POLICY REPORT
URBAN STRUCTURE

Date: May 30, 2000
Author/Local: A. McAfee/7451

RTS No. 1527

CC File No. 8023

Council: June 13, 2000

TO:	Vancouver City Council
FROM:	Director of City Plans in consultation with the General Manager of Engineering Services
SUBJECT:	Draft Port North Fraser Land Use Plan 2000

RECOMMENDATION

A. THAT Council forward this report to the Port North Fraser, thanking them for the opportunity to review and comment on the Draft Port North Fraser Land Use Plan.

B. THAT Port North Fraser be advised that, while the City is generally supportive of the objectives of the Plan:

i. the City's land use policies, as outlined in the Industrial Lands Strategy, Greenways Plan, and Fraser River Waterfront Policies and Guidelines, permit a broader range of uses along the River than that envisioned by the Port North Fraser Land Use Plan; and

ii. the City's Greenways Plan includes the concept of a "Fraser River Greenway Trail", however, a specific route has not been selected and, as such, it is premature and may be misleading for the Port North Fraser Land Use Plan to identify "proposed Greenway routes" on Maps 7, 9, and 11.

GENERAL MANAGER'S COMMENTS

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

COUNCIL POLICY

The Industrial Land Strategy and Policies, adopted in 1995, keep the existing M-2 Heavy Industrial Districts along the Fraser River waterfront with the exception of the Fraserview Industrial lands which will be reviewed if and when MacMillan Bloedel (Weyerhaeuser) vacates their site

The Vancouver Greenways Plan, adopted in 1995, identifies a potential "Fraser River Trail" along the River. The Plan notes that, since no change to the industrial land uses are expected in the near future, the Trail will grow incrementally. The actual route will be the subject of future public consultation processes.

The Fraser River Waterfront Policies, first adopted by Council in 1973, reaffirmed in 1983, and amended in 1988, require the provision of landscaping treatment as a condition of development permit applications for all conditional use developments along the River. The policy is attached as Appendix C (on file in the City Clerk's Office).

PURPOSE

The purpose of this report is to identify the City's interests in the Port North Fraser's Land Use Plan.

BACKGROUND

The Port North Fraser covers a total of 90 kilometres, including 900 hectares of waterlots managed on behalf of the Federal and Provincial governments. Waterlots are those areas between the original high water mark on the upland, to the harbour headline boundary which marks the edge of the navigable river channel. Waterlots may be submerged lands or partially or totally filled. In addition, the Port holds approximately 20 hectares of federal land, a portion of which is located in Vancouver, west of Oak Street Bridge. The Port has no jurisdiction over the upland areas, which, in the case of the City of Vancouver, are regulated through the City's Zoning and Development By-law.

The Port North Fraser has prepared a Land Use Plan as required under the Canada Marine Act. The Plan contains objectives and policies for the physical development of the real property the Port manages, holds, and occupies. The Plan takes into account the economic, environmental, and social implications of land use planning decisions on and beside the Fraser River. Once adopted, it will serve as the policy framework for future development of all properties within the Port's jurisdiction. A copy of the draft Plan is on file with the City Clerk.

The Plan has been prepared with input from various stakeholders including owners of industrial properties and interested citizens. The City has participated in technical briefings.The Port had requested that the City undertake a concurrent review of land uses along the Fraser River. The last City reviews took place in 1995, as part of the Industrial Land Strategy and Greenways Plan. Another review, to coincide with the Port North Fraser Study, was not undertaken due to other work commitments.

DISCUSSION

The Port North Fraser has prepared a draft Land Use Plan 2000 and has requested comments from the City of Vancouver. A summary of the draft Plan and a map of the boundary of the North Fraser Port Authority land adjacent to Vancouver are attached as Appendix A (on file in the City Clerk's Office).

Two land use elements of the draft Plan of interest to the City of Vancouver are the identification of Port Related Economic Development Areas and the Greenways strategy. Comments on these two initiatives follow.

a. Port Related Economic Development Areas

Areas are designed to identify and protect both existing and future areas of water related industrial and commercial uses and log storage on the river. The Plan notes concern for the continued "erosion and fragmentation of the Port's industrial waterfront lands" as a result of gradual and increasing long term urban pressure. To counter the urban pressure on water related industrial land, the Port proposes a number of Port led actions and advisory policies as follows.

(1) Work to preserve industry and protect the existing industrial land base.

(2, 3) Continue to create opportunities for economic development and jobs, recognising the importance of industry in achieving and sustaining complete communities and coordinating activities in the Port's jurisdiction.

(4) Encourage more intensive use of the Port's remaining water based industrial lands.

The Draft Land Use Plan identifies six river sections or 'reaches', and outlines a number of objectives for each of them. There are three river reaches in Vancouver. The principal objectives are as follows:

Sea Island/Marpole Reach, west from Oak Street Bridge, where the Port:

- supports the continued use of of the foreshore areas of the Eburne site for water dependent activities; and
- encourage the CPR to maintain the rail line east of Arbutus for current and possible future Port related industrial use.

Mitchell Island Reach, between Oak Street Bridge and Argyle Street, where the Port:

- supports the integrity and viability of the water dependent industrial and commercial uses;
- will work to create Economic Development Areas to protect water based industrial and commercial uses along the foreshore;
- will work to attract water dependent industry to the are on new and existing sites; and
- will work with adjacent municipalities to achieve better goods movement.

Fraser Lands Reach, between Argyle Street and Boundary Road, where the Port;

- will work with the appropriate parties to limit new upland residential uses that may put pressure on industrial uses.

b. Greenways

The Port's Greenways goal is to work cooperatively with municipalities, such as the City, to improve access along the river. The Plan has taken what is described as a "pro-active" role in illustrating routes for continuous greenways. The proposed Greenways link existing parks. In some areas the Greenways are along the River. In other areas the proposed Greenways go around water dependent activity. Appendix B (on file in the City Clerk's Office) shows two "illustrative" greenways one along Marine Drive and another along Kent Avenue.

CITY'S COMMENTS ON DRAFT LAND USE PLAN

Since the Port has no jurisdiction over zoning and land use beyond the high water mark much of the Plan is only advisory. It reflects the Port's wishes for the use of adjacent land to further the Port's objective of keeping opportunities for water related industry. The principal means the Port has to implement this policy is to work with municipalities for the retention of industrial zoning.

The Port's land use policies and objectives for the Vancouver waterfront are broadly consistent with the City's Industrial Lands Policy. Much of the Fraser River waterfront is zoned M-2 Heavy Industry. However, there are two significant differences.

· The Port wishes to encourage the creation of a water dependent zoning schedule for land adjacent to the river.

The concept of Port Related Economic Development Areas was first proposed in 1991 as part of the Fraser River Estuary Management Plan (FREMP). Since then, both FREMP and now the Port North Fraser have encouraged the City to create a zoning schedule specifically for water dependent industries. The objective being to limit other uses along the FraserRiver.

City policy, as described in the M-2 District Schedule, permits a variety of heavy industry uses including, but not limited to, water dependant industrial activities. City policies for the Fraser River waterfront were reconfirmed by Council on March 14, 1995. The area is designated for industrial uses with the exception of the Fraserview Industrial lands located east of the Fraser Lands residential community which will be reviewed if and when the Weyerhaeuser Canadian White Pine and Particle Board Division decides to vacate their site.

The City's Regional Context Statement (approved in September 1999) includes, as a future work item, an agreement to "work towards" finalizing area designation agreements based on current zoning. The City has not, however, committed to establishing a more restrictive use schedule in the area.

The Draft Port North Fraser Plan lacks details on the demand for water related industries. FREMP has a study underway to review demand and the changing nature of industry along the Fraser. When these studies are complete the City, Port, and FREMP will have a better framework for considering land use and infrastructure requirements.

· The Port is proposing an east-west Greenways corridor near the Fraser River.

The City has long standing policies concerning public access to the waterfront (see Appendix C). In addition the City's Greenways Plan includes a greenway along the north arm of the Fraser River (see Appendix D - Fraser River trail (on file in the City Clerk's Office)). The specific route has not yet been determined.

The City is supportive of the Port's proposal to work co-operatively with agencies and stakeholders in developing municipal and regional trail systems and improving access along the Fraser River. The City is in general agreement with the Greenways policies laid out in the Plan, noting that Greenways need to be developed to a standard considered appropriate to the City's objectives. While we agree that in many cases a waterfront route may not be appropriate, we hope that the Port will work with the City to develop pilot projects which explore innovative ways to incorporate water-based industrial uses with recreational access along the Fraser River.

The only major concern is with the identification of Greenway routes and access points on Maps 7, 9 and 11. Identifying existing Greenways and access points is appropriate but the plan should differentiate between Vancouver's use of the terms Greenway and Bikeway. The existing Bikeway along Marine Drive would not be considered to be an appropriate route for a Greenway as we define them in Vancouver. It is highly unlikely we would propose a greenway along Marine Drive. Greenway and Bikeway development may be more likely along the Kent Avenues but it is impossible to predetermine these as priorities withoutgreater consideration of all options.

We request that all proposed Greenway routes be deleted from Maps 7, 9 and 11 in the final plan. The reason for this, beyond the difference between Greenways and Bikeways, is that the City has yet to do a comprehensive review of Greenway routes along the Fraser River. While some of the proposed routes may have merit, the final routes and designs along these routes will be determined by the City through a public consultation process as priorities permit. It is inappropriate for them to appear to be predetermined when the City designation shows them as general corridors requiring further study.

The Plan illustrates connections or access points to or along the Fraser that the Port is proposing to implement itself. The Plan should also note that additional access points may be developed by the City. One example is the connection to the Fraser along the west side of the City-owned Knight Street right-of-way, which is not illustrated on Map 9.

CONCLUSIONS

The City is generally supportive of the proposed Port North Fraser Land Use Plan 2000. However, it should be noted that, since the Port's authority only extends to the high water mark, much of the Plan is advisory in nature. The City has authority for land use and Greenway planning above the high water mark.

The Fraser River is a significant amenity on the south border of Vancouver. For many years the waterfront has provided sites for water related industry. It is likely to do so for some time to come. However, it is also important to note the strategic location of the area. It is adjacent to Vancouver Airport and the closest industrial area to UBC. This has resulted in the area being attractive to airport related industry and as a location for firms relocating from "incubator" sites at UBC. At some point a rapid transit line between Richmond and Vancouver will likely run through the area. At that time, land uses adjacent to stations will be reconsidered. One site (Weyerhaeuser) is scheduled for review if and when present operations end. Also, the River offers an opportunity for recreational sites near South Vancouver neighbourhoods which, in some cases, are short of park facilities.

The changing context of the Fraser River represents opportunities. It also presents possible challenges to the concepts presented in the Port North Fraser Land Use Plan. As with all City processes, if and when new uses are considered along the Fraser River there will be a full public process which will include opportunities for the Port North Fraser to participate in defining the use of lands adjacent to the Fraser River.

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(c) 1998 City of Vancouver