POLICY REPORT
URBAN STRUCTURE
Date: March 27, 1996
Dept. File No. RJ
TO: Vancouver City Council
FROM: Director of Central Area Planning, in consultation with the
Directors of City Plans and Community Planning, and the
General Managers of Engineering Services, Human Resources, and
Board of Parks and Recreation, as well as the Managers of the
Housing Centre and Real Estate Services
SUBJECT: False Creek Flats Planning Overview and Preliminary Concept
Plan
RECOMMENDATION
A. THAT the False Creek Flats Preliminary Concept Plan with
adjusted study area boundaries (Appendix A) be adopted;
B. THAT in accordance with the Proposals for Updating Industrial
Zoning (February 6, 1996 discussion paper) the False Creek
Flats M-1 and M-2 zoned areas be included in the proposed I-2
zoning initiative, subject to further review as recommended in
the Preliminary Concept Plan; and
C. THAT the funding to finalize the False Creek Flats Concept
Plan and complete the Trillium rezoning as set out in Appendix
B be approved for a 20-month period at a cost of $441,300, of
which $155,000 will be offset by Trillium's rezoning fees with
further offset rezoning fees likely forthcoming;
FURTHER THAT the 1996 portion of this, in the amount of
$284,000, come from the Contingency Reserve Fund and the
balance be included in departmental regular operating budgets
thereafter;
AND FURTHER THAT Planning, Engineering, Parks, and Law
Department staff for the concept plan/Trillium rezoning be
approved as set out in Appendix B, subject to job evaluation
by the General Manager of Human Resource Services:
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A
and B.
Instead of C, the General Manager of Community Services recommends:
D. THAT funding to complete the Trillium rezoning as set out in
Appendix B be approved for a 10 month period at a cost of
$253,000, of which $155,000 will be offset by Trillium's
rezoning fees;
FURTHER THAT the 1996 portion of this, in the amount of
190,000, come from the Contingency Reserve Fund and the
balance of $63,000 be included in departmental regular
operating budgets in 1997;
AND FURTHER THAT Planning, Engineering and Law Department
staff for the Trillium rezoning be approved as set out in
Appendix B, subject to job evaluation by the General Manager
of Human Resources.
I do not believe that additional detail, beyond that contained in
the Preliminary Concept Plan and in the proposed I-2 zoning
initiative, is required at this time; and I do not believe that
additional work in False Creek Flats is a planning priority
relative to alternative uses of scarce City dollar and staff
resources (for example, an accelerated program to maintain CityPlan
momentum, a more rapid response to RS-1 neighbourhood demands for
design control, a more concerted effort on the problems of the
Downtown Eastside or re-engineering of the planning process to
reduce the time and resources it consumes currently). As well, I
must note the competing uses for half a million dollars across the
entire City organization. There are many of these, especially
responses to public safety concerns (for example, review of our
seismic requirements), which I would rank above taking the plan for
False Creek Flats to a higher level of detail. In my opinion, the
current level of detail is sufficient to respond to specific
development proposals which may or may not arise over the next
several years.
COUNCIL POLICY
- On March 14, 1995, Council adopted the Industrial Land Policies
which supports retention of the False Creek Flats for mainly city-
serving industry, transport, and service uses, and the development
of a sub-division plan to deal with such issues as: services,
amenities, compatible uses, and interface with adjacent
neighbourhoods.
- On March 28, 1995, Council approved changes to policies for artist
live/work studios in industrial zones to limit them to rentals in
existing buildings at a maximum floor space ratio of 1.0, except
for the Brewery Creek area which allows strata-title artist
live/work studios.
PURPOSE
This report provides an overview of the False Creek Flats Preliminary
Concept Plan, attached as Appendix A. It also outlines further work to
be undertaken and recommends resources to complete this work. A
companion report entitled, "Live/Work and Work/Live" describes findings
of research and analysis of industrial live/work. A second companion
report provides preliminary assessment of the Trillium rezoning
application based on the policies proposed in the Preliminary Concept
Plan.
SUMMARY
The False Creek Flats has approximately 32 ha (80 acres) of land that
will become available for redevelopment in the next 10 years. Along
with more intense industrial use of other sites in the Flats, this could
result in the area's worker population going from 3,000 employees to
10,000 to 15,000 employees. Large amounts of traffic (85% cars)
currently travel through the Flats on the way to and from the Downtown.
Railyards, which will stay for the foreseeable future, currently
restrict the ability to provide access to the interior of the Flats.
For the most part, the overview and the resulting Preliminary Concept
Plan (Appendix A), reaffirm the need to preserve the Flats for city-
serving and Downtown-related industry. At the same time, there has been
support for a cleaner (low-impact), lower scale industrial zoning, as a
buffer to adjacent neighbourhoods. For most of the Flats, these
concerns will be accommodated by the proposed I-2 zoning. However, with
several large sites currently considering redevelopment, there is a
unique opportunity to create comprehensively planned precincts for low-
impact, high-tech industry that would include amenities and provide a
better transition to adjacent communities. In the
south, on the Finning and adjacent sites, this could take the form of a
high amenity, urban industrial park. In the north, on the Trillium
site, a similar zoning could be pursued. Should Council wish, this site
could also incorporate an industrial work/live pilot project, subject to
criteria outlined in the Preliminary Concept Plan. More traditional
transportation and open storage uses should remain in the interior and
eastern end of the Flats.
It is recommended that some commercial uses for industrial workers be
focused on Main Street and to some extent Terminal Avenue. In addition
to providing for day-to-day needs of workers, Terminal Avenue could
include larger recreational and entertainment uses under pressure to
relocate from emerging residential neighbourhoods in the Downtown. Big-
box retail is not recommended, due to significant impacts on existing
businesses, neighbourhood centres, traffic, and industrial land
availability and value.
The extension of surrounding local street systems is recommended for
area access. In addition, most future transportation options are
maintained by preserving a corridor along the southern edge of the new
park, works yard, and Trillium site, which is integrated with the local
street system.
While preliminary options are presented, detailed planning of the roads,
services, and open space system will be completed in the next phase of
planning. Servicing costs will be examined for cost sharing between the
City and new developments and soil stability and contamination will need
to be studied as part of the final concept plan. A public benefits
strategy will also be finalized in the concept plan.
Staffing for the completion of a final concept plan, as well as the
further evaluation of the Trillium rezoning and possible rezonings on
Finning and CN lands, is identified in Appendix B and recommended for
Council approval.BACKGROUND
Figure 1. False Creek Flats
Overview
In June 1995, Council approved a planning overview of the False Creek
Flats and instructed staff to undertake a study of industrial live/work
as it pertains to the Trillium Corporation (980-990 Station Street), and
the McLean Group (Grandview Highway and Boundary Road) sites. The
overview was to be done in conjunction with the City's transportation
plan and to address the need for a connection through the Flats.
To guide staff in the overview, Council adopted general principles, as
follows.
- Capacity should be maintained for City-serving industry.
- An analysis of industrial live/work should be undertaken subject to
a number of conditions.
- Residential as a separate use should not be considered.
- An analysis of increased allowances for retailing and office uses
should be undertaken, subject to a number of conditions.
The public was to be involved throughout the process and in determining
the recommended directions.
DISCUSSION
Area Description
General Area Role and Land Use
False Creek Flats is a 125 ha (308 acre) area that comprises about 20%
of the city's industrial land and accounts for about 3,000 jobs,
representing about 6% of the City's industrial jobs. The Flats serves
as a freight receiving and distribution centre for Downtown and the
Port. About half of the area is involved in transportation and storage
activities, with wholesaling/ distribution as the largest component.
Over the next 10 years, about 32 ha (80 acres) of land will become
available for redevelopment, including the Trillium site, the Finning
site, and CN and other residual rail land. More intense industrial use
of these and other sites could result in an increase from the 3,000
existing jobs to between 10,000 to 15,000 jobs. Rail operations are
vital to the Port and will stay for the foreseeable future, the
exception being the small Burlington Northern yard directly north of the
Finning site. Most of the existing industries such as food wholesalers,
bus and taxi companies, and freight forwarders, have indicated that the
Flats is the preferred location for their city-serving or Downtown-
related functions and that they intend to stay. High-tech industry,
such as the new Sprint Canada building, is beginning to show interest in
the area. This is primarily due to its proximity to Downtown and
educational facilities, large parcel sizes, good access, fibre optic
lines, and a relatively high profile location.
Terminal Avenue is the most travelled route in the area and, as such,
has attracted businesses which benefit from the high visibility. Most
of the frontage between Main Street and Glen Drive is either commercial
or commercially-oriented industrial uses.
Study Area Boundaries
As reported in June 1995, staff examined the study area boundaries and
have concluded that it is appropriate to include properties on the east
side of Main Street. This is due to the heritage merit of the Main
Street frontage, the existence of 191 SROs (not including the 88 SROs on
the west side of Main in the Cobalt Hotel) and the ability to plan a
complete neighbourhood in conjunction with the adjacent southeast shore
planning program.
Proposed Directions
Organizing Principles
The False Creek Flats Preliminary Concept Plan proposes organizing
principles important to the future structure of the Flats. These are:
1. Create a mixed-use neighbourhood, focused on Main Street, as a link
between the Flats and False Creek (applies to about 10% of the
Flats).
2. Provide for city-serving and Downtown-related industry in a way
which creates a sensitive transition between the Flats and
residential neighbourhoods to the north and south (applies to about
32% of the Flats).
3. Use Terminal Avenue to "serve" the Flats (applies to about 23% of
the Flats).
4. Preserve internal sites in the Flats for moderate impact industrial
uses, such as railyards, freight forwarding, and works yards
(applies to about 32% of the Flats).
5. Preserve the eastern edge of the Flats near Clark Drive for
moderate impact industry, such as open storage or metal recycling
(applies to about 3% of the Flats).
Industrial Use
While most of the False Creek Flats is zoned M-2, which permits both
"heavy" and "light" industry, almost no heavy industry currently exists
in the Flats. In fact, almost all of the existing industrial uses could
be approved under a lighter industrial zoning.
Creating this type of zoning is consistent with Council's
recommendations and a recent staff discussion paper proposing the
rezoning of M-1 and M-2 areas throughout Vancouver to I-2. The new I-2
zoning would: expand the definition of industry to allow for service
industrial uses such as laboratories and film studios; increase
allowable floorspace for service industrial uses; recognize the changing
nature of industry and increase the amount of office in association with
production and service uses; and make new industry more compatible with
nearby residential by proposing to lower the permitted floor area and
height for more traditional industry. A summary of these proposed
changes is attached as Appendix C. A discussion paper on the proposed
changes is currently circulating for public comment. Staff will report
to Council in May on the proposed changes.
It is recommended that all of the M-1 and M-2 zones in the Flats be
rezoned to I-2. For most of the interior and eastern portions of the
Flats, including the rail, City and Parks work yards, and the food
wholesaling on Malkin, the proposed I-2 zoning is suitable and would
remain in the long term. For the remainder, the I-2 provides a short-
term zoning that protects against large scale, high-impact industrial
activities which would create major impacts on adjacent residential. In
the long term, however, the Trillium site in the north and the Finning,
BNR, and CN lands in the south are recommended for
rezoning/redevelopment as CD-1, Comprehensive Development Districts.
These districts would maximize the opportunity presented by
incorporating built form solutions tailored to adjacent development, and
providing adequate public benefits and amenities. The final zoning for
these districts would be framed as part of the final concept plan, and
would be finalized upon application for redevelopment by major land
owners.
Industrial Work/Live Use
In response to Trillium's and other proposals for industrial live/work
on industrial lands, analysis has been undertaken, including a
consultant's study on industrial live/work in North America and some
cities in Europe. This study is on file at the City Clerk's Office.
The companion Council report on Live/Work and Work/Live found that
industrial work/live (but not industrial live/work) is a legitimate use
with a limited demand that is currently not accommodated in any zoning
district. It concludes that only industrial work/live, because of its
higher impacts and work orientation, should be accommodated on
industrial land. The report also puts forward locational criteria to
identify a limited number of suitable sites for this use and criteria
for unit design.
Consistent with these policies, the False Creek Flats Preliminary
Concept Plan incorporates some of this demand in the Flats. This issue
is further discussed in the companion report on the Trillium rezoning
application.
Commercial Use
As the number of workers in the Flats increases, a case can be made for
providing some opportunities for local-serving office and retail uses.
It is recommended that focusing commercial activities such as these be
encouraged on Main Street and to some extent on Terminal Avenue. On
Terminal Avenue this could be expanded to include larger recreational
and entertainment facilities currently under pressure to relocate from
the Downtown. Focusing commercial on arterials away from the industrial
area is consistent with the Industrial Land Policies.
A large home improvement centre has been approved at the eastern end of
Terminal Avenue, and since that time, inquiries have been received for
large, big-box retail. Big-box retail development in the Flats is not
supported due to the probability of significant impacts on nearby
commercial businesses, conflict with the CityPlan direction to create
neighbourhood centres, potential traffic impacts in the Flats and
adjacent neighbourhoods, the large sites required, the consequent loss
of industrial land, and the potential increase in land value. This
recommendation is also consistent with community preferences.
Transportation
1. Local Access
A major focus in the planning overview has been an analysis of
future area access needs. Possible street layouts, based on the
extension of local streets and the integration of the Flats with
the adjacent communities, are included in the Preliminary Concept
Plan. Providing access by extending the local streets has been
strongly supported by the adjacent communities.
2. Transportation Corridor
In addition to local access, a major question addressed by the
overview has been whether or not a corridor should be preserved
through the area to provide future options. This could include
links to Clark Drive or a continuous link from the Georgia Viaducts
to the Grandview Cut.
Findings from the work being done on the Transportation Plan
indicate that a truck roadway using the Grandview Cut and a link
through the Flats cannot be justified at this time. There is only
a limited time savings of between 30 seconds to 60 seconds per
truck, of the 250 heavy trucks per day that proceed to the Downtown
today or the 300 predicted for the future. The only valid
justification would be a benefit to the affected communities by
reducing truck traffic on existing streets. However, Grandview/
Woodlands, the most directly affected community consulted in the
Flats process, would prefer to see the Grandview Cut retained as a
green space and greenway.
Over the longer term, other transportation options could become a
consideration for the Grandview Cut or as a link across the False
Creek Flats. These include:
- Transit needs for commuter rail, buses, or potentially as an
alternative Broadway LRT alignment.
- Pedestrian and bicycle needs, particularly as an alternative
to the current Terminal Avenue bicycle route through the Flats
linking to the B.C. Parkway (7-11 route).
- Goods movement if there are new emerging needs not currently
anticipated.
Maintaining a transportation corridor does provide flexibility to
meet future growth and development of both the Flats and the
Downtown (noting that Transport 2021 does not recommend any
increase in car capacity into the Downtown). Development of any
transportation corridor would require both a clearly demonstrated
need and a broad public consultation process.
At this time, the rezoning application on the Trillium site, the
development of the new park, and the City works yard does provide
an opportunity to preserve transportation options for the future.
This can be achieved for a large portion of the Flats at relatively
low costs.
Within the Flats it was originally proposed that a 30 m (100 ft.)
corridor with large radius curves be maintained in order to ensure
maximum flexibility. However, this is not supported by the work of
the Transportation Plan to date, nor is it supported in the
community consultation process.
Instead, it is recommended the option for the future be preserved
as follows:
- Connections to Main and Prior through the Trillium site would
each be secured by a 20 m (66 ft.) right-of-way with a 2.1 m
(7 ft.) setback of building lines to meet potential future
needs.
- Along the southern section of the Park and City works yard, a
24.4 m (80 ft.) right-of-way would be provided.
The actual width of the streets and the use of any setbacks will be
determined during the preparation of the final concept plan. Any
future use of the setbacks within or adjacent to the Trillium site
would be done in light of clear needs and in consultation with the
adjacent communities.
In summary, while the proposed corridor does not accommodate all
future options, it does make provision for most, in a manner
sensitive to new development and the adjacent communities.
Services
Area servicing has also been analysed with respect to future
development, with requirements included in the Preliminary Concept Plan.
Because of the limited services in the area and the high cost of
providing those services needed for the future, a funding strategy will
be a significant element in the preparation of the final concept plan.
Initial cost estimates indicate approximately $7,000,000 will be
required to provide future sewer and water services. This could
increase depending upon soil conditions or amount of development.
Projections are based on staff estimates of approximately 7,000,000 sq.
ft. of new floorspace over the next 20 years, in addition to the
existing 3,000,000 sq. ft. City and developer cost-sharing will be
examined as part of the final concept plan. However, in the long term,
these costs, plus street infrastructure costs, would be recovered
through the increased property taxes generated by the additional
development.
Public Amenities
An adopted east-west greenway (the Parkway Greenway) needs to connect
through the Flats to False Creek. Neighbourhood plans for Grandview
Woodlands and Mt. Pleasant call for park space to help address
shortages. Any new parks should be used to complement a greenway
network through the area as well as to provide recreational
opportunities for Flats employees. The daylighting of historical
streams and the creation of small wetland environments is possible and
should be accommodated in parks, open space, and redeveloped industrial
sites. A possible open space layout is included in the Preliminary
Concept Plan. Details of this scheme and ways and means to implement it
will be resolved in the final concept plan.
The provision of amenities should be part of the intensification of the
Flats. In principle, the developer is expected to provide amenities
required by new employees and residents. In comprehensively developed
and mixed-use areas, amenity requirements will be negotiated as part of
major rezonings based upon standards set in future detailed planning.
In areas remaining as I-2, amenity needs will be much lower; even so,
amenity costs could be difficult for modest industrial activities to
bear. Balancing amenity objectives, with the obligation to facilitate
industrial jobs and then settling on an amenity strategy, will be done
as part of finalizing the concept plan.
Public Consultation
The Public Consultation process and findings are summarized and on file
with the City Clerk. Approximately 40 public meetings, open houses,
workshops, focus group meetings, and informal "coffee table" meetings
have been held throughout the process. These have involved the adjacent
community associations, business owners and operators, and the general
public. Formal public input has been received in the form of a workbook
and a questionnaire.
The results of the public consultation were surprisingly consistent.
There was overall support for retaining most of the Flats for Downtown-
serving and transportation related industry. Rather than opening the
area up for commercial uses, focusing it on Main Street and to a lesser
extent on Terminal Avenue, was generally supported. There was little
support for big-box retail and a great deal of concern over potential
impacts on nearby commercial areas, particularly from adjacent residents
and business owners.
Industrial live/work was seen as an interesting idea, although there was
concern over the reality of the work component and the preservation of
industrial jobs. Some Strathcona residents were very supportive of
industrial work/live on the Trillium site as a better transition to
their neighbourhood. The work/live user focus group provided valuable
input on unit and building design as well as how many units are needed
for a compatible community.
Most of the public felt that the area could be adequately served by
extending the local streets and not providing a corridor between the
Georgia Viaduct and Grandview Cut. There was support for a corridor,
particularly from Strathcona residents, if it was dimensioned as a local
street and would reduce the traffic on Prior/Venables.
There was strong support for providing parks and greenway connections in
the Flats. Opportunities to recollect the past and introduce water,
particularly daylighting streams, was given a high priority by nearby
residents and environmental groups.
Downtown Eastside groups and some Strathcona residents also wished to
see limited residential use incorporated along Main Street and on the
northern edge of the Flats. This is because of their interest in non-
market housing and not due to a lack of support of the Industrial Lands
Policies.
Major Landowners
1. Trillium
Parameters for development of the 6.8 ha (16.8 acres) Trillium site
in the north-west corner of the Flats are set out in the
Preliminary Concept Plan. The existing rezoning application (980-
990 Station Street), as well as more recent ideas from the
developer, are evaluated against these parameters in a companion
report. This is a key transition area, for which low-impact
industry is supported. Inclusion of a component of industrial
work/live is also supported, as outlined in a companion report on
live/work and work/live. In any event, a tailored plan,
comprehensive zoning, and an appropriate amenity package are
essential for the benefit of on-site uses and for sensitive
adjacent areas. This would be achieved through the City's
cooperative planning process for larger projects.
2. Finning and Canadian National
The 12.1 ha (30 acre) Finning site on Great Northern Way adjacent
to Mt. Pleasant, along with the 6.5 ha (16 acre) of Canadian
National lands to the north, and perhaps the abutting BNR lands
[approximately 4.0 ha (10 acres)], comprise a major portion of the
high-tech, urban industrial park proposal in the Preliminary
Concept Plan for this southerly area. The site size, location,
image, and access suggest this potential. Rezoning applications
have not yet been submitted, but this primary use is in line with
some ideas from the land owners in the past. Several other uses
mentioned by these owners, such as big-box retail and residential,
are not compatible with the Preliminary Concept Plan. The
importance of these sites and their adjacency to residential areas
requires a tailored plan, comprehensive zoning, and an appropriate
amenity package coordinated among the owners. This would be
achieved through the cooperative planning process for major
projects at the developers' initiatives in applying for rezonings.
3. City of Vancouver
While City of Vancouver ownership includes the works yards and some
parcels along Terminal Avenue, with respect to City land, the major
focus has been on the land between Station and Main Streets. In
the Preliminary Concept Plan, this land is seen as an opportunity
to complete the Thornton Park mixed-use neighbourhood, as well as
to provide clear definition and a buffer between this area and the
industrial development to the east. This would be undertaken as
part of the final concept plan.
Outstanding Work Items
The next step recommended in the planning of False Creek Flats is the
completion of the concept plan. This plan would involve all interested
and affected parties in developing recommendations for detailed,
specific land use, building envelopes, street patterning, servicing,
open space design, and parks and greenways, based upon Council direction
in adopting the Preliminary Concept Plan. Parallel work also
recommended is the cooperative planning of the Trillium rezoning through
the major projects rezoning process. Should rezonings for Finning and
CN be submitted, cooperative planning for them would be added to this
work, for which incremental resource needs would be reported. A
significant element in the final concept plan will be a strategy for
public benefits and amenities within the context of maintaining
industrial viability. A significant element in the rezoning evaluation
will be securing these services, benefits, and amenities. Further work
on soils, including stability and contamination, will also be required.
Recommended Staffing and Resources
Recommended staffing in Planning, Engineering, and other departments, as
well as associated resources for a 20-month program to complete the
Concept Plan and the Trillium rezoning now in hand, are detailed in
Appendix B. This represents a continuation of a Planner and a Civil
Engineer from the phase one Overview Study and new positions for a
Planning Assistant and part-time Planning Clerk for the next phase of
planning. Consultant funds for addressing potential Building By-law
work items as a result of work/live proposals, is included as part of
Trillium consultant funds and can be supplemented by funds anticipated
for this work and already set aside in the Planning Department budget.
Projected incremental timing and resources that will be needed to handle
the Finning and CN rezonings, if they are forthcoming, are also outlined
for information. These will be requested only if necessary.
Expenditures to date, along with projected expenditures to complete all
work, will be about 50% cost recoverable from fees required from all the
potential rezonings. This is detailed in Appendix B. This is
consistent with City policy on costs and fees for large rezonings and
related planning activities. All budget and fees are in line with
projections reported in June 1995.
There is no capacity to undertake this work now with existing resources
and there are no offsets beyond the 50% recovery from anticipated fees.
Accordingly, if Council wishes this work to commence, $284,000 will need
to be allocated from Contingency Reserve in 1996 and $157,300 will need
to be included in 1997 departmental budgets for the completion of the
work. Otherwise, staff will not be free to commence area concept plan
work until 1998, subject to no other emerging City priorities. If
Council wishes to continue with the Trillium rezoning and defer the area
concept plan, $190,000 will need to be allocated from Contingency
Reserve in 1996 and $63,000 will need to be included in 1997
departmental budgets for the completion of the work.
Staff believe it is prudent to continue with concept planning for the
Flats due to public expectations and the ability to share resources with
those potentially allocated to the various rezonings. Public input has
indicated a desire to see comprehensive planning of an open space and
linkage network, a streets and utilities system with traffic mitigation
included, and area-wide land use concepts with adjacent neighbourhood
interfaces focused upon.
FINANCIAL IMPLICATIONS
Staff note that there will be a number of planning programs coming
before Council in 1996 that will be requesting funding from Contingency
Reserve. These programs include CityPlan Neighbourhood Visions and
interim character guidelines for RS-1 neighbourhoods. All of these
programs will extend into 1997, with the balance of the funding to be
added to the Operating Budget. These programs are in addition to the
normal workload of the Planning Department.
The Director of Finance advises that development of the 1996 Operating
Budget is nearing completion, with reports scheduled to Council during
April. Staff continue to work to Council's instruction that the 1996
general purposes tax increase be capped at 1% and that the increase be
brought as close to zero as possible. The current estimates include a
Contingency Reserve provision that has taken into consideration the
funding for the False Creek Flats planning study, should Council choose
to proceed, and for others being developed by the Planning Department.
However, it is noted that the costs go beyond 1996 and will have an
impact on the 1997 general purposes tax increase.
ENVIRONMENTAL IMPLICATIONS
The Preliminary Concept Plan is expected to benefit air and soil quality
through intensification of industry over the next 20 years. This would
provide more services close to the Downtown, minimizing the distance
travelled to the services, and result in soil remediation in new
developments. It may also improve water quality and drainage through
providing water courses, minimizing erosion, and preventing toxic run-
off.
CityPlan Implications
Development under the Preliminary Concept Plan could have a beneficial
effect of protecting existing jobs and increasing the diversity of
industrial and city-serving jobs leading to a stronger, more diversified
economy. Safety and security problems will be addressed in the upcoming
planning process. Not allowing big-box retail would safeguard the
City's objective of developing and strengthening neighbourhood centres.
CONCLUSION
It is recommended that Council adopt the False Creek Flats Preliminary
Concept Plan and approve the program and staffing to finalize this plan
and one rezoning application now in hand.
* * *
APPENDIX
B
CITYSTAFFAND RESOURCESNEEDEDFORFALSE CREEKFLATSPLANNINGAND MAJORREZONINGS
COSTS CONCEPT PLAND TRILLIUMD FINNINGE CNE TOTALS
1. PlannerA (cont. from phase I) 46,500 60,000 53,000 26,500 186,000
2. Planning AssistantA 33,200 40,000 36,400 18,200 126,800
3. Planning ClerkA 12,300 15,000 28,000 14,000 96,600
4. Consultants 10,000 20,000 20,000 15,000 65,000
5. Overtime 3,000 4,000 4,000 3,000 14,000
6. Public ConsultationB 15,000 7,000 10,000 3,000 35,000
7. Planning Furniture/Computers 5,500 5,500 2,700 2,700 16,400
8. Civil EngineerA (cont. from phase I) 41,600 53,500 48,200 24,100 167,400
9. Engineering Furniture/Computers 5,500 5,500 2,700 2,700 16,400
10. SolicitorA 34,600 34,600 34,600 103,800
11. Law Computer contribution 1,400 1,400 1,400 4,200
12. Park Board Staff/Consultants 12,200 5,000 10,000 3,300 30,500
13. Research Assistance 3,500 1,500 2,500 1,000 8,500
$188,300 $253,000C $253,500 $149,500 $844,300
PHASE ONE COSTS $90,000 $ 90,000
$934,300
FEES $155,000 $252,000 $146,000 $553,000
Footnotes: A. New or continued staff positions will be subject to evaluation by the General Manager of
Human
Resources - estimates are based upon Departmental judgement of need.
B. Public consultation costs include facility rentals, refreshments, printing, translation, mail
drops,
and postage costs.
C. If the Concept Plan is deferred, the Trillium rezoning would require $190,000 from Contingency
Reserve
in 1996 and $63,000 will need to be included in 1997 departmental budgets. Staffing would comprise
10
months of new staff plus 2 months of existing staff over a 12 month period.
D. The total cost of $441,300 requires $284,000 for 1996 (funded from the Contingency Reserve Fund)
and
represents approximately 50% of the Concept Plan work and 75% of the Trillium rezoning work, and
is
recommended for approval now.
E. Processing a CN or Finning rezoning while Concept Plan work is underway would each add approximately
3
months of resources incrementally. This could increase depending upon the complexity of the
rezoning.
Other Notes: Required rezoning fees can be expected to cover about 50% of all City costs for planning and
rezonings
of the False Creek Flats. City costs include: phase one costs, new and existing resources
projected
above plus existing staff also engaged in the work but at a lesser extent. If Finning and CN do
not
submit rezonings in the near future, costs attributed to their eventual rezonings could be higher
due
to the inability to share resources with those allocated for the concept plan. This budget does
not
include future potential rezoning of approximately 3.5 ha (8.5 acres) of City-owned lands east of
Main
Street, between Terminal and Industrial Avenues (which could result in approximately a further
$75,000
in fees).