SUPPORTS ITEM NO. 2
P&E COMMITTEE AGENDA
JANUARY 18, 1996
POLICY REPORT
Housing
Date: January 3, 1996
Dept. File No. 3003/3211
TO: Standing Committee on Planning and Environment
FROM: Director of CityPlans and the Manager of
the Housing Centre
SUBJECT: Rezonings During Neighbourhood Visioning Process - CityPlan
Implementation
RECOMMENDATION
A. THAT Council's policy on neighbourhood rezonings be as
described in Appendix A -- that is to continue to consider
rezonings that conform to existing city-wide and
neighbourhood plans and policies, but not to consider
rezoning requests which would prejudice future possibilities
for neighbourhood centres, until a Neighbourhood Vision is
approved for the area.
B. THAT site specific rezonings for housing demonstration
projects be considered where:
- the application demonstrates a new housing form in a
neighbourhood, improved affordability, and a degree of
neighbourhood support; and
- any increase in land value, beyond the normal profit
allowed by the City's standard bonusing process, be
converted into improved affordability.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval A and
B.
COUNCIL POLICY
CityPlan directions include developing more housing variety in the City
through new neighbourhood centres. One of CityPlan's next steps is to
build projects demonstrating new forms of housing that offer the
features of single family housing at higher densities. CityPlan also
calls for the development of a neighbourhood consensus on the location
and character of each centre through public consultation and
participation in the neighbourhood planning process.
PURPOSE
This report recommends policies to govern rezonings during the
Neighbourhood Visioning process (the subject of a report considered by
Council on January 9) and related policies for site specific rezonings
for Neighbourhood Housing Demonstration projects.
BACKGROUND
In the June report to Council that sought approval of CityPlan, the
potential was noted for rezonings to prejudice the implementation of
CityPlan. On June 6, 1995, Council approved an interim policy that a
rezoning application should not be justified solely on the grounds that
it "supports CityPlan neighbourhood centres".
REZONINGS AND CITYPLAN
Neighbourhood Visioning
The issue of rezonings prior to and during the Neighbourhood Visioning
programs, the first stage of the implementation of CityPlan, has been
reviewed. The consideration of rezonings, so that development can
proceed, must be balanced against the potential for rezonings to
prejudice the outcome of the Neighbourhood Visioning process.
Rezoning applications are made throughout the city on a regular basis.
It is not reasonable to call a halt to rezonings for the 5 years until
all Neighbourhood Visions are complete. On the other hand it would be
counterproductive to consider rezonings that may preempt the conclusions
of the visioning process. A controversial rezoning during the visioning
process could distract the community, prolong the process, and
compromise the outcome. This is particularly true in or near single-
family areas where development of a neighbourhood centre will be a
significant new direction for the neighbourhood.
It is recommended that Council adopt the policies for consideration of
rezonings during the visioning process outlined in Appendix A. The
guidelines clarify that rezonings underway will continue to be
processed, and that new rezoning applications can be processed which
conform to area plans and policies already in place. This includes
rezoning applications for heritage retention, and for affordable housing
and other amenities under the bonusing provisions introduced by Bill 57.
Housing Demonstration Projects
A next step in CityPlan is to "build demonstration projects for new
types of housing that offer the features of single family housing at
higher densities". In a companion report it is recommended that the
Seniors Housing Demonstration Fund be refocused to fund projects that
achieve CityPlan's housing objectives and renamed the Neighbourhood
Housing Demonstration Program.
Policy 4(b) in Appendix A allows rezonings for Neighbourhood Housing
Demonstration Program projects to be considered. To provide direction
to applicants, staff, and the community, conditions need to be
established that projects must satisfy to qualify as Neighbourhood
Housing Demonstration projects. Demonstration projects are expected to
form a small component of all rezoning applications, and most are likely
to be small projects located at the edges of single family
neighbourhoods.
It is recommended that site specific rezonings for neighbourhood housing
demonstration projects, whether publicly or privately initiated, be
considered on condition that:
- the application demonstrate a new housing form in the
neighbourhood, improved affordability, and a degree of
neighbourhood support; and
- any increase in land value, beyond the normal profit allowed by the
City's standard bonusing process, be converted into improved
affordability.
CONCLUSION
The essence of the proposed rezoning policy is to allow 'business as
usual' where Council has considered and adopted plans and policies, but
to avoid prejudicing Neighbourhood Visioning. These policies will be
monitored and adjustments presented for Council's consideration if
required. Once completed, the visioning process will result in criteria
for considering rezonings that will implement the neighbourhood vision.
Rezoning applications that are considered during the Neighbourhood
Visioning process will be subject to the normal review process,
including full public consultation.
* * * * *
APPENDIX A
Page 1 of 2
REZONING POLICY - BEFORE AND DURING
"NEIGHBOURHOOD VISIONING"
Examples noted in italics are for information only.
PRINCIPLES
The following rezoning policy is based on two principles:
- respecting already adopted policies and plans; and
- not pre-empting or diverting the Neighbourhood Visioning
process by rezonings which set new directions or preclude
options in a neighbourhood.
POLICIES
1. Where, at the time of adoption of this policy, there is an
active rezoning application or where an enquiry has been
received, and the applicant has received a written response
stating that a rezoning application would be considered, the
application will be considered.
2. Applications will not be considered where current approved
Council policies or plans preclude them.
Examples:
- Shaughnessy Hospital and Surrounding RS-1 Rezoning
Policies
- Industrial Land Policies
3. Applications will be considered where Council-approved area
plans or policies support consideration of rezonings.
Examples:
- sites pursuant to Oakridge/Langara Policies
- downtown mega projects pursuant to ODPs
- sites under Burrard Slopes IC Rezoning Policies
- industrial let-go areas
- rezonings as a result of approved area plans
4. Applications will be considered for:
a. projects involving heritage retention
b. projects involving social or affordable housing (i.e.,
non-profit, Bill 57 housing agreement, SNRF,) or
Neighbourhood Housing Demonstration projects.
APPENDIX A
Page 2 of 2
c. projects focusing on expansion, downsizing, or reuse of
public or non-profit institutional, cultural,
recreational, utility, or public authority uses
Examples:
- Langara College expansion
- community centre expansions
d. Director of Planning-initiated rezoning applications
Examples:
- housekeeping amendments
- minor text amendments to CD-1s
- RS-6 interim zonings
5. Rezoning applications which do not fall into the above
categories will be individually assessed as to whether the
proposal sets significant new directions and/or precludes
options for the neighbourhood visioning process. If so, it
will not be considered. (Staff will take into account
whether a development proceeding under current zoning would
more seriously jeopardize the neighbourhood visioning
process than the proposal.)
Examples that set directions or preclude options, and would
not be considered:
- multifamily development or other densification of
residential areas, including on arterials
- rezoning of C-1 to CD-1 for purely residential
Examples that could be considered:
- multifamily proposals within the boundaries of an
established multifamily area, such as Arbutus village
proposal
- mixed use proposals on commercially zoned sites
Example that could be considered, since development under
current zoning would preclude options:
- an underutilized large site near likely neighbourhood
centre, e.g., 8th and Sasamat, some Kingsway motel sites
Note: An agreement by staff or Council to consider and
process a rezoning application does not imply support for
the application. All applications will be subject to normal
processes, including public review.