POLICY REPORT
URBAN STRUCTURE
Date: March 25, 2003
Author/Local: Harv Weidner/6538
RTS No. 03257
CC File No. 8109
Council: April 8, 2003
TO: |
Vancouver City Council |
FROM: |
Director of City Plans in consultation with the General Managers of Engineering and Parks & Recreation |
SUBJECT: |
East Vancouver Port Lands Planning Program |
RECOMMENDATION
A. THAT Council approve the East Vancouver Port Lands (EVPL) Planning Program and Terms of Reference as described in this report and attached as Appendix A (LINK TO APPENDICES A AND B).
B. THAT Council approve the EVPL Planning Program budget in Appendix B to be cost shared with the Vancouver Port Authority on a 50/50 basis. Funding for Vancouver's portion of $40,700 over two years is available from the CityPlans budget.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A and B.
COUNCIL POLICY
In 1982 Council adopted the Port of Vancouver City Policies which provide general policy directions on development for the entire Port lands within the City boundaries.
On August 2, 1990, Council approved rezoning the East Vancouver Port Lands from M-2 to CD-1 to provide better control over the form of Port development as an interim measure prior to the preparation of a plan.
In September 1998, Council and the Vancouver Port Authority agreed to the "Charter for the Relationship Between the City of Vancouver and the Vancouver Port Corporation" outlining principles to maintain a good working relationship through effective communication, a dispute resolution process, and agreement on general objectives in several areas of mutual interest.
PURPOSE
This report recommends that Council approve a program to develop a plan for the East Vancouver Port Lands (EVPL) in conjunction with the Vancouver Port Authority (VPA), Port businesses and the adjacent community.
BACKGROUND
Industrial and marine-related uses in the East Vancouver Port Lands are close to the Burrardview residential neighbourhood (see in Figure 1). This has resulted in several land use compatibility issues over the years, with the Lafarge ready-mix concrete plant proposal being the most recent example. In 1989, the Elder's Grain Intermodal transshipment facility was approved by the VPA despite opposition from local residents and the City. Subsequently, the City rezoned the East Vancouver Port Lands from M-2 to CD-1, in an attempt to gain more control over the form of development. However, since the VPA is the senior jurisdiction and exercises approving authority over all Port development, the new zoning served primarily to articulate the City's preferred direction on land use and built-form.
Following this rezoning, the City and VPA agreed to cooperate more fully on port development approvals. The VPA now forwards major development applications to the City, which are reviewed through normal City development review processes. The City then provides advice to the VPA on recommended design changes or conditions. This process has been working well and the VPA generally accepts and acts on the City's recommendations. However, there is no plan or policy context to guide these approvals or provide overall land use direction in the EVPL.
Figure 1:
The VPA and City first began discussing a planning exercise for the EVPL in 1992. Since this time, a program has been delayed for a variety of budget and staffing reasons. The Lafarge application has in part elevated the priority of engaging the Port, the neighbourhood and the City in a collaborative exercise to develop a plan to address these long-standing land use issues.
DISCUSSION
Pre-Planning Process
In the Spring of 2002, exploratory discussions were held with the VPA and the Burrard Neighbourhood Association (BNA) about a future planning process. Based on these discussions, staff concluded that a professional facilitator was needed to establish open communication and build trust, particularly between the VPA and the BNA after the protracted and divisive Lafarge process.
A facilitator endorsed by all 3 groups began discussions in the fall of 2002 with the City, the VPA and 2 members of the BNA. Initial discussions focused on setting the ground rules for working together and determining the necessary components of the plan. A draft list of issues was generated and a workshop was held in October of 2002 with a range of interest groups, including Port users and tenants and other community based groups to review and add to this list. The products from this pre-planning process form the basis of the draft Terms of Reference attached as Appendix A. They have been vetted through the VPA and the BNA representatives have discussed them with other EVPL area community groups. Changes were incorporated based on this feedback.
EVPL Plan Products
Discussions with the VPA and the BNA revealed two mutually held objectives for Port planning: developing a level of certainty over future land use/built-form, and creating a process for resolving future land use and other Port/neighbourhood issues. Consequently these will be key objectives for the process to address. The plan will include land use development policies and principles to set the overall context and direction for both land use in the Port and adjacent community. More detailed criteria will be developed to be used in evaluating the acceptability of future proposed developments, their compatibility and requirements for approval.
The planning products will include a mechanism for dealing with variances and other interpretation issues or disputes in administering the Plan once adopted. In addition, a formal process will be developed to deal with the future amendments to the Plan to respondto a specific development proposal, a change of policy direction by the VPA or City, or a community request.
Those key issues identified in the pre-planning phase (see attachment to the Terms or Reference) directly related to land use, built-form and impact mitigation will be considered first. Other more peripheral issues will be addressed as far as is practical given the limitations of time and budget. The southern study area boundary was selected to include the most directly affected residential areas but it is recognized that this boundary may need to be adjusted as the process proceeds.
EVPL Plan Process Overview
The recommended EVPL Plan process is a joint problem-solving exercise where the various interest groups will work cooperatively to develop the Plan directions through a consensus based model. A Working Group with representatives from the City, VPA, waterfront industry and the community will undertake the creative work to consider issues, explore solutions and draft directions. An Advisory Group composed of a broad list of interest groups will provide advice on emerging directions and on the broader public consultation. Newsletters and open houses are planned to involve the broad communities - both residential and Port-related, and to receive input prior to City Council and the VPA Board considering the Plan.
It is anticipated that Plan development will occur in 2 stages taking approximately 15 months in total. The first stage will deal with the core issues of land use and built-form. After community consultation, policies and directions in these key areas will be forwarded to Council and the VPA for information and advice. This will ensure that both decision-making bodies have an opportunity to review the key directions and provide necessary feedback prior to additional work being done. Once the key issues related to land use and built-form are resolved, it is anticipated that the remaining issues can be addressed in the final 4 to 5 months of the program. Subsequently, the complete draft plan would be vetted by all interest groups and in the broader community before final revisions and adoption by Council and the VPA Board.
Given the history of land use conflicts, it is recognized that the process may be challenging for all involved. Consequently, the Terms of Reference detail the roles and responsibilities of the various players, and the principles of the process. To help keep the process on track,these principles provide guidelines for working cooperatively and dealing with issues that may arise.
Because City staff will need to play a number of roles, including gathering and analyzing information, generating ideas and advising Council, it will be difficult for them to be viewed as neutral facilitators in the process. Although a much improved level of trust has been established between the VPA, the community and City staff, outside facilitation is seen as good insurance for the success of the program. The budget outlined in Appendix B contains funds for outside facilitation of the Working Group meetings, and a contingency amount for an independent mediator if the process were to require one.
Staffing
The administrative and technical support for the process will be split between the VPA and the City. On the City side, the program will be resourced with existing staff including a Planner II, supported by a Planning Analyst and Planning Assistant, each working half time. An Engineering staff person will be assigned to the Working Group to provide Engineering expertise and liaison. In addition, staff from across the City organization will be involved at the Working and Advisory Group sessions to provide expertise and help generate ideas depending on the topics under discussion. VPA staff will assist with information gathering, technical analysis, production and public event organization on an equal basis with City staff. However it is likely that City planning staff will be the first point of contact for the broader community.
Program Budget
The total projected budget of $ 78,400 will be shared approximately equally between the City and the VPA. The VPA will not be sharing in City staff overtime ($3,000) if it is required. The budget includes a significant amount ($46,000) for consulting. A portion of this will be for technical assistance for a views impact study, to help evaluate the technical feasibility of proposed solutions, or to provide advice on other issues or directions that emerge from the Working Group. The other portion of the consulting budget will be for facilitation and mediation. The total cost to the City is projected to be $40,700.
Financial Implications
City staff are available to carry out the program and have been working part-time on the pre-planning. Funding for the program is available in the City Plan Division consulting budget. This will cover the entire estimated 15 month program which is anticipated to be complete by the fall of 2004.
CONCLUSION
A East Vancouver Port Lands Planning Program has been developed in conjunction with the VPA and the adjacent community. The program will be a joint problem solving endeavor between these groups and City staff to address a range of issues, in particular the issue of compatibility of Port uses in relation to the adjacent residential community. Staff request Council approve the Terms of Reference and budget for the program attached as Appendices A and B.
