CITY OF VANCOUVER
REGULAR COUNCIL MEETING
A Regular Meeting of the Council of the City of Vancouver was held
on Thursday, June 13, 1996, at 5:30 p.m., in Committee Room No. 1, Third
Floor, City Hall, following the Standing Committee on Planning and
Environment meeting, to consider the recommendations of the Committee.
PRESENT: Mayor Owen
Councillors Bellamy, Chiavario,
Clarke, Hemer, Ip,
Kennedy, Price
and Puil
ABSENT: Councillor Kwan (Leave of Absence)
Councillor Sullivan (Sick Leave)
CITY MANAGER'S OFFICE: Ken Dobell, City Manager
CLERK TO THE COUNCIL: Nancy Largent
COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy,
SECONDED by Cllr. Kennedy,
THAT this Council resolve itself into Committee of the Whole, Mayor
Owen in the Chair.
- CARRIED UNANIMOUSLY
COMMITTEE REPORTS
Report of Standing Committee
on Planning and Environment
June 13, 1996
Council considered the recommendations of the Committee, as
contained in the following clauses of the attached report:
Cl. 1: Oakridge/Langara Traffic Management
Cl. 2. Oakridge/Langara Public Benefits Strategy
Cl. 3. False Creek Flats Industrial Area
Regular Council Meeting, June 13, 1996 . . . . . . 2
COMMITTEE REPORTS (CONT'D)
Report of Standing Committee
on Planning & Environment
June 13, 1996 (cont'd)
Clauses 1 to 3, inclusive
MOVED by Councillor Bellamy,
THAT the recommendations of the Committee, as contained in Clauses
1, 2 and 3 of the attached report, be approved.
- CARRIED UNANIMOUSLY
RISE FROM COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy,
THAT the Committee of the Whole rise and report.
- CARRIED UNANIMOUSLY
ADOPT REPORT OF COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy.
SECONDED by Cllr. Kennedy,
THAT the report of the Committee of the Whole be adopted.
- CARRIED UNANIMOUSLY
The Council adjourned at 5:32 p.m.
* * * * *
REPORT TO COUNCIL
STANDING COMMITTEE OF COUNCIL
ON PLANNING AND ENVIRONMENT
JUNE 13, 1996
A Regular Meeting of the Standing Committee of Council on Planning and
Environment was held on Thursday, June 13, 1996, at 2:00 p.m. in
Committee Room No. 1, Third Floor, City Hall.
PRESENT: Councillor Price, Chair
Mayor Owen
Councillor Bellamy
Councillor Chiavario
Councillor Clarke
Councillor Hemer
Councillor Ip
Councillor Kennedy
Councillor Puil
ABSENT: Councillor Kwan (Leave of Absence)
Councillor Sullivan (Sick Leave)
CITY MANAGER'S OFFICE: City Manager
CLERK: Nancy Largent
ADOPTION OF MINUTES
The Minutes of the meetings of May 9/15, and May 16, 1996 were
adopted as circulated.
VARY ORDER OF AGENDA
The Committee agreed to vary the agenda order to deal with item 3
first.
3. False Creek Flats Industrial Area
On May 28, 1996, City Council adopted the False Creek Flats
Preliminary Concept Plan, but deferred the following (all reports on
file):
- Recommendation D of a Policy Report dated March 27, 1996,
entitled "False Creek Flats Planning Overview and Preliminary
Concept Plan" (Recommendations A and B were approved ; C was
not put);
Clause No. 3 Continued
- Policy Report dated March 27, 1996, entitled "Proposed
Rezoning of 940-960 Station Street (Trillium Site);
- Policy Report dated March 27, 1996, entitled "Live/Work and
Work/Live: Vancouver Overview"
- A motion by Councillor Kwan:
THAT staff be requested to report back on a process to develop
the Grandview Cut for pedestrian or rail use only.
Larry Beasley, Director of Central Area Planning, briefly reviewed
three options for further work on False Creek Flats:
- proceed now with a full implementation program and the
Trillium rezoning (Recommendation C of the Policy Report);
- proceed now with only the Trillium rezoning and leave the
balance of plan implementation until later (Recommendation D
of the Policy Report);
- proceed now with the Trillium rezoning and planning for the
Thornton Park area (recommendation D1 set out in a June 5,
1996, memorandum from the Director of Central Area Planning,
on file).
Mr. Beasley also responded to a query with respect to the
allocation of funding.
Richard Johnson, Planner, clarified the definitions of work/live
and live/work as set out in a June 6, 1996 memorandum from the Director
of Central Area Planning (on file). Mr. Johnson explained the Policy
report concentrates on industrial work/live because commercial work/live
has less neighbourhood impacts.
Planning Overview
The Committee was amenable to Mr. Beasley's proposal to proceed
with the Thornton Park area plan as well as the Trillium rezoning. The
following recommendation by Councillor Clarke was put and carried.
Therefore, the Committee
Clause No. 3 Continued
RECOMMENDED
THAT Council approve D1, as set out in the Director of Central Area
Planning's memorandum dated June 5, 1996, as follows:
D1. THAT funding to complete the Thornton Park area plan/Trillium
rezoning, as set out in Appendix 2 of the June 5, 1996
memorandum, be approved for a 13-month period at a cost of
$293,000, of which $155,000 will be offset by Trillium's
rezoning fees;
FURTHER THAT the 1996 portion of this, in the amount of
$177,500, come from the Contingency Reserve Fund and the
balance of $115,500 be included in the departmental regular
operating budgets in 1997;
AND FURTHER THAT Planning, Engineering and Law Department
staff for the Thornton Park area plan/Trillium rezoning be
approved as set out in Appendix 2, subject to job evaluation
by the General Manager of Human Resources Services.
- CARRIED UNANIMOUSLY
Councillor Kwan's previously deferred motion with respect to
Grandview Cut was not put.
Trillium Rezoning
The Committee was satisfied with the staff recommendations, and was
also prepared to see a commercial work/live component included provided
it were related to the film production industry as reflected in
recommendation B.
The following motions by Councillor Clarke were put and carried.
Therefore, the Committee
RECOMMENDED
A. THAT, consistent with the False Creek Flats Preliminary
Concept Plan, the IBI Group, rezoning applicants for 940-960
Station Street, be advised that the previously defined
Trillium site is primarily suited for low-impact, city-serving
and Downtown-related industrial uses and that the following
would also be considered with the primary uses:
Clause No. 3 Continued
- retail, service, and entertainment as minor components
ancillary to the primary uses; and
- artists' live/work studios, consistent with existing City
policies.
B. THAT in association with the primary uses, Council is prepared
to consider up to 150 units initially of industrial work/live
as a pilot project, as well as a modest component of bona fide
commercial work/live, provided the commercial work activities
are clearly related to the on-site industry of movie
production studios.
C. THAT if the site is expanded to include areas on Main Street
or elsewhere outside areas set aside for industry, a range of
other uses may be considered in the expansion area, including
residential, commercial, retail, service, commercial
work/live, and other uses consistent with a mixed use
community.
D. THAT a comprehensive development rezoning will be considered
for the site, with a form of development which addresses
appropriate built form and urban design concepts, street
patterns, open space and public realm schemes, and amenity
provisions.
- CARRIED UNANIMOUSLY
Live/Work and Work/Live
The Committee was satisfied with staff recommendations A, B and C
as reflected in this report. However, it was felt experimental
Industrial Work/Live proposals should not be entertained for M-2 sites
or the Port CD-1 District, as reflected in the following recommendation
D, to prevent land speculation or other interference with industrial
uses.
The following motions by Cllr. Clarke were put and carried.
Therefore, the Committee
RECOMMENDED
A. THAT Strategic Directions 8.1, 8.2, 8.3 and 8.4 in Appendix A
of the March 27, 1996 Policy Report be endorsed, to guide
consideration of Live/Work and Work/Live in future planning
work programs, as and when these occur. Briefly these
include:
Clause No. 3 Continued
8.1: general directions for all types of Live/Work or
Work/Live including eligibility for City affordability
initiatives, owner/tenant awareness of nature of
development; the need for consultation;
8.2: directions to enhance Commercial
Live/Work,including a possible future review of
"homecraft" regulations;
8.3: directions to guide Commercial Work/Live (as part
of work underway on "general work/live"); and
8.4: directions to enhance Industrial Live/Work (i.e.,
low impact activities, as part of current work underway
on "general live/work").
B. THAT Strategic Directions 8.5.1 to 8.5.10 in Appendix A be
endorsed, regarding Industrial Work/Live 8.5.1 to 8.5.10
include directions regarding: taking a CD-1 project approach;
limiting the number of units to be approved city-wide to 100
over 5 years; approaching Building By-law issues; an occupancy
limit; the design features required; parking, loading,
security solutions needed; monitoring; entertaining projects
in three mixed use/industrial districts; entertaining projects
in M and I districts, in existing buildings, rental only, up
to 1.0 FSR; considering experimental projects in M and I sites
subject to various conditions (as amended in Recommendation
D).
C. THAT Strategic Direction 8.5.11 in Appendix A be endorsed, to
entertain an experimental Industrial Work/Live project, in new
construction, of up to 150 units on the Trillium site, subject
to conditions. D. THAT Strategic Direction 8.5.12 in Appendix A be endorsed,
regarding responding to other experimental Industrial
Work/Live proposals in new construction, on M and I sites
other than M-2 sites and the Port CD-1 District proposed to
remain after the I-2 zoning initiative;
AND FURTHER THAT Strategic Direction 8.5.10 be amended to be
consistent with this.
- CARRIED UNANIMOUSLY
1. Oakridge/Langara Traffic Management
The Committee had before it an Administrative Report dated May 28,
1996 (on file), in which the General Manager of Engineering Services and
Director of Community Planning sought Council approval of proposed
measures to address existing traffic issues in the Oakridge/Langara
area. The report also assessed overall traffic impact from anticipated
developments in the area.
Frank Ducote, Senior Community Planner, gave a brief introduction
acknowledging the substantial contribution of Engineering staff. Mr.
Ducote also reminded the Committee that two sites in Oakridge/Langara -
5650 Oak Street and Oakherst Hospital - have been referred to Public
Hearing and therefore, should not be referenced by the delegations.
Doug Louie, Transportation Division - Engineering Services,
reviewed the public process including four open houses held for area
residents. Staff are implementing a variety of measures to address some
very localized concerns. In addition, Mr. Louie discussed four problem
areas: 45th Avenue between Tisdall and Cambie; Heather Street; Cambie
and 59th Avenue; and Cambie and S.W. Marine Drive. Oakridge/Langara
traffic counts were also referenced, noting that traffic mitigation for
new developments should be determined after a rezoning application has
been submitted and impacts can be assessed.
Ruth Hodge, area resident, noted that existing heavy traffic on
Cambie Street is already a concern, and cautioned that projected
development in the area can only increase problems. Ms. Hodge also gave
various examples of area traffic problems and requirements.
Diana Hu, area resident, was concerned that no demographics have
been offered regarding projected development and associated needs.
Families in the area tend to drive cars because transit is ineffective.
Projected future traffic volumes may not be accurate until a demographic
breakdown is available.
Queried regarding projected population in the new units, Jacquie
Forbes-Roberts, Director of Community Planning, felt it unlikely there
will be many large households. It is likely many will house older
couples who wish to sell larger homes but remain in their neighbourhood.
Projections drew on 1991 census data.
The Committee was satisfied with the staff recommendations, which
are reflected in Recommendations A through D of this report.
Clause No. 1 Continued
The following motions by Mayor Owen were put and carried.
Therefore, the Committee
RECOMMENDED
A. THAT the traffic management and safety measures identified in
the Traffic Management Planning process be approved for
implementation. These include:
* Traffic calming along 45th Avenue between Cambie and
Tisdall, with eight corner bulges, stop signs, pedestrian
crosswalks and the review of a speed table;
* Stop sign infill program for the area bounded by 57th
Avenue, S.W. Marine Drive, Oak Street and Cambie Street;
* The review of traffic concerns identified by the public
listed in Appendix B of the May 28, 1996 Policy Report
and any necessary actions required to address them.
B. THAT the requested pedestrian and bicycle actuated signal at
57th Avenue and Heather Street be reviewed in the 1997 annual
traffic signal program report.
C. THAT the proposed changes to the intersection of Cambie and
59th Avenue, and Cambie and S.W. Marine Drive be presented to
the neighbourhood for further input and surveys as necessary,
with a detailed report back to the Vancouver Traffic
Commission.
D. THAT the vehicular and pedestrian access to the Oakridge
Shopping Centre from 45th Avenue be reviewed for improvements
at the time of their next rezoning application.
- CARRIED UNANIMOUSLY
2. Oakridge/Langara Public Benefits Strategy
The Committee had before it a Policy Report dated May 14, 1996 (on
file), in which the Director of Community Planning, in consultation with
the General Managers of Engineering Services and Parks and Recreation,
Managers of Housing Centre and Real Estate Services, and Directors of
Social Planning, Legal Services and Permits and Licenses, recommended a
Public Benefits Strategy for Oakridge/Langara. The proposed strategy
responds to the need for public amenities required by new development in
the area. The General Manager of Community Services also recommended
approval.
Frank Ducote, Senior Community Planner, gave a brief introduction,
acknowledging the assistance of other civic departments in preparation
of the report. In response to queries, Mr. Ducote also clarified the
definitions of development cost levy (DCL) and community amenity
contribution (CAC) and how these may be used.
Randy Pecarski, Planner, reviewed the report and rationale for the
recommendations, stressing the following key elements:
- identification of public benefits and application of DCLs and
CACs;
- establishment of a DCL boundary and rate;
- allocation of funds to public benefits and establishment of
priority actions;
- review and modification of the strategy.
Mr. Pecarski also reviewed funding, infrastructure, and the public
process. The next steps toward implementation of the strategy were
described.
Council then heard from the following delegations.
Don Larson expressed a preference for on-site amenities as the
first priority. Marpole/Oakridge needs more parkland, especially for
small passive parks which add to the quality of life. Therefore, Mr.
Larson did not support the recommendation to improve Oak and Tisdall
Parks.
Alan Gjernes, Graystone Properties, was willing to live with the
recommended strategy and urged the Committee to approve it, thereby
permitting the development process which has been on hold for the past
two years to proceed.
Clause No. 2 Continued
Bert Forman, B.C. Rehab, supported the public benefits strategy and
initiation of DCLs in principle, but expressed concern with replacement
housing as it relates to their clientele with physical disabilities.
Concern was also expressed regarding the application of DCLs to a
non-profit society.
The following speakers expressed concern about proposed
over-development of the Oakridge/Langara area:
- Brian Buchanan (brief filed)
- Shirley Abrams, Oakridge/Langara Planning Group
(brief filed)
- Sophie Lee
- Stuart Galbraith (brief filed)
- Zena Wagstaff (not present; brief filed by Mr. Galbraith)
- Ruth Hodge
- Diana Hu
- Miranda Yeung.
Some of the comments made by the foregoing speakers are summarized
below:
- development proposed in the Oakridge/Langara Neighbourhood
Plan is far too dense and not what area residents want;
- the so-called benefits from development of the area will be
obtained at high social costs to the area's existing
residents, who face drastic changes in their quality of life
and values;
- increased densities will bring more crime, more traffic, more
pollution and higher taxes to the area;
- DCLs are theoretical transfers of cash for theoretical
benefits which may be allocated to different neighbourhoods,
and might be seen in a more favourable light if they were at
least tied to the area;
- the large sites proposed for dense development should be used
to provide small single-family homes and two or three unit
dwellings;
- there are already problems with flooding in the area, and
sewer system improvements should be high priority;
Clause No. 2 Continued
- these benefits were arrived at by the Planning Department
based on very limited public response, and there is no
provision for public input as development goes forward;
- a neighbourhood house and a community crime prevention office
are needed in the area;
- the former Oakridge Police Station site should remain City
property and be used to provide public amenities;
- the planning process in the area has been developer driven,
and the public benefits strategy report should be deferred
pending the establishment of a neighbourhood design panel;
- the Planning Department's reports are not readily
understandable in such a diverse neighbourhood;
- concerns were expressed about non-market housing and who the
target residents would be, with respect to possible increases
in the area crime rate.
Jacquie Forbes-Roberts, Director of Community Planning, and other
staff provided clarification on a number of the foregoing issues. Ken
Dobell, City Manager, confirmed that the Oakridge Station has been sold,
and funds will be put toward the capital costs of the new station on
Cambie Street.
The Committee recalled that the Oakridge/Langara Neighbourhood Plan
was developed over a three-year period with substantial public input.
Only a moderate increase in density and building height is envisioned
over an extended period. It is hoped new accommodation will provide a
place for area seniors who no longer wish to maintain large homes, but
do want to remain in their neighbourhood.
The following motions by Mayor Owen were put and carried.
Therefore, the Committee
RECOMMENDED
A. THAT Council adopt the Oakridge/Langara Public Benefits
Strategy, including the allocation of funds to identified
capital projects and implementation actions, as described in
the May 30, 1996 Policy Report.
Clause No. 2 Continued
B. THAT the area of Oakridge/Langara shown in Figure 1 be
established as a Development Cost Levy (DCL) District,and that
the policies in Appendix A be adopted to guide administration
of DCLs in the Oakridge/Langara neighbourhood.
C. THAT the 1996 rate for collection of Development Cost Levies
(DCLs) be set at $34.98 per square metre ($3.25 per square
foot) for all uses, other than for daycare which will be set
at $5.49 per square metre ($.51 per square foot).
D. THAT the levy proceeds be spent in the following proportions:
(i) 63 percent for park acquisition and development;
(ii) 30 percent for replacement housing; and
(iii) 7 percent for street (walking) improvements.
E. THAT the Director of Legal Services be instructed to prepare
the necessary by-laws for report back.
F. THAT the General Manager of Engineering Services and Director
of Community Planning work with area residents in the design
and implementation of street (walking) improvements along
pedestrian collector roots (mainly Heather, Tisdall and Willow
Streets)
- CARRIED UNANIMOUSLY
The Committee adjourned at 5:30 p.m.