrade these areas and to provide a selection of new memorialization choices for the families of Veterans. Source of funding - collaborators and existing maintenance budget. Time frame - begin immediately.
amend road system. Source of funding- Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
begin development of garden plots after proper perpetual care arrangements are included in amended Cemetery By-law. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
begin development of columbaria, develop dispersed double depth grave spaces, memorial books, trees, benches,. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin in 20 + years.
9. Masonic amend road system. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
begin 41st Avenue boundary development of columbaria, group crypts and mausolea; develop dispersed double depth grave spaces, memorial books, trees, benches. Source of funding -Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
10. John Oliver amend gateway and road system. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 2 years.
begin 41st Avenue boundary development of columbaria in association with gateway; develop dispersed double depth grave spaces, memorial books, trees, benches,. Source of funding -Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
11. Fraser Corner begin development of gateway with columbaria at 41st Avenue and Fraser Street. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
begin 41st Avenue boundary development of columbaria in association with pedestrian gateway; develop dispersed double depth grave spaces, memorial books, trees, benches. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
restore curbing in collaboration with Cemetery Foundation, phased approach to upgrade. Source of funding- collaborator's budget. Time frame - begin within 5 years.
begin Fraser Street boundary development of columbaria and mausolea and develop Fraser Street Vehicular entrance. Source of funding - Cemetery Capital Reserve Fund. Time frame - 10 -20 years.
12. 1919 develop dispersed double depth grave spaces, memorial books, trees, benches. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin immediately.
in collaboration with Engineering Services, determine location of west perimeter boundary. Time frame - begin within 5 years.
install new hedging for 43rd Avenue and Prince Edward Street boundaries after west perimeter boundary has been determined with Engineering Services. Source of funding - Cemetery Capital Reserve Fund. Time frame - begin within 5 years.
additionally, develop east boundary to provide inexpensive memorialization wall in response to community demand. Source of funding - Cemetery Capital Reserve Fund. Time frame -begin within 5 years.
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(c) 1998 City of Vancouver