Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Vancouver City Council

FROM:

Director of Non-Market Operations and Manager of Mountain View Cemetery

SUBJECT:

Amendments to Cemetery By-law 4162

 

RECOMMENDATIONS

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Council resolved that the Cemetery cease to provide grave spaces after April 1, 1986.

There is no applicable Council policy for Recommendations A. and B.

City Council has resolved that every department/board review services for which fees are now charged to ensure full cost recovery, or that fees are equivalent to competitive charges where the fee is of a market nature.

PURPOSE

The purpose of this report is to seek Council approval to amend the Cemetery By-Law 4162 to permit the sale of Cemetery Licenses for in-ground and above-ground interments to residents and to non-residents under different fee structures; to permit alternative options for memorialization as provided in the companion Master Plan Report; to increase the fees for existing services and products; to establish fees for new services and products and all recommendations of this report are subject to approval from the Registrar of Cemetery and Funeral Services for the amended By-Law.

BACKGROUND

The cemetery is governed by the Cemetery and Funeral Services Act. The Attorney General's Department of Consumer Services appoints a Registrar to administer and enforce the Act. The Act also requires municipalities to adopt By-laws respecting the administration and operation of the cemetery; rights and privileges of the operator; rates and charges; and the size, type and materials used for memorials in the cemetery. A copy of each municipal By-law must be sent to the Registrar for their approval.

As Mountain View Cemetery operates under the Cemetery By-law, implementation of the Master Plan and Business Plan requires amendments to the Cemetery By-law. The proposal for amendments to the Cemetery By-law is then vetted by the Registrar of Funeral and Cemetery Services for approval in principle. Subsequently, the Director of Legal Services presents the amended By-law for Council's approval. Once Council approval is given, the amended By-law is filed with the Registrar of Funeral and Cemetery Services.

On December 10, 1985, Council approved the closure of the Mountain View Cemetery for all burials effective April 1, 1986, "save to provide burial services to those plots sold and leased on a pre-need basis". Since that time the Cemetery has been performing a "caretaker" function. Since that time the fees were adjusted occasionally for cost of living.

Since 1986 there have been many changes in Vancouver's population and how the people have chosen to deal with interment. Almost all of the surrounding municipalities have kept pace with these changes, with the private sector at the forefront of anticipating and reacting to changes in people's attitudes and interests in the funeral industry.

In 1998, Council approved fee revisions to bring Mountain View Cemetery's fees in line withother municipal cemeteries. Should Council approve the Master Plan report, the fee change recommendation will allow the implementation of the Master Plan to proceed as quickly as possible.

DISCUSSION

Before the recommendations of the concurrent Master Plan Report can be implemented there is a need for some changes to the City's Cemetery By-law. The recommendations in this report are generally to facilitate implementation of the initiatives.

The decision to cease selling access to grave spaces in the 1985 was based on the concern about "...the expenditure required to obtain additional land in the current economic climate,...". The Master Plan process identifies a variety of interment and memorialization alternatives that make better use of the existing cemetery but which could not have been foreseen in 1985.

As part of the Master Plan process staff identified 4,500 unused graves spaces. Following the procedures in the Cemetery and Funeral Services Act, the public were asked to provide documentation of a License purchased between 1887 and 1948. Very few documents were received. With the agreement of the Registrar, the Cemetery will maintain a reserve of 450 graves. The other 4,050 graves spaces will be made available as soon as possible for the future needs of families people Since the "closure" in 1986,

Since the closure, there have been no Licenses for Cemetery Use for sale. In fact, the By-law was amended to remove references to their availability. As part of the Operational review of the Cemetery, unused grave spaces have been identified and reclaimed following the provisions of the By-law and the Act. So that the needs of the citizens can be met, as conveniently as possible, staff recommend that as-needed License sales begin when the amended Cemetery By-law has been approved by Council and by the Registrar. Research has shown that many people are interested in planning cemetery arrangements in advance of need. To allow Vancouver's citizens access to their cemetery in future years, staff recommends that a maximum of 200 Licenses for burial spaces be sold on a pre-need basis.

Land in most cemeteries is a limited commodity. In-ground burials and above-ground mausoleums are the most land intensive interment options. To preserve citizens access to the cemetery in their community, most municipalities have amended their by-laws to have higher fees for non-residents than for residents. License and Perpetual Care costs are generally double those for non-residents whereas the interment and any other goods or services are the same. While the private sector has no restrictions on residency, staff recommend the practise of charging more to non-residents that is followed by most municipally operated cemeteries in the province.

Land, including cemetery plots can increase in value over time. To prevent this type of land speculation, most municipalities require that, if a License Holder has not used the grave space and they wish to dispose of the License, they must sell the License back to the municipality. Staff recommend that this policy be initiated through an amendment to the Cemetery By-law. The recommended refund is the original price less the Perpetual Care portion (including the non-resident portion), less a 25 % administration charge on the original License price.

Above-ground columbaria make very efficient use of land because cremated remains are compact and the needs of many families can be accommodated in a relatively small area. Presently the Vancouver Cemetery By-law does not allow this type of interment. With almost 75 percent of Lower Mainland people choosing cremation, the By-law needs an amendment for Mountain View Cemetery to meet this demand. Because of the more efficient use of land with ash interment staff recommends sales be open to all for niche spaces.

There is growing interest in scattering ashes in ponds. Also more people are choosing to have their cremated remains deposited in an in-ground facility where the ashes are commingled. These inexpensive alternatives are usually connected to some other form of memorialization such as a plaque, a tree or bench as mentioned in the Master Plan document. Again this is an efficient use of the Cemetery's space and fills a growing need in the community. They too require amendments to the Cemetery By-law.

Because the By-law has not had a substantive change since the early 1960's other than the 1986 closure and gender neutralization, virtually every section of the By-law is in need of some "housekeeping" amendments. During the last two years, the Manager of Mountain View Cemetery has used the opportunity to liaise with Cemetery Managers in Western Canada, the Interior of British Columbia, the Lower Mainland and Lower Vancouver Island. Many of these cemeteries are self sustaining or have plans to reach that goal. Because they are willing to share their successes and errors, we can learn from the best practises and the best regulations wherever appropriate providing the needs of the citizens of this community are also met. Staff recommend that the housekeeping amendments and the new sections needed to allow more new products and services be amalgamated with new by-law sections that align this By-law with current municipal cemetery administration and regulatory practises.

The Cemetery Fee Schedule was updated in 1998. Since that time, Cemetery staff have accumulated fees or tariff information from most cemeteries located in the Lower Mainland. A comparison is sometimes difficult because some of services or options are unique to a particular cemetery. Also the variety of choices and flexibility in pricing used by the private sector, complicates the comparison process. However, Appendix "A" provides the details of some of the comparisons used to establish pricing for Mountain View.

The variety of service choices and pricing alternatives that have evolved while Mountain View Cemetery has been "out of business". The Master Plan implementation includes many of the new services and options for interment and memorialization. Pricing for these services and options are summarized in Appendix "B" which is a reformatted version of the Cemetery Fee Schedule (Schedule "A").

Mountain View Cemetery is more directly comparable to the large private cemeteries because of similarities in size, topography and location in the major population centre of the Lower Mainland. For this reason, the proposed amendments to the Fee Schedule are at levels closer to the private sector than municipal cemeteries.

The portion of pricing allocated to Perpetual Care has also been reviewed for adequacy.

Municipal cemeteries have taken the conservative approach to pricing which has not constrained the private sector. By using information supplied by other municipalities and by the private sector under the Cemetery and Funeral Services Act, we can strike a balance in pricing between private and municipal sectors. Staff propose a market level which is below the private sector to assist Mountain View achieve sustainability.

FINANCIAL IMPLICATIONS

The adoption of the revised Schedule of Fees will eventually assist in the reduction of the net City cost of operating the Cemetery when coupled with the development of new services and products. However, in the early stages of revitalization, loan repayment and the contract costs of product and sales specialists will off-set most of the net cost reduction. Cost recoveries are estimated to increase by $ 75,000 this year which will offset the proposed contract services for marketing and project management.

IMPLEMENTATION PLAN

The By-Law amendments will enable Mountain View Cemetery to begin offering some services and products the public immediately, while others are being designed and built. The two-year Implementation Schedule will keep us on track and facilitate monitoring and evaluation. Built facilities can be presold as designs are finalized and sales brochures are produced.

If the revised fee schedule is approved by Council, it is necessary to have the amended By-law filed with the Registrar of Cemeteries and Funeral Services before the By-law can come into effect. Because of the sequence of activities needed to make new services and products available, the provisions respecting new fees are intended to be implemented when the Manager of Mountain View Cemetery advises that the services and products are ready.

All Funeral Homes, Memorial Societies and Monument Companies will be advised of the new fees structure by newsletter and an open meeting.

CONCLUSION

The successful implementation of the Master Plan and the on-going operation of the Cemetery depend on a By-law that protects the interests of the community while giving the Cemetery Management some of the tools to get the revitalization under way. The proposed amendments will relaunch the Cemetery beginning with the sales of Licenses for the Use of the Cemetery to meet pent-up demand. Subsequent by-law amendments will be brought forward as alternative forms of memorialization are developed prior to the implementation of each project.

Staff recommend approval of the revised Cemetery Fee Schedule as a key step in implementing the Master Plan. Approval of the new fees and the revised fees will bring Mountain View Cemetery's fees in line with other Lower Mainland cemeteries.

- - - - -

APPENDIX A on file in the City Clerk's Office.

- - - - -

APPENDIX B

SCHEDULE "A"

Mountain View Cemetery
SCHEDULE OF RATES

INTERMENT

GUIDELINES:

CLASS OF SERVICE: At-need or pre-need.

INTERMENT SERVICES: CASKET

GUIDELINES

Ø Every interment occurring in a grave 4 feet in length or greater must be made within the minimum standard concrete grave liner or a similar receptacle made of other durable materials approved by the Manager of Mountain View Cemetery.

GRAVE LINERS and BURIAL VAULTS

The Cemetery stipulates that a minimum concrete grave liner be used on all full casket interments in graves over 4 feet in length. Rates quoted include installation.

OUTSIDE VAULT INSTALLATION

A purchaser has the option of supplying an alternate liner or a vault from a supplier other than the Cemetery. In this instance the following fee will be charged to cover handling and installation of the vault supplied.

INTERMENT: CREMATED REMAINS

CLASS OF SERVICE: At-need or pre-need.

Mountain View Cemetery
SCHEDULE OF RATES

INTERMENT SERVICES: CREMATED REMAINS

GUIDELINES:

CREMATED REMAINS SCATTERING
Includes scattering within designated area of cemetery by Cemetery personnel and permanent record of scattering maintained in Cemetery archives. Scattering of cremated remains on cemetery property outside of these parameters is strictly prohibited.

Mountain View Cemetery
SCHEDULE OF RATES

INTERMENT SERVICES: CREMATED REMAINS

OUTSIDE CREMATION VAULT INSTALLATION
The purchaser has the option of supplying a vault from a supplier. In this instance the following fee is charged to cover handling and installation of the vault supplied.

NICHES: COLUMBARIA

AVAILABILITY: Available for the inurnment of cremated human remains irrespective of race, colour, religion or other categorization of the person deceased.

CLASS OF SERVICE: At-need or pre-need.

NICHE WALLS: COLUMBARIA

Mountain View Cemetery
SCHEDULE OF RATES

INURNMENT SERVICES: COLUMBARIA

INURNMENT:
Includes opening of niche, placement of urn, sealing of niche and use of equipment as necessary.

URN REMOVAL:
When requested to remove an urn from a sealed niche the following fees will apply.

MEMORIALS

GRANITE MEMORIAL BENCH
48'' Long - 16'' High - 14'' Deep Includes engraving of name and dates.

Mountain View Cemetery

SCHEDULE OF RATES

MEMORIAL MARKER INSTALLATION

Total Installation Fee $ 90

Total Installation Fee $ 140

Total Installation Fee $ 180

Total Installation Fee $ 180

Total Installation Fee $ 330

Total Installation Fee $ 400

Total Installation Fee $ 90

Mountain View Cemetery

SCHEDULE OF RATES

Total Installation Fee $ 525

MARKER REMOVAL & REINSTALLATION FOR GRAVE OPENING

ABOVE GROUND MARKERS

REMOVAL OF MARKER FROM GRAVESITE FOR ADDITIONAL INSCRIPTION, CLEANING, ETC.

Standard Marker $ 60

Mountain View Cemetery

SCHEDULE OF RATES

RETURN MARKER TO GRAVESITE AFTER OUTSIDE WORK COMPLETED

RELOCATION OF A MEMORIAL MARKER

OPTIONAL / MISCELLANEOUS SERVICES AND GOODS

CLASS OF SERVICE: At-need or pre-need.

DISINTERMENT SERVICES

Re-open and deepen grave $ 1,340

Full casket exhumation $ 1,340
Exhumation lot: restoration/sanitization $ 100

(Not responsible for damage to marker, vault or enclosed urns.)

Disinter & re-inter cremated remains. $ 300

(From full casket grave.)

Disinter cremated remains from casket or cremation grave. $ 230

(Where deemed recoverable.)

MISCELLANEOUS SERVICES / MERCHANDISE

Supply and install: Flower vase & liner. $ 45

Administrative Records Fee $ 65

(grave / service transfers, extensive records searches, etc.)

Mountain View Cemetery

SCHEDULE OF RATES

MARKER RESTORATION

Cleaning and restoration of standard marker. $ 115

Cleaning and restoration of non-standard marker. $ 150

Cleaning and restoration of bronze marker. $ 175

MEMORIALS

CLASS OF SERVICE: At-need or pre-need.

Perpetual Care 75

Granite Memorial Plaque (10" x 6") 325

Perpetual Care 500
Total Selling Price $ 2,325

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