Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Vancouver City Council

FROM:

Director of City Plans, in Consultation with the General Manager of Engineering Services

SUBJECT:

Neighbourhood Centre Delivery Program in Kingsway and Knight Area

 

RECOMMENDATION

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

In 1995 Council approved CityPlan. The main CityPlan Directions related to this report are:

Housing Variety to: "...increase neighbourhood housing variety throughout the city, especially in neighbourhood centres.." by "planning the types, appearance, and location...best suited to each neighbourhood."

More and More Diverse Public Places to:"...ensure that the number and quality of the city's public places matches the needs of a growing and increasingly diverse population..."...and..."promote lively neighbourhood shopping streets."

Neighbourhood Centres to..."provide residents with a variety of housing, jobs, and services;...become the civic, public heart of each neighbourhood..."

Since 1996, Council has approved 4 Community Visions which bring CityPlan to the local level. Each Vision contains Directions for introducing New Housing Types, and improving Shopping Areas. The Directions relevant to the Kingsway and Knight area are cited in Appendix B, and are typical of other Visions in their scope.

In 1999, Council approved the Implementation Actions Plans for KCC and Dunbar Community Visions. These called for Vision Directions on Shopping Areas, New Housing Types, and related topics to be implemented through comprehensive planning of neighbourhood centres.

SUMMARY AND PURPOSE

This report:

· describes a proposed new program called the Neighbourhood Centre Delivery Program (NCDP) designed to implement Vision Directions on Shopping Area Improvements and New Housing Types. Recommendation A seeks Council approval of the NCDP Terms of Reference.

·proposes to first undertake the Program in the Kingsway and Knight area of Kensington-Cedar Cottage. Recommendation B is to approve the Additional Terms of Reference for Kingsway and Knight (study area boundaries, special site identification, relevant Vision Directions)
· requests approval of the funding needed for a temporary Engineering Assistant 3 for the first 15 months of the program, as well as for other program expenses, in Recommendations C and D.

All the required Planning staff are available. Half the time of an existing Engineer will be allocated for the first 15 months of the Program, to be assisted by the requested temporary Engineering Assistant. A temporary Civil Engineer will be needed for the last 9 months of the project to manage implementation of the improvements to the public realm.

Planning and Engineering staff have been working to ensure that the necessary capital funding for physical improvements is included in the proposed 2003 to 2005 Capital Plan, which is subject to a separate review and approval process.

If this first neighbourhood centres program is successful, it is expected it will provide a template for future areas.

BACKGROUND

In 1996, Council approved the CityPlan Community Visions Program to bring City Plan Directions to the local level. Community Visions have so far been completed and adopted by Council for 4 communities: Kensington-Cedar Cottage (KCC), Dunbar, Sunset and Victoria-Fraserview/Killarney (VFK).

Community Visions cover a wide range of topics. They are intended to provide guidance to City decisions, planning, and spending priorities over a period of 15 to 20 years. Implementation of the Visions involves the actions of many City departments and Boards, as well as community members. When each Vision is completed staff prepares, and Council adopts, an Implementation Action Plan. In February, Council received a progress report on implementation in the first 2 Vision areas, KCC (Kensington-Cedar Cottage) and Dunbar.

Many of the implementation actions are accomplished through existing City programs and budgets. One example is the work nearing completion Broadway and Commercial neighbourhood centre, which was done in conjunction with work of the Rapid Transit Office on the new Skytrain line.

Another is the combination of residents' "sweat equity", Visions staff support, Park Board community grants, and Engineering cooperation that created the "Windsor Way Blooming Boulevard".

However, other Vision Directions require a significant new initiative or redirection of City resources. These are reported to Council for approval. An example is the C-2 Zoning Review now underway. The Neighbourhood Centre Delivery Program (NCDP) proposed in this report is a new major initiative to implement key Vision Directions.

DISCUSSION

1. Preliminary Remarks

Before describing the program and funding needed, a few preliminary remarks are appropriate.

First, as a result of the first four completed Visions, our understanding of the term "neighbourhood centres" needs to be expanded. CityPlan noted that local preferences would determine the form of the Centres. All four Vision communities have identified Shopping Areas along their arterial streets. All are well served by transit, and with significant jobs and housing capacity in the existing C-2 zoning. However, when it comes to new housing, the communities have different preferences for location: sometimes clustered around shopping areas (e.g. Kingsway and Knight); sometimes in linear extensions along the main streets
(e.g. Dunbar/16th/41st) and sometimes, spread throughout the areas (e.g. Sunset). The intention of the NCDP is to implement the Visions' Directions for new housing types, whatever the geographic locations.

Second, staff anticipate this Program will generate some controversy. Unlike Visions, which do not in themselves deliver change, the NCDP will involve action: new streetscape elements, parking changes, and zoning for additional housing. As well, there will be cases where a neighbourhood interest and a city-wide interest diverge. For example, a new crossing to improve pedestrian safety in the shopping area may affect commuter through traffic. A Housing Area Plan option with more housing may meet city-wide objectives better, but involve more impact on local residents. NCDP staff and the community will develop alternatives, seek review and comment by all the affected parties, answer as many questions and concerns as possible, and keep the process transparent. Staff anticipate that consensus solutions are fairly likely with respect to the Shopping Area improvements, but unlikely with respect to Housing Area Plan options. The task of choosing among options will be Council's, based on public input, technical analysis, and overall CityPlan and Community Vision Directions.

2. Proposed Neighbourhood Centre Delivery Program Terms of Reference

The proposed Terms of Reference that would govern the overall NCDP program is attached as Appendix A, with approval requested in Recommendation A. The remarks below are a summary.

A) Principles and Products

The Principles guiding the Program emphasize:

· implementing Vision Directions on Shopping Areas and New Housing Types at the same time in order to maximize the positive relationship between the two;
· actually delivering and installing streetscape improvements and zoning (or adopted rezoning policy), rather than stopping at creating a plan;
· ensuring products (plans and options) are consistent with the Community Vision and other City policies
· providing for full involvement of all the various interested parties, while recognizing that Council will have approval authority; and
· coordinating with other City initiatives and programs (e.g. street furniture, solid waste and anti-graffiti).

The Products to be produced include:

· initiatives to enhance the viability of the shopping areas: retail/service strategy, parking strategy; assistance with business owner organization (e.g. BIAs); minor zoning amendments; (optional) character guidelines;
· adopted rezoning policy to guide future development of special sites in the shopping area (e.g. former Safeway site at Kingsway and Knight),
· an approved Public Realm and Pedestrian/Traffic Improvements Plan, including measures to upgrade the appearance, amenity, comfort and safety of the shopping areas (e.g. street furniture, banners, bulges, medians, crossings, landscape, public art). This will be followed by an implementation strategy, reported to Council, including identification of necessary temporary staff resources, if any.
· implementation strategy for the Public Realm and Pedestrian/Traffic Improvements, including detailed design, costing, Local Improvement Petitions, and construction;
· an adopted Housing Area Plan with locations and types of future housing identified, and with commensurate provisions for traffic and parking, parks, greenways, and community facilities. The NCDP will create options and seek community opinion, and Council will chose which to approve;
· either enacted housing zoning, site-specific housing rezoning polices, and/or some innovative type of "available-off-the-shelf" zoning that allows small owners to rezone their sites more readily than now. The mix will depend on the Plan and the characteristics of the sites; and
· an action plan for delivery of the housing-related improvements to traffic and parking, parks, greenways, and community facilities. Some of these might be put in place immediately, others only as the housing is developed. The action plan will need to be cognizant of available resources and other City and neighbourhood needs.

B) Process and Schedule

The Terms of Reference describe the typical process. It will involve working on the Shopping Area and New Housing components simultaneously, with deliverables at various points. It is estimated that it will take about 2 years to complete in an area, given the available staff and the funding requested.

It is proposed that the first area be Kingsway and Knight in KCC, one of the first two Visions completed. (The other was Dunbar). Kingsway and Knight was identified by the community and Council as a high priority for Neighbourhood Centre planning in the KCC Vision Implementation Action Plan. Appendix B contains Additional Terms of Reference containing study area boundaries, the relevant KCC Community Vision Directions, and other specifics.
If the Program is successful in this area, it will provide a template that can be applied to other neighbourhood centres with adjustments as needed. Council would approve any future programs.

Sufficient planning staff are available to work on one area at a time. If the Program appears to be working successfully, staff will report back on selection of and funding for a second area before the completion of the first, so that a transition to the new area can occur efficiently.

C) Public Involvement and Roles

Public involvement will be a major part of the NCDP. Residents, owners, and businesses in the immediate area which may be directly affected by change will be keenly interested. However those from further afield in the community will also be affected. Various community groups, service providers, housing advocates, and the development industry may be interested. Lastly, the needs of the future residents of the planned housing need to be brought to the table. Various methods of involvement will be used including working groups, newsletters, surveys, public events and workshops, and meetings with community groups.
The roles of the various parties are set out in detail in the Terms of Reference. In general, the NCDP staff team (Planning and Engineering staff) are responsible for managing and organizing all aspects of the process, developing and documenting plans and options, and technical evaluation. Staff of other departments and Boards will provide input and review of aspects of the plans and options. The various community interests will be contributing ideas, reviewing plans and options, and expressing preferences that will be forwarded to CityCouncil. NCDP staff will make recommendations to Council based on community input, technical information, and Vision and CityPlan Directions. Community members, and staff of other departments, may advocate for other than the recommended options, should they wish. (As noted above, it is anticipated that consensus will be reached on most of the Shopping Area components, but is less likely in the case of the Housing Area Plan options.) City Council finally approves of plans, policies, zoning, and capital spending.

2. Staff and Funding

A) Staff

Planning staff for the NCDP has been assembled from existing staff as their work on other planning projects has been completed. The Program will use two Planner 2s and two Planning Assistants (full time); a senior Urban Designer (part time); and a Senior Planner (part time) as overall manager.

The General Manager of Engineering proposes that half of an existing engineer's time be assigned for 15 months, to provide both technical expertise and liaison with other necessary Engineering staff, up until the approval of the Public Realm and Pedestrian/Traffic Improvements Plan in late 2003. This engineer will be working concurrently on other arterial planning resulting from Community Visions, notably on Knight Street. In addition, engineers from other Branches will provide expertise and assistance as required. The requested temporary 15 month Engineering Assistant 3 will support the professional engineers, and allow work on both Neighbourhood Centres and Knight Street to proceed in a timely manner.

Once the Public Realm and Pedestrian/Traffic Improvements Plan has been approved, and implementation strategy will be reported to Council. If any additional temporary staff resources are needed, based on the work load within Engineering, they will be identified at that time.

Recommendation C requests approval of these temporary positions and the necessary funding. The $12,595 funding for the 2002 portion of the EA3 is requested from the 2002 Contingency reserve, and the $50,375 in 2003 to be part of the Engineering Department operating budget.

The team will report regularly to the Director of City Plans and General Manager of Engineering Services. The team will maintain ongoing links with other staff groups. It is anticipated that staff from the Housing Centre and Park Board will participate in a number of the public events and working group meetings. Other staff groups whose advice and assistance will be sought on an as-needed basis are Social Planning, Cultural Affairs, the Library, and Police.

B) Other Program Costs

Recommendation D requests Council approval of $288,100 funding for other program costs. As detailed in Appendix C, these costs include: communications, business organization and engineering assistance to the team; one-time pre-program "start-up" costs; and other costs for the planning in the Kingsway and Knight area including consultant studies; participation costs (events, meetings, materials, newsletters, etc) and overtime.

The $86,190 requested for 2002 has been anticipated in the approved 2002 Planning Department budget. The balance, $201,910 for 2003 and 2004, would be included in the Planning Department's operating budgets for those years.

C) Capital Funding

Over the past six months, City Plans staff have worked with staff of Engineering and Cultural Affairs to ensure that there will be adequate funds in the 2003-2005 Capital Plan to carry out the improvements that will come out of the NCDP, without unduly affecting other City priorities. The Capital Plan is subject to an independent review and approval process, culminating in the November plebiscite.

PUBLIC CONSULTATION

The draft NCDP Terms of Reference and the Kingsway and Knight Additional Term of Reference have been discussed with interested members of the public in KCC, including the KCC CityPlan Committee, and area business owners. They expressed interest in having the Program start as soon as possible.

FINANCIAL IMPLICATIONS

Most of the staffing for the program will be from existing planning staff resources. The following table shows funding required by year, and sources.

Table 1 Neighbourhood Centres Delivery Program - Funding Summary by Year

 

2002 (Sept - Dec)

2003 (Jan - Dec)

2004 (Jan - Sept)

 

Amount

Source

Amount

Source

Amount

Source

             

New Temp Staff

$12,595

2002 Contingency Res

$50,375

2003 Eng Op Budget

$0

  

(EA3)

            

Other Program Costs

$86,190

2002 Plan Op Budget

$167,100

2003 Plan Op Budget

$34,810

2004 Plan Op Budget

             

Total

$98,785

  

$217,475

  

$34,810

  

In terms of 2002 funding, approval of $12,595 is requested from the 2002 Contingency Reserve for temporary Engineering staff. The balance of funds required in 2002-$86,190 for public participation, consulting and other costs--has already been anticipated in the 2002 Planning operating budget.

The balance of funding requested breaks down to $217,475 in 2003 ($50,375 for temporary Engineering staff, $167,100 for other program costs); and $34,810 in 2004 (for other program costs). These funds would be added to the Engineering and Planning operating budgets in those years.

The Director of City Plans notes that the NCDP program in Kingsway and Knight area is an important City initiative, which will create new housing capacity and help revitalize a key local shopping area. Major planning projects such as this, which use existing planning staff, always require funding of associated program elements such as public events, outreach, newsletters, and consultants; and also often required temporary staff resources for other City departments.

CONCLUSION

The Neighbourhood Centre Delivery Program is intended to bring the Vision Directions related to improving Shopping Areas and introducing New Housing Types into reality, starting with the Kingsway and Knight area in KCC. The proposed Terms of Reference (Appendices A and B) provide a clear "roadmap" for the process, including principles, products, program schedule, public participation and roles. The requested funding (Appendix C) together with the planning staff team that is already available, should be enable the Program in Kingsway and Knight to be completed in about 24 months.

- - - - -

APPENDIX A

NEIGHBOURHOOD CENTRE
DELIVERY PROGRAM

TERMS OF REFERENCE

Approved by City Council
(date)

DRAFT
June 21, 2002
ncentretorAppA.wpd

CONTENTS

1. INTRODUCTION

2. PRINCIPLES

3. PRODUCTS

4. PROCESS AND SCHEDULE

5. ROLES

1. INTRODUCTION

This document contains Terms of Reference for a Neighbourhood Centre Delivery Program (NCDP) that will implement the adopted Community Visions Directions for Shopping Areas and New Housing Types. It describes the generic Program, and will be augmented by Additional Terms of Reference for each area that will include items such as the study area location, the relevent Vision Directions, etc.

1.1 Background: CityPlan and Community Visions

In June 1995, Council adopted CityPlan: Directions for Vancouver as a broad, long range plan for the city as a whole. In July 1996, Council approved the CityPlan Community Visions Terms of Reference, together with funding and staffing. The Community Visions Program is designed to bring CityPlan Directions to the local level in all the predominantly single family areas of the City, most of which have never had any local planning. As of June 2002, Community Visions were completed and adopted in four communities (Kensington-Cedar Cottage, Dunbar, Sunset, Victoria-Fraserview Killarney) and underway in two (Renfrew-Collingwood, Hastings-Sunrise).

The relevant Directions from CityPlan are as follows:

· The CityPlan Direction on Neighbourhood Centres is to:

"..create neighbourhoods that provide residents with a variety of housing, jobs and services; create neighbourhood centres that become the civic, public heart of each neighbourhood; and plan the centres with local people to meet the current and emerging needs of residents and local businesses."

· The CityPlan Direction on Housing Variety is to:

· The CityPlan Direction on New and More Diverse Public Places is to:

Community Visions have given these a more specific shape in each individual community. Each Vision locates the important local shopping areas, and describes what types of improvements are needed to make them more attractive and viable. Each Vision also notes which types of new housing are supported, and which locations are preferred. The NCDP will implement these Vision Directions in a concrete way.

1.2 The Term "Neighbourhood Centre" and the NCDP

A comment is necessary here about the term "neighbourhood centre". It was invented in CityPlan to describe bringing together housing, jobs, shopping, services, and a public "heart" in ageographic location--noting that there was no one prototype, and that each community would customize the idea.

The four completed Community Visions do identify key local shopping areas on arterial streets, and contain Directions for their improvement. These shopping areas already have new housing potential in their mixed-use C zoning, which was accepted by the CommunityVisions as a given1. However, when it comes to new housing variety, the completed Community Visions vary in the preferred locations. One community supported it clustered around several shopping areas; two have supported linear locations along main streets, including extending from the shopping areas; and one supports spreading new housing opportunities broadly throughout the area, including near the shopping area. It is important to note that the NCDP is intended to implement all the Directions on new housing types, whether they are geographically nodal, linear, or scattered.

.

2. PRINCIPLES

The following principles set the expectations for the content and process of the Neighbourhood Centre Delivery Program.

The Program will:

2.2 Undertake work on the Shopping Areas and New Housing Types at the same time. This will help maintain the relationship between improving shopping areas and adding new residents in new housing. It will also make efficient use of community participation time, and optimize the use of staff time.

2.5 Provide a variety of ways for the range of residents, property owners and businesses to participate in creating and reviewing proposals; and ensure that the opinions of both those in the directly-affected area and those in the wider community are sought.

2.6 Be coordinated with, and build upon, other City initiatives and programs (e.g. street furniture program, anti-graffiti program). Generally work within established Council policies (e.g. heritage policies, social and affordable housing policies), while recognizing the possibility of change or exceptions, if justified.

2.7 Recognise City Council's responsibility for approval of proposed physical improvements, the Housing Area Plan, zoning changes (or rezoning policy), guidelines, capital spending, etc.

2.8 Ensure that City Council, before making decisions, is made aware of the range of community opinion, technical information , and any other necessary information.

3. PRODUCTS

The Neighbourhood Centre Delivery Program will produce the following outcomes. Some variation may occur in different areas, depending on their existing state of improvement and organization.

Delivering these products will involve many City Departments and Boards besides the City Plans Division and Engineering Services who will be most responsible: Park Board, Social Planning and Cultural Affairs, Housing, Police, and Library will all be interested in some aspects. For the sake of brevity, their areas of responsibility are not specifically detailed in the list.

3.1 Shopping Areas

3.1.1. Retail and Service Strategy

3.1.2 Parking Strategy

3.1.3 Special Sites Development and Rezoning Policy (where applicable)

3.1.4 Public Realm and Pedestrian/Traffic Management Plan

3.1.5 Public Realm and Pedestrian/Traffic Management Improvements Implementation

3.1.6 C-2 Minor Zoning Revision and Area Guidelines

3.1.7 Self-Help/Organizational Development

3.2.1 Housing Area Plan

-Council adoption of a Housing Area Plan

3.2.2 Housing Zoning Implementation

3.2.3 Traffic, Parking, and Utilities Action Strategy

3.2.4 Parks, Greening, and Greenways Action Strategy

3.2.5 City Facilities Action Strategy

4. PROCESS AND SCHEDULE

4.1 Overview

The chart on the following page shows the main components of the Program, and a summary schedule.

4.2 Program Components

The Program will begin with preparation and start-up steps, and then split into streams that will focus on Shopping Area Improvements and New Housing Types.

Pre-Program Preparation

As a first step, staff will complete most of the data gathering and initial analysis. This will include compiling demographic and land use data; analysis of existing streetscape, housing stock, and neighbourhood character; and technical and economic background studies.

Initial Outreach

This step will include initial outreach to community groups and businesses; an initial newsletter; and recruitment and briefing of the two working groups: one for Shopping Areas and one for New Housing. A kick-off event of some kind will be held to increase community awareness of the program, its scope, and the opportunities to participate.

Shopping Areas Improvements

The Shopping Areas Improvements part of the program will consist of a number of work streams to create the products noted in Section 3. First to be undertaken will be the Retail and Service Strategy and the Parking Strategy, mainly through the work of consultants. If the area contains an identified special site, then the work on the Special Site Development and Zoning Policy would be included at this point.
These three components will become input to the Public Realm and Pedestrian/Traffic Management Plan, which is the biggest component of Shopping Area Improvements. This component would include:

Implementation of the Plan would follow, including detailed design and costing, Local Improvements or Local Initiatives, construction, and a maintenance plan.

Amendments to the C-2 zoning and the development of (optional) local character Guidelines will occur during the same period as the Public Realm and Pedestrian/Traffic Management Plan is done.

The Self-Help/Organizational Development stream will be ongoing through the process. In some areas there will already be organized business groups, residents' groups, and crime prevention groups. The Program will help them connect with the available City programs. In other cases, it will be necessary to encourage business organization through the efforts of the City's BIA coordinator.

New Housing Types

The focus of this part of the program will be the development of an integrated Housing Area Plan. The main steps will be:

Based on the adopted Housing Area Plan, the next steps will include:

4.3 Public Involvement

Residents, property owners, businesses, community groups and others will be interested in participating in the NCPD to different degrees. The program will include diverse opportunities for participation, geared to levels of interest and roles in the process (see Section 5).

A key element will be two Working Groups, one focussing on Shopping Area Improvements and the other on New Housing Types. They will meet throughout the process. For the broader public, a kick-off event, housing design charrette, and open houses will be held at various times. There will be approximately five newsletters delivered to all households, property owners and businesses in the studyarea, providing updates on different components and in some cases incorporating mail-in surveys. There will also be a random telephone survey on the Housing Area Plan Options.

DIFFERENT PUBLICS

HOW INVOLVED

Study Area residents, property owners, and businesses
-those whose home, property or businesses may be directly affected by the changes coming out of the NCDP

-reps on working groups
-attend kick-off event & housing charette
-receive newsletters
-mail-in survey; random telephone survey

Future Study Area residents, property owners, and businesses
-those who will be directly affected in the future

-working group members will help articulate this point of view
-staff may need to represent future resident interests, at times

Broader community residents, property owners, and businesses
(including residents' groups such as e.g. KCC CityPlan Committee; CeCONA, community associations, crime prevention groups)
-who will be indirectly affected by change

-reps on working groups
-attend kick-off event, housing charette, open houses
-staff will attend groups' meetings to review proposals
-random telephone survey

Non-City Interests and Service Providers
(E.g. Neighbourhood Houses, housing advocates, development industry)
-not themselves affected by change, but with a related interest

-attend kick-off event, housing charette, open houses
-staff will attend groups' meetings to review proposals

5. ROLES AND RESPONSBILITIES

5.1 Overview

There will be many actors involved in the Neighbourhood Centre Delivery Program, and this section describes their roles. The summary table is followed by more detail on actors and roles.

 

Study Area Res., P.O.s,Businesses

Broader Community Res., P.O.s

Working Groups

NCDP Staff Team

Non-City Interests, Service Prov.

Other City Staff

CITY COUNCIL*

Manage the process

      

_

      

Watchdog the process

    

_

_

      

Outreach

    

_

_

      

Organize and produce events, meetings

      

_

      

Facilitate events, meetings

      

_

      

Research, provide information

      

_

  

_

  

Generate ideas and concepts

_

_

_

_

_

_

  

Create design or plan options

    

_

_

      

Technically evaluate design or plan options

      

_

  

_

  

Express preferences on design or plan options

_

_

_

  

_

_

  

Refine/revise design or plan options

      

_

      

Advocate design or plan option to public or Council

_

_

_

  

_

_

  

Make recommendations to Council

     

_

      

Approvals

            

_

* Local Initiative funding would require approval of the affected shopping area property owners.
5.2 Actors

Study Area Residents, Property Owners, and Businesses and

Broader Community Residents, Property Owners, and Businesses

Residents, property owners and businesses both within the Study Area and in the broader community will have three key roles: to suggest ideas and concepts at workshops and open houses; to express opinions and preferences about design or plan options while in progress; and to advocate a design or plan option to Council, when they are considering recommendations of staff.

It is anticipated that the level of interest among people within the Study Area will be higher than in the broader community, and also that there will be divergent opinions within both groups.

Working Groups

There will be two Working Groups made up of community volunteers who meet and provide input throughout the process. One will focus on Shopping Area Improvements and the other on New Housing Types. With respect to content, they will assist staff in generating, evaluating, and narrowing the range of options. With respect to process, they will advise staff on outreach, and will assist in "watchdogging" the process to ensure it stays within the Terms of Reference.

Working Group members will be sought in the categories noted below. The Groups will be a microcosm of the range of interests in the community, and will provide input from those various perspectives. It is not intended that members need to agree with each other. The numbers shown are illustrative of intent--the actual numbers may vary depending on the area, recruitment success etc.

 

Shopping Area W G

New Housing Types W G

Study Area residential property owners and tenants

2 - 4 members

7-11 members

Study Area commercial property owners and business tenants

7-11 members
(mainly from 4 block Shopping Area)

2 - 4 members

Broader community property owners and tenants*

2 - 4 members

2 - 4 members

Total

11 -18 members

11-18 members

*through reps from established community organizations, if possible.

NCDP Staff Team

The NCDP staff team will be responsible for overall management of the process, and for organizing and producing all outreach and consultation. On the content side, with the collaboration and input of the community as noted above, staff will be resposible for research, providing information, and running consultant studies; generating, documenting, technically evaluating, and revising design concepts and plan options, in consultation with the community; and for making recommendations to Council, including providing Council will information on community opinion. Staff will also "watchdog" the process to ensure the terms of reference are followed.

The NCDP staff team will include a senior planner (part time), an urban designer (part time), 2 planners and 2 planning assistants from the City Plans Division. There will also be a Civil Engineer and an Engineering Assistant from the Engineering Department, both about half time. Advice and assistance will be available as needed from other Engineering, Housing, Park Board and other City departments and boards. Communications and event production assistance will be provided by consulting expertise.

This team will report to the Director of City Plans and the General Manager of Engineering Services.

Non-City Interests and Service Providers

The NCDP will be of interest to a number of non-City groups who see it as an opportunity to promote their cause: housing advocates, developers and builders, environmental and transportation advocates. In addition, it may be of interest to non-City service providers such as neighbourhood houses, the regional health board, and Provincial service providers delivering services to existing and future residents of an area. Post-secondary students are also often interested in planning programs as an adjunct to their studies.

Participation of these interest groups will be limited, compared to the role of community members. They may provide information through staff; assist in generating ideas and concepts by participating in events or workshop on an invited basis; and may express opinions of design concepts or plan options. While, like any member of the public, they may wish to advocate for an option to Council, their opinions will not form an integral part of the staff report to Council in the same way as the community input will.

Other City Staff

Beyond the NCDP staff team, other city staff will provide research and information, assist in generating ideas and concepts, and in technically evaluating plans. While the NCDP staff will be responsible for making recommendations to Council, and these may reflect opinions of all staff,the option remains open for other city staff to advocate for a design concept or plan option that is not recommended by the NCDP team.

City Council

Council allocates resources to undertake the NCDP, and also has final responsibility for approving the Public Realm and Traffic Improvements Concept, the Housing Area Plan, any resulting capital spending, zoning changes, rezoning policies, action strategies, and any other items that normally fall within their mandate. In making these decisions they will be fully informed about the options, and about the various community opinions regarding them.

5.3 Roles

The following notes elaborate on the different roles.

Manage the program - organise all aspects, manage staff and resources

Watchdog the program - ensure the Terms of Reference are respected, including the diverse input from the various sectors of the community

Outreach - tailor participation opportunities to the community segments, and perform outreach tasks

Facilitate events, meetings - ensure meetings and events are effective and neutrally run

Research, provide information - obtain needed information and provide it in a form appropriate to the occasion

Generate ideas and concepts - invent, design, or suggest various ideas and concepts for Shopping Area Improvements and New Housing Types products (as described in Section 3)

Create Design or Plan Options - integrate ideas and concepts into coherent overall design concepts or plan options for the products (as described in Section 3), and record/package/illustrate these for review.

Technicially evaluate design or plan options - calculate the costs, economic or physical feasibility, housing units, demands on services, etc associated with proposals

Express preferences on design or plan options - reflecting on the information provided, choose options or rank preferences, and provide reasons

Refine/revise design or plan options - based on community input and technical analysis, amend options as necessary

Advocate a design or plan option to public or Council - based on personal, group, or professional opinion, advocate for or against an option to the public or to Council

Make recommendations to Council- based on community input,technical analysis, and Vision and CityPlan Directions, make a recommendation to Council.

Approvals - formally approve the Public Realm and Traffic Improvements Concept, the Housing Area Plan, any resulting capital spending, zoning changes, rezoning policies, action strategies, and any other policy changes.

- - - - -

APPENDIX B

NEIGHBOURHOOD CENTRE DELIVERY PROGRAM

KINGSWAY AND KNIGHT AREA:
ADDITIONAL TERMS OF REFERENCE

Approved by City Council
(date)

DRAFT
June 21, 2002
ncentretorAppB.wpd

CONTENTS

1. INTRODUCTION

2. STUDY AREA

3. SPECIAL SITE IDENTIFICATION

4. RELEVANT KENSINGTON-CEDAR COTTAGE VISION DIRECTIONS

1. INTRODUCTION

The Kensington-Cedar Cottage Community Vision, adopted in 1998, identified key shopping areas for improvement, as well as type and locations for new housing types. (Refer to KCC Community Visions Highlights Map on the following page.)

A general Neighbourhood Centre Delivery Program (NCDP) Terms of Reference was adopted by Council (date), outlining a program that will implement the adopted Community Visions Directions on Shopping Area and New Housing Types in all communities where Community Visions have been adopted.

Kingsway and Knight will be the first area to have the NCDP. This document contains Additional Terms of Reference address items that are specific to that area.

2. STUDY AREA

The map on the page after next shows the study area that will be included in the Kingsway and Knight NCDP. Based on the adopted Vision, it shows the key four block shopping area to be improved; as well as the area with potential for new housing. The Study Area has been designed to include adjacent areas that may be impacted, as well as nearby schools and parks.

3. SPECIAL SITE IDENTIFICATION

The Vision identifies the old Safeway site at Kingsway and Knight (1402 and 1420 Kingsway, and 4050 Knight) as a key site to the future of the area. The NCDP Terms of Reference provide that, where there is such a special site, the program will include a component examining what development should occur there, leading to Council-adopted rezoning policies.

3.1 Current Status

In 2002, City was concerned because some types of development that would have to be approved "outright" under the existing C-2 zoning on the site would be contrary to the KCC Community Vision. To avoid this, Council approved an interim zoning that would essentially allow only the reuse of the existing building. They also stated they would consider a future, more appropriate zoning for the site at any time. At the owners' request, Council agreed to have a "no development" restrictive covenant as a substitute for enacting the interim rezoning.

The site is therefore currently zoned C-2, but with a time-limited restrictive covenant that prevents development. If a rezoning is not well underway within 2 years, the Director of Planning reserves the right to initiate a rezoning unilaterally.

The site has been up for sale for several years, and there is currently an active effort to sell it.

3.2 Inclusion in the Kingsway and Knight NCDP

City staff have written a "framework for rezoning" that brings together all the policies for this site that come from the KCC Community Vision, and from the extensive discussions during the processing of previous development proposals.

The City has made a commitment that whenever an interested party wishes to initiate a rezoning, staff will work with him or her, and with the community.

However, should an interested party not appear prior to the NCDP start-up, funds have been included in the NCDP budget to allow the City to undertake a Special Site Study. This would include generating different massing and use scenarios, testing them for economic feasibility, and reviewing them with the public.

4. RELEVANT KCC COMMUNITY VISION DIRECTIONS

The NCDP Terms of Reference provide that the Program will:

"Address primarily the adopted Vison Directions on Shopping Areas and New Houisng Types, but also take into account related VisionDirections as appropriate and feasible. Vision Directions classified as "uncertain" may be revisited during the NCDP if appropriate."

The relevant Vision Directions are cited below for convenience. Section 4.1 Key Directions lists are those that will be directly addressed by the NCDP. Section 4.2 Related Directions lists those that provide a context, and will influence the program. The headings, numbering, and wording are those of the adopted KCC Community Vision. The percentages are the percent of agreement the Direction received. (For more on this, refer to the KCC Community Vision.)

4.1 Key Directions

Community Involvement

1.1 Community Involvement in Decision Making 89%
Community residents should have more, and more timely, input into decision-making about changes in their community such as development projects, street and traffic changes, transit changes, and park design.
People's ideas...
-neighbourhood council or similar group that meets regularly
-community design panel to review development proposals
-information on proposed development, street changes, etc., easily available in the community
-better community consultation processes
-"mini city halls" in the community to provide information

Safety and Services

4.10 Library 78%
Kensington Library should be replaced with a somewhat larger facility, with longer hours...

Shopping Areas

5.1 Major Neighbourhood Shopping Centre 80%
The Kingsway/Knight shopping area should be the major neighbourhood shopping area along Kingsway and a community heart. It should be a high priority for a wide range of improvements, to make it into a special community place along Kingsway.

5.2 Pedestrian Safety Improvements and Traffic 80%
It should be easier and safer to cross the streets, and traffic should move more slowly through this portion of Kingsway, with:
- more pedestrian street crossings
- shorter waiting times at pedestrian crossings
- and other measures for pedestrian crossing safety
5.3 Pedestrian Comfort and Improved Appearance 83%
The area should have a better image and improvements such as plantings, benches, and banners. There should also be better maintenance and more frequent clean up of streets and sidewalks.

5.4 Storefronts, Shops, and Services 80%
Small local shops and services should continue to line the sidewalks - instead of developments with parking lots in the front or buildings without storefronts. A replacement for the local library should be provided. In addition, there should be a large grocery store or supermarket.

5.5 Former Safeway Site at Kingsway and Knight 85%
Redevelopment of the Safeway site should be used as an important opportunity to contribute to the Vision directions for this area.

9.1 Parking in Shopping Areas 83%
Enough parking for shoppers should be provided in a variety of ways. There should be on-street parking wherever possible. Especially along secondary arterials, on-street parking should be retained or restored (Commercial, Victoria and Fraser). Other major parking locations (e.g., supermarkets) should be kept, or replaced when there is redevelopment.

9.2 Business Associations 72%
Business Associations and BIA's should be encouraged, and receive help from the City, so they can develop marketing strategies, promote their area, and organize services and activities to attract shoppers.

Traffic and Transportation

11.1 Clark/Knight Street 80%
The conditions and safety along Clark/Knight for residents, pedestrians, and transit users should be substantially improved.

12.1 Kingsway 81%
Even though Kingsway will remain a primary arterial, pedestrians, transit users, and bicyclists should have more priority than now, and the street's image should be improving:
- more and safer crossings at key intersections
- adding and improving bus shelters
- adding more trees and other plantings
- providing better clean-up and maintenance along the sidewalks and boulevards.

New Housing Types

21.1 Rowhouses, Four-and Sixplexes, Duplexes 64%
More housing variety should be provided by rowhouses, four- and sixplexes, and duplexes, which have many features of single family but would cost less than a new house. Among the conditions that should be met for this new type of housing are:
- in defined areas, not just anywhere
- with design controls to be attractive
and fit into the neighbourhood
- built in small projects rather than in large ones
- with small green mini-parks and green links

21.4 New Types of Housing in Clusters Around Knight-Kingsway and Victoria-41st. 68%
The rowhouses, four-and sixplexes and duplexes described in 21.1 should be located in clusters of some type around two established shopping areas, Knight and Kingsway and Victoria and 41st Avenue.

23.1 Seniors' Housing Variety 81%
Seniors should have a variety of choices of housing that allow them to stay in the community as they age: congregate housing, intermediate and extended care. However, KCC should not be over-supplied with housing designated for seniors, relative to the rest of the city.

23.2 Seniors' Lowrise Housing 83%
Lowrise [up to 4 storey] buildings designated for seniors should be permitted. They should be located near local shopping and transit. Scale and design should fit into the neighbourhood.

23.3 Seniors' Mid- to High-rise Housing 47%
Seniors' mid- to highrise housing should be permitted (six to twelve storey apartment buildings). There should be between four and twelve of these buildings in KCC. They should be located near the local shopping and transit, but not directly on the arterial streets.

Other Community Priorities

26.1 Upkeep and Cleanliness 91%
There should a higher standard of property maintenance and cleanliness of private and public property, including:
- more garbage cans on streets and in parks
- community clean up programs
- stronger enforcement
- more information on where and how to dispose of various types of rubbish
- better repair of lanes

4.2 Related Directions

Safety and Services

4.1 Services Easier to See and Get to 78%
Services located in KCC should be clustered, and be in more accessible locations...

Shopping Areas

9.3 No Malls and Big Box 68%
There should not be any additional big box stores or internal shopping malls allowed in KCC, or close enough to threaten the economic health of the local shopping areas.

Traffic and Transportation

15.2 Bus Shelters 82%
More and better bus shelters should be provided on all bus routes in KCC

16.1 Traffic Calming Criteria 79%
Traffic calming programs should be provided where needed, in consultation with local residents. The need should be determined by objective measurements that compare areas across the city...

17.1 Bikeway and Greenway Routes
Bikeways and greenways should link schools, parks, community centres, pools, rinks, and shopping areas in KCC and nearby, with safe crossings at major streets.

17.2 Bike Lane on Kingsway 58% Uncertain
A marked bike lane should be considered for Kingsway, as part of a city-wide commuter bike network. (This would be considered as part of more detailed planning required, to see if it fits along with other improvements for pedestrians, shoppers, and transit users.)

17.4 Bike Parking 69%
More places for parking bikes should be provided at local destinations, including shopping areas, community centres and services, and transit stops. Bike carriers should be provided on buses and skytrain.

Greening, Parks, and Public Places

24.1 More Greening in Public Places 85%
More "greening" should occur in a wide range of public places to improve community appearance; make spaces more pleasant and useable; compensate for the traffic and wide areas of pavement; and promote better air quality and storm water control:
-more and larger trees should be planted on streets and in parks
-more alternatives for lanes besides completely unpaved or completely paved
-community gardens in unused street allowance, under SkyTrain

24.2 More Community Action on Greening
Community action should be a major force in making "greening" happen. In addition to undertaking practical projects, volunteer efforts should go into educating about gardening, landscape stewardship, and different cultural values.

24.3 More Greening on Private Sites 71%
Private owners, tenants, landlords and developers should contribute to "greening":
- new developments should keep portions of the site free of paving and development, to allow both for plantings and natural water drainage
- planting and proper maintenance should occur in front and back yards of houses and other buildings as well as on apartment balconies and patios
- back lanes should be attractive, without continuous walls of garages, and with greenery in backyards visible through and over fences.

24.4 Preserving Existing Private Greenery 74%
There should be more preservation of existing trees and major shrubs on private sites.

24.5 More Usable Parks and School Grounds 87%
Park design, appearance and activities should be more varied in order to serve the diverse population should be reviewed and upgraded with community input. Possibilities are:John Hendry (Trout Lake) Park, Clark Park, Gray's Park, Kingcrest Park. School grounds should also be transformed into attractive, usable community spaces.

24.7 Public Views 87%
Views to the mountains and water from public places, like parks and major streets, should be protected.

Other Community Priorities

26.2 Quality of New Construction 88%
New buildings of all types should be better built, using quality materials so that they last well and can be better maintained.

- - - - -

APPENDIX C

NEIGHBOURHOOD CENTRE DELIVERY PROGRAM
FUNDING REQUIRED - 2002 TO 2004

 

TOTAL

2002

2003 & 2004

NEW STAFF T OTAL

$62,970

$12,595

$50,375

Engineering Assistant 3 (15 months)*

$62,970

$12,595

$50,375

       

OTHER PROGRAM COSTS TOTAL

$288, 100

$86,190

$201,910

Breakdown

      

Consulting to Staff Team

$65,750

$5000

$60,750

Communications/graphics

$50,000

$5000

$45,000

Business organization assistance

$15,750

0

$15,750

One Time Program Costs

$45,000

$15,000

$30,000

Computer, software, telephone (2 sets)

$15,000

$15,000

0

Consultants
-housing market research, legal tool advice

$30,000

0

$30,000

Kingsway & Knight Area Costs

$177,350

$66,190

$111,160

Consultant studies
-retail, parking, telephone survey, special site

$ 85,000

$42,500

$ 42,500

Participation costs
-events, meetings, materials, newsletters

$71,510

$19,410

$52,100

Staff overtime

$20,840

$4,280

$16,560

*pay grade 21, step 3 + 19% benefits cost

June 26, 2002

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(c) 1998 City of Vancouver

1 Vision Direction to improve the design and neighbourliness of the C-2 mixed use projects is being implemented through a citywide C-2 Zoning Review, currently underway.