CITY OF VANCOUVER
REGULAR COUNCIL MEETING MINUTES
STANDING COMMITTEE ON
PLANNING AND ENVIRONMENT
APRIL 24, 1997
A Regular Meeting of the Council of the City of Vancouver was held
on Thursday, April 24, 1997, at approximately 6:00 p.m. in the Council
Chamber, Third Floor, City Hall, following the Standing Committee on
Planning and Environment meeting, to consider the recommendations of the
Committee.
PRESENT: Mayor Philip Owen
Councillor Don Bellamy
Councillor Nancy A. Chiavario
Councillor Jennifer Clarke
Councillor Alan Herbert
Councillor Daniel Lee
Councillor Don Lee
Councillor Gordon Price
ABSENT: Councillor Lynne Kennedy (Civic Business)
Councillor George Puil
Councillor Sam Sullivan
CITY MANAGER'S
OFFICE: Ken Dobell, City Manager
CLERK TO THE
COUNCIL: Gil Mervyn
COMMITTEE OF THE WHOLE
MOVED by Cllr. Bellamy
SECONDED by Cllr. Price,
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
April 24, 1997
Council considered the recommendations of the Committee as
contained in the following clauses of the attached report:
Cl. 1: Waterfront Pedestrian/Bicycle Route Design - Bayshore
Development
Cl. 2: Southeast Shore of False Creek: Planning/Rezoning of
City-owned Lands for a Residential Community
Cl. 3: Award of Contract No. 9701: Processing and Marketing of
Residential Recyclable Material
Waterfront Pedestrian/Bicycle Route Design - Bayshore Development
(Clause 1)
MOVED by Cllr. Clarke,
THAT the recommendations of the Committee, as contained in Clause 1
of the attached report, be approved.
- CARRIED UNANIMOUSLY
Southeast Shore of False Creek: Planning/Rezoning of
City-owned Lands for a Residential Community
(Clause 2)
The Standing Committee heard 21 of 32 registered speakers with
regard to this matter. The hearing of speakers and consideration of the
Policy Report dated April 2, 1997, will be resumed during the next
regularly scheduled meeting of the Committee on May 8, 1997.
Award of Contract No. 9701: Processing and Marketing of
Residential Recyclable Material
(Clause 3)
MOVED by Cllr. Clarke,
THAT the recommendations of the Committee, as contained in Clause 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. Price,
THAT the report of the Committee of the Whole be adopted.
- CARRIED UNANIMOUSLY
Council adjourned at 6:05 p.m.
* * * * *
REPORT TO COUNCIL
STANDING COMMITTEE OF COUNCIL
ON PLANNING AND ENVIRONMENT
APRIL 24, 1997
A Regular Meeting of the Standing Committee on Planning and
Environment was held on Thursday, April 24, 1997 at approximately 2:00
p.m. in the Council Chamber , Third Floor, City Hall.
PRESENT: Councillor Jennifer Clarke, Chair
Mayor Philip Owen
Councillor Don Bellamy
Councillor Nancy A. Chiavario (Item 3)
Councillor Alan Herbert
Councillor Daniel Lee
Councillor Don Lee
Councillor Gordon Price
Councillor George Puil
Councillor Sam Sullivan
ABSENT: Councillor Lynne Kennedy (Civic Business)
CITY MANAGER'S
OFFICE: Ken Dobell, City Manager
CLERK TO THE
COMMITTEE: Gil Mervyn
ADOPTION OF MINUTES
The minutes of the meeting of March 27 , 1997 were adopted as
circulated.
RECOMMENDATION
1. Waterfront Pedestrian/Bicycle Route Design
- Bayshore Development File No.: 5553-1
The Committee had before it an Administrative Report dated April 8,
1997 (on file), in which the Manager of Engineering Services, in
consultation with the Director of Central Area Planning and the Manager
of Parks and Recreation, recommended approval of the design of the
shoreline protection works and the pedestrian/bicycle system for the
Bayshore Site and the design and location of handrails.
Council had requested a report back on the detailed design of
shoreline protection works only if the design differs significantly from
approved proposals and principles. In this instance, the design of the
shoreline protection works along Cardero Park is generally in accordance
with the design concepts approved by Council. The design in the Marina
and Charter Boat sections, however, have changed to accommodate staff
and Fisheries concerns. Precast panels originally approved by Council
have been replaced with simpler, more elegant fascia panels and the
slopes above low water level have been treated with a specially placed
rock finish. To meet Fisheries requirements, the slope in the Charter
Boat section has been revised, with a resulting increase in the vertical
drop from the deck level and the rock slope from 3m to 4m.
The report also recommended the approval of the design of handrails
along the entire length of the walkway/bicycle path. The design and
location of the handrail address the issue of balancing aesthetic
objectives against safety concerns and potential liability for the City.
Although Council had approved in the conceptual Shoreline Designs report
in October, 1991, that shoreline handrails be kept to a minimum, so
views are not obstructed, the Building By-law requires all drops over
600 mm (2 feet) to have guards. Planning and Park Board staff are
concerned that a handrail along the Charter Boat section of the walkway,
north of the Bayshore Hotel, will have a significant impact on enjoyment
of the northward views and will not meet Council s intent of minimizing
handrails. Planning and Park Board staff prefer the use of a planter
barrier along the edge of the deck. Engineering staff are concerned the
planter edge will not provide an adequate barrier for preventing people,
especially children, from potentially falling over the edge.
Brent MacGregor, Deputy City Engineer, reviewed the variances of
the proposed design from the approved principles, with specific
reference to the design and location of the handrails.
Sherri Plewes, Project Engineer, using display panels, provided a
description of the proposed design, including the handrail, as
recommended by Engineering staff and the option for a planter edge as
preferred by Planning and Park Board staff.
Norm Shearing, Aoki Corporation, referring to the Administrative
report, clarified the developer supported the installation of planters,
as preferred by the Planning and Park Board staff, rather than the
installation of handrails along the entire walkway, as recommended by
the report.
Ken Dobell, City Manager, provided clarification of the liability
implications of not providing the handrail throughout the entire length
of the walkway, noting that although Council had the right to apply
political judgement, it would not be except from liability in the event
of a claim against the City.
While some members expressed concern regarding the loss of views
resulting from the installation of handrails, the Committee noted the
handrails would only obstruct the views for persons sitting at benches,
and not those standing or walking along the walkway.
The following motions by Councillor Puil were put and carried.
Therefore the Committee
RECOMMENDED
A. THAT Council approve the revised design of the shoreline
protection works for the Bayshore development as shown in
Appendix A of the Administrative Report dated April 8, 1997.
B. THAT Council approve the design of the waterfront
pedestrian/bicycle route for the Bayshore development as shown
in Appendix A of the Administrative Report dated April 8,
1997.
D. THAT Council authorize staff to obtain a right-of-way to the
satisfaction of the City Engineer, on the west side of the
Bayshore Gardens project in order to connect the
walkway/bicycle path with Stanley Park.
E. THAT Council authorize staff to obtain a 1.5m right-of-way on
the east side of the Bayshore Hotel for the bicycle
path/walkway when a development permit application is made for
the hotel.
- CARRIED UNANIMOUSLY
The following motion by Councillor Puil was put and carried.
Therefore, the Committee
RECOMMENDED
C. THAT Council approve the design of handrails as shown in
Appendix B of the Administrative Report dated April 8, 1997,
along the entire length of the walkway/bicycle path.
- CARRIED
(Councillors Herbert, Price and Sullivan opposed)
VARY ORDER OF AGENDA
The order of the agenda was varied to deal with item 2 last.
3. Award of Contract No. 9701: Processing and Marketing of
Residential Recyclable Materials Files: 1801-1/3758-1
The Committee had before it an Administrative Report dated April
18, 1997 (on file), in which the General Manager of Engineering Services
recommended acceptance of the bid from Browning-Ferris Industries Ltd.
for the processing and marketing of residential recyclable materials,
collected by the City through three recycling programs: the Blue Box
program; the Apartment Recycling Pilot Program and the Mini-Depot
drop-off program.
Three bids were submitted. Two of the three tenders - one
submitted by Browning-Ferris Industries Ltd. (BFI) and the other
submitted by International Paper Industries Ltd. (IPI) - were
short-listed for further examination. Both bids had certain advantages
and disadvantages over the other. While the IPI bid is expected to
provide the City with roughly $8,600 higher annual recycling revenues
over the two year term of the contract than the BFI bid, the BFI bid is
operationally superior since BFI s proposed receiving facility is a more
favourable site than IPI s. Further, there is considerable risk that
the IPI site may not be suitable for use under the processing and
marketing contract due to the size and proportions of the site, its use
by other recycling operations and excessive noise levels emanating from
the operations on the site.
Also before the Committee was a letter from Jill Pelletier,
Northmark Mechanical Systems Inc., dated April 23, 1997, (on file)
expressing concern regarding the infractions of the Noise By-law
occurring at the IPI Receiving Facility and requesting the operation of
the IPI Receiving Facility not be permitted to continue.
Brian Davies, Assistant City Engineer, reviewed the process used by
staff for the analysis of the tenders and the rationale for the
recommendation.
Richard Bergen, International Paper Industries Ltd., questioned the
accuracy of the financial analysis carried out by City staff, as the
data upon which it had been based had been obtained from unreliable
sources. Mr Bergen circulated letters obtained from Jefferson Smurfit
Corporation and Newstech Recycling Ltd. (on file), which supported his
position. Mr. Bergen also advised his company had obtained a permit for
the operation of its receiving facility and it would be fully
operational by May 1, 1997, as required by the tender document. Mr.
Bergen asked that the tenders be reviewed.
The following motion by Mayor Owen was put and carried. Therefore
the Committee
RECOMMENDED
THAT Council authorize acceptance of the bid from Browning-Ferris
Industries Ltd. at an approximate minimum annual tender value of
$7,380 (annualized net revenue to the City based on December 1996
market prices) and an approximate upper annual tender value of
$143,500 (annualized net revenue to the City based on December 1996
market prices) to process and market the City s residential
recyclable materials for a two-year term, with options for three
one-year extensions by mutual agreement, subject to a contract
satisfactory to the Director of Legal Services.
- CARRIED UNANIMOUSLY
2. Southeast Shore of False Creek: Planning/Rezoning of
City-owned Lands for a Residential Community
File: 8206
The Committee had before it a Policy Report dated April 2, 1997 (on
file) in which the City Manager, in consultation with the Manager of
Real Estate Services, on behalf of the Property Endowment Fund Board,
recommended that the next phase of the proposed rezoning of the
Southeast Shore of False Creek commence. The report also provided the
results of an economic analysis of the redevelopment of the site,
completed by Stanley Kwok Consultants Inc. Copies of the Consultant s
report, Creekside Landing Southeast False Creek, had been previously
distributed to Council members and is on file in the City Clerk s
Office.
The Consultant considered a number of development concepts based on
existing Council Objectives. Several concepts were evaluated, including
an industrial park, a mixed industrial/ residential concept and a number
of residential scenarios. The most viable alternative was a residential
development which assumed a density in excess of 3.0 FSR and a built
form including towers. The proposed residential density is higher than
that approved for False Creek North (2.8 FSR) but lower than that
approved for City Gate (3.76 FSR).
The Consultant found it impossible to meet a number of existing
City policies fully. A relatively high density and high rise form of
development would challenge Council s objectives for family oriented
housing and a conventional view of sustainable development. While the
development of the area provides the potential of bringing a significant
number of benefits to the City, these levels can not be provided at the
levels required by present City policy without a very major City
subsidy. The report suggested it is an appropriate time to confront the
conflicting objectives for cost recovery and very high levels of
amenity, before confirming expectations based on existing City policies
and objectives.
The Manager of Real Estate Services noted that based on real estate
investment return considerations, a reasonable return would not be
achieved by the Consultant s preliminary concept. Alternate strategies,
based only on return considerations, would include selling the lands or
pursuing interim holding uses and redeveloping in a more favourable
environmental or economic time.
The City Manager recommended approval of the following:
A. THAT Council receive for information a report called
"Creekside Landing, Southeast False Creek" dated January 1997
and prepared by Stanley Kwok Consultants Inc., representing
completion of Phase I of the Southeast Shore of False Creek
development contract.
B. THAT the City Manager be instructed to proceed with Phase II
of the development contract awarded to Stanley Kwok
Consultants Inc. and report back on the terms of reference,
reporting channel, fees, and budget for this planning/rezoning
phase.
C. The Director of Central Area Planning be instructed to proceed
with the Council-approved planning process for the Southeast
Shore of False Creek.
D. The Director of Central Area Planning be instructed to report
back on the Council-approved Sustainable Development
Consultancy for the Southeast Shore of False Creek by July,
1997.
E. THAT Council instruct staff that the existing policies and
objectives for development in South East False Creek be
considered only as a starting point for area specific
development guidelines, and that in the development of area
specific guidelines, Council is prepared to consider deviation
from existing policy to ensure development is both economic
and sensitive to other concerns which arise in the planning
process;
FURTHER THAT Council instruct staff that the analysis of
sustainability of the development reflect its urban context.
The City Manager noted Council could pass B, C and D, requiring
that the redevelopment proposal comply with existing guidelines, likely
at the expense of full cost recovery to the City, and flexibility to
achieve a development which meets multiple objectives. However, should
Council not wish to approve E, the City Manager recommended Council
approve F and G below in replacement for B, C & D.
F. THAT Council not proceed further with planning for
redevelopment at this time.
G. THAT Council instruct the Manager of Real Estate Services to
investigate the sale or lease of the False Creek Lands and
report back to the Property Endowment Fund for instruction
relative to a further report to Council.
Ken Dobell, City Manager, clarified the intent of the report was to
recommend to Council the commencement of the planning process for the
Southeast shore of False Creek. The Consultant s report was to be seen
only as a starting point in the process. The report also recognized the
need for Council to re-examine its existing policies to permit
development of the lands to proceed, while balancing economic
considerations against the City s objectives of providing amenities in
general and a model sustainable community and housing for families and
children in this site. The intent of Recommendation E is to facilitate
the achievement of Council s goal to establish such a community.
Bruce Maitland, Manager of Real Estate Services, outlined the role
and objectives of the Property Endowment Fund Board. Mr Maitland
stressed the report prepared by the consultant was not intended as a
recommendation for design, rather an economic feasibility study of the
site. The cost implications from sustainable development were not
included in the Consultant s analysis, as the concept of sustainable
development remains undefined.
Larry Beasley, Director of Central Area Planning, provided an
overview of the three part process for the planning and rezoning of the
site. In October, 1995 Council approved the planning boundaries,
management structure, process, timing and funding for the preparation
of an Overall Policy Statement (Part 1) and Official Development Plan
(Part 2) and Zoning (Part 3). The process is consistent with other
major developments handled by the City. The actual commencement of the
planning process is pending Council s decision, following consideration
of the Consultants Phase I feasibility study report.
In response to a request from a member of the Committee, Mr.
Beasley agreed to provide a memo outlining the previously approved
planning process proposed for the site, including the role of
participants.
The Chair noted there were 31 speakers registered to speak to this
report and explained the Committee would not have sufficient time to
hear all registered speakers at this meeting. It was agreed the hearing
of speakers and the consideration of the report will be resumed at the
next regularly scheduled meeting of the Committee, on May 8, 1997.
The following speakers supported redevelopment of the site, but
felt insufficient analysis of the feasibility of sustainable development
had been considered in the consultants report. The planning process
should proceed but only after a broader consideration of the issues and
opportunities related to the development of a sustainable community for
the site:
Chris Phillips, Vancouver City Planning Commission (brief
filed)
Ronald Bain, Ecodesign Resource Society (brief filed)
Don Alexander, SFU School of Resource & Environmental
Management (brief filed)
Linda Mix, Tenants Rights Coalition
Eva Riccius, S.E. False Creek Working Group
Gaching Kong, Environmental Youth Alliance
Tana Worcester
Odete Tinho
Tom Laviolette, Carnegie Community Association
Denise Taschereau, S.E. False Creek working Group
Blair Petrie
Angela Smails, Eco-City Network
Heather Warnell
Mike Overholt, Murphy Stationery (brief filed)
Sean McEwen, Lower Mainland Network for Affordable Housing
Ray Straatsma
Barbara Pettit, Designers for Social Responsibility (brief
filed)
Andrea Harris
Gavin Davidson
Steven Chan
Graham McGava, Baker McGava Hart
The foregoing speakers made one or more of the following points in
support of the positions taken:
the planning process for the site must be more comprehensive and
look at both the short and long term benefits associated with the
development of the site;
undertake a thorough examination of the social profile of the
existing and proposed communities (both for the site and adjoining
areas);
sustainability should be treated as an integral part of the
planning process, not just an add-on ;
need to develop a Vancouver Understanding of sustainability
principles that would apply to the redevelopment of the site;
the costs of soil remediation should not be used as an argument
against sustainability;
there are many benefits to developing a model sustainable
community that other parts of the City (and region) can emulate;
resources and time allocated to a sustainable development
consultancy is inadequate;
planning process should involve extensive public consultation; be
broad based, both in terms of people and their backgrounds, as well
as surrounding residents and owners;
City should draw upon the expertise and talents of the many groups
and individuals available in the community;
do not support relaxing Council policies if important public
amenities are to be jeopardized (e.g. Social Housing);
affordable housing needs to be an integral part of the development;
should look at other models of providing social housing.
Many of the foregoing speakers, either on their own or on behalf of
the group represented, offered to work with the City in developing a
greater understanding of sustainable development and developing a
concept for the redevelopment of the site.
Vicki Gibson, Musicians Association for Cooperative Housing (MACH)
supported redevelopment of the site as a sustainable community and asked
consideration be given to the provision of an Artist Live Work Residence
and Arts Resource Centre as part of the development.
The Committee heard 21 of 32 registered speakers. The hearing of
speakers and consideration of the Policy Report dated April 2, 1997,
will be resumed during the next regularly scheduled meeting of the
Committee on May 8, 1997.
The Committee adjourned at 6:00 p.m.
* * * * *