SUPPORTS ITEM NO. 3
P&E COMMITTEE AGENDA
OCTOBER 26, 1995
POLICY REPORT
URBAN STRUCTURE
Date: October 11, 1995
Dept. File No. MG
TO: Standing Committee on Planning & Environment
FROM: Director of Central Area Planning, in consultation with
Manager of Real Estate Services
General Manager of Engineering Services
General Manager of Corporate Services
General Manager Human Resource Services
General Manager of Park Board
Director of Social Planning and
Manager of the Housing Centre
SUBJECT: Planning Process - Southeast Shore of False Creek
RECOMMENDATION
A. THAT the boundaries, management structure, planning process
and timing, beginning in January 1996, for the preparation of
an Overall Policy Statement, an Official Development Plan and
zoning for the Southeast Shore of False Creek, as described in
this report, be approved at an estimated cost of $801,700.
B. THAT funding for the first step of the project (January 1996
to March 1997) be provided by the Property Endowment Fund at a
cost of $374,700 and that this amount be credited against any
rezoning fees incurred by the Property Endowment Fund for the
site in future years;
AND THAT subject to Council approval at the end of step one,
funding for subsequent steps of the project ($183,300 in 1997
and $243,700 in 1998) be provided in the Operating Budget.
C. THAT Council approve the following staff resources for the
planning project, subject to job evaluation by the General
Manager of Human Resource Services:
Planning
- professional and technical staff $116,600
- clerical staff $ 28,800
Social Planning
- professional staff $29,500
Parks
- professional staff $10,000
Engineering
- technical staff $ 35,000
Public Consultation Costs $ 24,000
Computers and Furniture $ 10,000
Consultants $ 60,000
$313,900
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GENERAL MANAGER'S COMMENTS
The General Manager of Community Services recommends approval of A,
B and C.
COUNCIL POLICY
On August 30, 1988, Council approved several policies for Southeast
False Creek, as part of the False Creek Policy Statement, on land and
water use, social mix and amenities.
On July 26, 1990, Council identified lands, north of First Avenue,
between the Cambie City Works Yard and Quebec Street, on the Southeast
Shore of False Creek as an area that should be released from industrial
use and directed staff to report back on a work program to prepare new
zoning.
On October 16, 1990, Council adopted the Clouds of Change report which
called for planning initiatives that:
- bring housing and employment closer together;
- increase housing adjacent to Vancouver's Central Area; and
- with respect to the Southeast Shore of False Creek, incorporate
principles of energy efficient community design in the area plan.
On May 2, 1991, Council resolved that the City should set rezoning fees
to achieve 50% cost recovery for processing rezoning applications for
mega-projects.
On December 3, 1991, as part of the Central Area Plan, Council resolved
that:
- housing should be the predominant land use when planning the
Southeast Shore of False Creek;
- the location of the City's Cambie Works Yard be reaffirmed until at
least 2003; and
- the provision of housing for families with children was identified
as a priority for Southeast False Creek.
On November 17, 1993, City Council approved the Vancouver Arts
Initiative that included a recommendation that staff review and report
back on the availability and feasibility of developing a City-owned
site, in particular on the south shore of False Creek, as an Arts
Resource Centre.
On February 22, 1994, City Council approved the recommendation:
"THAT the preservation of a transportation corridor, capable of
facilitating a streetcar line, be incorporated into the planning
program for Southeast False Creek..."
On December 6, 1994, City Council approved the recommendation:
"THAT the Special Office for the Environment liaise with the
Director of Planning and the Director of Housing and Properties to
explore the potential for utilizing City lands in Southeast False
Creek as a model for sustainable development."
SUMMARY
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Staff recommend that work begin on a comprehensive planning process for
the development of a residential community on the Southeast Shore of
False Creek. The boundaries proposed for the planning area are: the
Cambie Street bridge, Second Avenue, Main Street, Terminal Avenue and
False Creek. The study area encompasses the waterfront lands north of
First Avenue and west of Quebec Street (primarily owned by the City) and
privately owned lands (and some City-owned lands) south of First Avenue
and east of Quebec street (see map in Appendix 'B').
A three-step planning process is recommended for the waterfront lands
north of First Avenue similar to that undertaken for False Creek North
and Coal Harbour. First is the preparation of an Overall Policy
Statement to be completed by the first quarter in 1997. This step will
resolve competing public objectives for the site. Next, a Concept Plan
and an Official Development Plan (ODP) will be completed by the first
quarter 1998 for the waterfront lands. It will include concepts for a
transit-oriented, environmentally sustainable neighbourhood and for
energy efficiency. An urban design scheme will also be prepared.
Third, CD-1 rezonings will be completed for each sub-area of the
waterfront lands including a detailed form of development. This step
will conclude in December 1998. If market conditions, soil remediation,
and overall project economics are favourable, residential development
may begin in 1999.
A coordinated planning process will be undertaken for the privately
owned sites south of First Avenue and east of Quebec Street. The future
use, built form and amenity requirements for this portion of the
planning area will be set by the Overall Policy Statement. Once this
and the ODP for the waterfront lands are completed, these sites can be
rezoned through City or privately initiated rezonings.
It is recommended that staff resources and a budget for consultants and
public consultation be approved for the preparation of the Overall
Policy Framework, Official Development Plan, and rezonings (see Appendix
'A'). Council should note that following the first step (Overall Policy
Statement), depending on soil remediation and infrastructure costs and
achievable densities, Real Estate staff may recommend for economic
reasons, that the Property Endowment Fund (PEF) not continue with the
rezoning of the waterfront lands, north of First Avenue. Funds advanced
by the PEF for the first step of the planning programme would be written
off as a cost of doing business. Alternatively, if the programme
proceeds to rezoning the lands, the advanced funds will be credited to
the PEF through a reduction in rezoning fees.
A consultancy to identify initiatives and municipal policies for
achieving environmental sustainability is recommended. Council has
indicated an interest in utilizing the City lands as a model for
sustainable development. Staff have met with a group of professionals,
academics and developers and have identified a draft list of ecological
principles for a model sustainable community (attached as Appendix 'C').
These will be used as a basis for the terms of reference for the
proposed consultancy on environmental and sustainability policies and
initiatives. Consultancies for transportation, urban design,
translations and research are also envisioned for Step One. The hiring
of design consultants for Steps Two and Three will be proposed to
Council in 1997.
It is recommended that the Major Projects Steering Committee, which has
supervised work on Coal Harbour and False Creek North, co-ordinate this
inter-departmental staff initiative, undertake the role of regulator and
identify standards for the provision of site amenities. Planning,
Parks, Social Planning, Housing Centre and other appropriate staff are
on this committee. Real Estate staff will have the role of developer of
the property, represent the interest of the City as a property owner and
be seeking a reasonable return on the City's property asset.
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PURPOSE
This report recommends boundaries, a management structure, a planning
process, schedule and resources for the preparation of a policy
framework, an Official Development Plan and zoning for the Southeast
Shore of False Creek.
BACKGROUND
It is timely to now begin the preparation of policies for development of
the Southeast Shore of False Creek. Once the planning process is
approved, a report on the hiring of a development consultant, working
under the direction of Real Estate staff, will be presented to Council.
Existing Ownership, Land Use and Zoning
Almost all properties north of First Avenue between Quebec and Cambie
Streets are City-owned. Sites not owned by the City include Egmont
Towing, Sauder, Burlington Northern, and a site owned by B.C. Transit
(see map in Appendix 'B').
North of First Avenue, between Cambie Street and Main Street, most long
term industrial activities have gone, with the exception of:
- the City-owned Cambie Works Yard; and
- Egmont Towing (privately owned)(option to purchase in favour
of the City at market value in 2005).
South of First Avenue, the area is privately owned. Most sites are
occupied by light and heavy industrial uses, including metal working,
warehouses and auto repair activities. There is an increasing number of
commercial, office and retail uses on Second Avenue. Sites fronting on
Main Street and Quebec Street are developed with low intensity
commercial uses. The Vancouver Playhouse Production Centre is an
important cultural use located on West First Avenue.
The proposed planning area is currently zoned M-2 (heavy industrial) and
FC-1 (commercial) (see map on page 5).
DISCUSSION
The following major issues must be considered in establishing the
planning process for the Southeast Shore of False Creek.
1. Proposed Boundaries
It is proposed that the boundaries for the planning area be Cambie
Street, False Creek, Main Street, Terminal Avenue and Second
Avenue. This area contains approximately 80 acres of which the
City owns 47 acres, including streets and excluding the water lots.
The boundaries are suggested because:
- the planning area includes the city-owned False Creek
properties and adjacent lands where residential and other
compatible uses can be considered;
- Council resolved in 1989, as part of the Bosa rezoning for the
'Citygate' project, that the block bounded by Main Street,
Terminal Avenue, Quebec Street and Second Avenue be included
as part of the Southeast Shore of False Creek planning
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process;
- the lands east of Main Street are under study as part of the
False Creek Flats Study; and
- the industrial area south of Second Avenue was identified in
the Mt. Pleasant Policy Plan and Industrial Lands Strategy
recently by Council as an area that should remain industrial.
2. The Planning Process and Timing
A three step planning process is proposed that can be initiated in
November 1995 and result in a site ready for residential
development in 1999. This process is illustrated below.
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Step 1
Preparation of the Overall Policy Statement -
1st Quarter 1996 - 1st Quarter 1997
Public Consultation: 1st Quarter 1996, 2nd Quarter 1996 and
1st Quarter 1997
Council Reviews - 3rd Quarter 1996 and 1st Quarter 1997
Products:
- Overall Policy Framework for the development of a new
residential community that guides detailed planning and design
for the City-owned and adjacent privately-owned lands.
- Environmental Sustainability and Energy Efficiency Principles
The formulation of the Overall Policy Statement will involve
addressing a complex set of objectives and responding to community
input. Land use, built form, financial, environmental, and amenity
objectives will have to be balanced. Due to the complexity of this
task and the strategic importance of this site, a 15 month time
frame is suggested for preparation and approval of the Overall
Policy Statement. Planning staff will manage this work. Real
Estate staff, the Development Consultant and other owners will
present the financial and development implications as policies are
drafted.
Council will set policy directions in two stages. In the first
stage, land use and transportation patterns, and the approval of
Principles for an Environmentally Sustainable Community and other
issues will be finalized in mid-1996. Next, policies for built
form, amenities, social and housing mix will be considered in the
second stage, to be completed in March 1997. A two stage process
is suggested due to the desirability of first clarifying how
environmental sustainability and energy efficiency objectives can
be achieved on an economic and practical basis. Also, the land use
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and transportation patterns must be identified in the first stage.
Several opportunities for public involvement have been identified
because there has been significant public interest in
environmental, design, and other issues relating to the site.
Council has also initiated a Water Body Study examining the use of
Vancouver Waterfront areas and waterbodies. The conclusions of
this study will be coming forward in coordination with planning for
the Southeast Shore of False Creek.
Council may choose to not proceed to Steps Two (ODP Preparation)
and Three(CD-1 Rezonings) after considering the economics of
developing the site. This will be determined by the achievable
densities, permitted uses and the costs of infrastructure and soil
remediation.
Step 2
Preparation of the Official Development Plan (ODP)
2nd Quarter 1997 - 1st Quarter 1998
Council Review - 3rd and 4th Quarter 1997
Public Hearing - 1st Quarter 1998
Products:
- energy efficiency and environmental concepts for community
design;
- a Concept Plan and Urban Design Scheme that will identify the
basic arrangement of uses, building massing and heights, open
space, shoreline, circulation patterns and a preferred
character for the public realm;
- social mix and social housing requirements;
- standards for the provision of public facilities and
infrastructure and phasing;
- Official Development Plan approved at Public Hearing; and
- identify and preserve transportation corridors and systems.
The adoption of an Official Development Plan for the waterfront
site north of First Avenue offers the advantages of achieving an
overall pattern of development, service and amenity requirements
and public objectives for a large site where development will be
phased over time.
The Clouds of Change report, approved by Council, recommends that
the City sponsor a design competition aimed at achieving an energy
efficient community in Southeast False Creek. Staff suggest that
as an alternative to a competition that the City hire three
consultants to work independently on urban design concepts and
environmentally sustainable and energy efficient design. This will
ensure a variety of ideas and innovative design proposals are
generated without resorting to the time, formality and expense of a
competition. The design schemes prepared by the consultant teams
can be melded or alternatively, one of the schemes could be refined
for adoption.
The staff team will be responsible for engaging in discussions with
the development consultant and their design team on land use,
infrastructure, amenity and social planning requirements, assessing
the Official Development Plan rezoning application and mounting
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public meetings.
The Development Consultant, to be selected by City Council, will be
responsible for submitting a concept for the ODP consistent with
the Policy Statement, managing design consultants and formally
applying for the ODP. This is similar to the False Creek North and
Coal Harbour processes where the developer undertook this
responsibility leading to full staff assessment.
Step 3
CD-1 and other Rezonings -
1st Quarter 1998 - 4th Quarter 1998
Council Review of first phase rezoning - 4th Quarter 1998
Products:
- a CD-1 rezoning for each phase of development.
- other rezonings (CD-1 or District Schedule) for sites south of
First Avenue.
Staff will be responsible for having discussions with the
development consultant team on the preparation of the CD-1 rezoning
applications and the proposed forms of development, assessing the
submitted applications and mounting public meetings. During this
stage, staff will also be considering rezonings on the properties
south of First Avenue and east of Quebec Street, within the
planning area.
The development consultant will be responsible for preparing and
submitting the CD-1 rezoning applications for the city-owned
waterfront lands, north of First Avenue.
Step 4
Development
1999
Assuming that site rezonings begin in the fourth quarter 1998,
development application processing, site preparation and building
construction could begin in 1999, subject to project economics,
densities and the costs of soil remediation.
Rezoning Privately Owned Sites (South of First Avenue and East of
Quebec Street)
Once the Overall Policy Statement (Step One) and the Official
Development Plan (Step Two) have been completed in 1997, the
preferred uses and built form for the privately-owned sites south
of First Avenue and East of Quebec Street will be clear. Rezonings
could proceed in this area in 1998.
The B.C. Environmental Assessment Act
In June 1995 the Provincial Government proclaimed the new B.C.
Environmental Assessment Act which requires an environmental
assessment of large-scale projects. The environmental assessment
can take anywhere from 18 to 42 months and involves technical
review and public hearings held by the Environmental Assessment
Board. Staff will discuss the legislation with Provincial staff to
clarify whether planning the Southeast Shore of False Creek must go
through the environmental assessment process. Should this be the
case, staff will report back to Council on the timing and cost
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implications and seek further Council direction. At this time,
staff do not expect this planning initiative to be subject to this
review.
3. Management Structure
It is suggested that the City's Major Projects Steering Committee,
which was established to co-ordinate staff work and work with
developers in the large downtown projects, should play a similar
role in the planning of the Southeast Shore of False Creek. The
City's interest in public facilities, infrastructure, housing,
cultural and social objectives and key aspects of development
regulation will be the responsibility of this group. Real Estate
staff in the Corporate Services Department will have the role of
developer and be responsible for ensuring an adequate return is
achieved from the City's property assets. They will not sit on the
Major Projects Steering Committee, but will attend on a regular
basis for a cooperative process.
FINANCIAL IMPLICATIONS
Planning for the Southeast Shore of False Creek will require an
estimated total funding of $801,700 over a three year period beginning
in 1996. That requirement is comprised of one time funding of $70,000
for start-up costs and consultant studies in 1996 and annually recurring
costs estimated at $243,900 for additional staff and other expenses.
These expenses are detailed in Appendix 'A'.
As the likely developer of the majority of the property in the study
area, the Property Endowment Fund will be responsible for rezoning fees
at the time it brings forward specific rezoning applications. In the
interests of proceeding with this planning work, it is proposed that the
Property Endowment Fund provide the funding for the first step of the
work detailed in this report, that is, all work leading to the
development of the overall policy framework. This contribution will
then be credited against the eventual rezoning fees due for the site.
It is anticipated that the cost of step one will be approximately
$374,700 over 1996 and 1997. Should Council choose not to proceed past
step one, the Property Endowment Fund will receive no credit for the
development costs paid up front.
At the end of step one, Council will have to determine whether to
continue with the balance of the planning program based on the site's
development economics. Should the study continue, funding for
additional steps would have to be provided in equal instalments in the
1997 and 1998 Operating Budgets, with recovery of 50% of the costs from
eventual rezoning applications.
ENVIRONMENTAL IMPLICATIONS
This project offers an opportunity for the City to pursue innovative
planning and site development with the objective of fostering an energy
efficient and environmentally sustainable community. A draft ecological
framework for planning this area is attached as Appendix 'C'.
SOCIAL IMPLICATIONS
There will be an opportunity to provide housing for families with
children and the development of a socially diverse community in the
planning area.
CONCLUSION
The Southeast Shore of False Creek provides the opportunity for housing
oriented to families and a mix of household incomes, public facilities,
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park development, development of a streetcar line, and the completion of
the last link in the False Creek seawall. It also offers the
opportunity to be a showcase for innovative environmental planning.
Work should get underway now so that a policy framework, ODP and zoning
are in place to take advantage of market conditions when appropriate.
* * * * *
APPENDIX A
RESOURCES REQUIRED FOR NEW CITY STAFF,
CONSULTANTS AND PUBLIC CONSULTATION
1996 - 1998
Recurring Expense for Three Years
Staff or Item
Planning
- professional and technical staff
(two full time temporary positions) $116,600
- clerical staff (one full time temporary position) $28,800
Social Planning
- professional staff
(one part-time temporary position) $29,500
Parks
- professional staff $10,000
Engineering
- technical staff
(one full time temporary position) $35,000
Public Consultation Cost $24,000
TOTAL - Recurring Expense $243,900
1996
Non-Recurring Expense
- Transportation Study (Integration of
land use and transportation) $ 20,000
- Consultancy on Environmental $ 30,000
Sustainability
- Other Consultancies (e.g. translations,
urban design, research) $ 10,000
- 2 Computers and Planning Furniture $ 10,000
TOTAL - Non-Recurring Expense $ 70,000
TOTAL - 1996 $313,900
APPENDIX 'C'
Page 1 of 2
SOUTHEAST FALSE CREEK
Draft Ecological Framework for Planning New Community
A model sustainable community
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The City of Vancouver will plan and develop the Southeast Shore of False
Creek as a model sustainable community, considering the following
initiatives and planning principles:
managing our land consumption
- use land efficiently and intensively to house residents
- locate shopping and services within walking distance
- minimize area that is paved over for cars
managing our energy consumption
- shape the built environment to achieve efficiencies in energy
production, distribution and use
- reduce auto dependence by:
- fostering live/work opportunities to reduce commuting
requirements
- making it easy to walk, cycle and take transit
- reduce energy consumption by:
- using geothermal or district heating systems and passive
heat/cooling management
- using low-energy lights
managing our water consumption
- reduce and manage water consumption by:
- using low-flush toilets and shower heads
- collecting rain for watering lawns and gardens
- planting drought resistant landscaping
managing our waste
- reduce waste and landfill requirements by:
- encouraging re-use of materials
- providing easy recycling systems
- providing composting areas
- processing liquid waste on-site
- reduce the requirements for storm sewers by using water absorbing
landscaping treatments (eg. soil or grass rather than pavement)
managing our landscaping
- provide for a 'green' neighbourhood by:
- maximizing as much as is feasible the area that is planted
with vegetation
- providing for food gardens APPENDIX C
Page 2 of 2
creating a liveable community
- incorporate social diversity principles by providing for a variety
of housing types
- providing public amenities on-site
- encourage pedestrian-friendly architecture
fostering ecological learning
- encourage on-site ecological learning through exhibitions
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GOR/020-0661