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POLICY REPORT
URBAN STRUCTURE Date: January 10, 1998
Author: BRiera/AMcAfee
CC File No. 5340
RECOMMENDATIONS
A.THAT the Draft Development Plan to Comply with the Requirement for a Regional Context Statement, attached as Appendix A, be adopted.
B.THAT the Regional Context Statement Development Plan be forwarded for comment to the board of the Greater Vancouver Regional District, as required under Section 562 (2) of the Vancouver Charter, and to the School Board, as required under Section 562 of the Vancouver Charter.
C.THAT following the receipt of comments:
(i)The Director of City Plans report any proposed changes to the Vancouver Regional Context Statement to Council; and
(ii)The Director of Legal Services prepare for Council a by-law to establish the Vancouver Regional Context Statement Development Plan (as amended if necessary) as an Official Development Plan.
GENERAL MANAGER’S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A, B and C.
COUNCIL POLICIES
The following policies establish the City’s strategic land use and transportation directions. They form the basis of the City's Regional Context Statement.
On December 3, 1991, Council adopted the Central Area Plan Goals and Land Use Policy to: concentrate offices in the Downtown Central Business District and the Broadway-Cambie uptown; encourage job growth at a rate that helps balance jobs and housing in the city; maintain lands for industrial activities that serve the downtown; create residential neighbourhoods for diverse household types and incomes close to central area jobs; extend measures to protect heritage buildings and areas; maintain the downtown as a significant retail centre and the region’s cultural and entertainment centre; and enhance transportation systems to provide a greater emphasis on walking, biking, and transit.
On June 6, 1995, Council adopted CityPlan to guide policy decisions, corporate work priorities, budgets, and capital plans with respect to Neighbourhoods, Community Services, Transportation, Economy, Environment, Central Area, Decision-making, and Financial Accountability. CityPlan was approved as a context for developing partnership agreements between the City of Vancouver and the Greater Vancouver Regional District with respect to the Livable Region Strategic Plan.
On June 6, 1995, Council endorsed the Livable Region Strategic Plan objectives to protect the GVRD Green Zone, Build Complete Communities, Achieve a Compact Metropolitan Region, and Increase Transportation Choice. Support was subject to the following:
·Green Zone lands are those approved by Council on September 16, 1993. Areas in the Green Zone are for planning purposes only and remain under the City’s jurisdiction;
·Support for "Complete Communities" includes a moderate increase in jobs in the Central Area, retention of jobs in industrial areas, and an increase in employment in neighbourhood centres with the objective of improving the City’s jobs-housing balance;
·Support for "Compact Metropolitan Region" includes provision of existing zoning capacity for an additional 100,000 people (as of June 1995) and commitments to seek housing for a further 60,000 people through neighbourhood planning programs. Given the City’s limited opportunities to provide additional traditional ground-oriented housing, the City agreed to explore new forms of housing which offer qualities similar to ground-oriented housing but at higher densities; and
·Support for Regional Transportation Choice policies subject to investment in transportation services and facilities reflecting total population and employment served. On April 12, 1994, Council approved GVRD’s Transport 2021.
On March 14, 1995, Council adopted the Industrial Lands Strategy to retain most of the city’s existing industrial lands for city-serving, city-oriented, and port/river related industry. On October 22, 1996, Council amended the I-2 District Schedule to better meet the needs of new types of industry and service activities in a way which is compatible with adjacent residential areas.
On May 27, 1997, Council adopted The Vancouver Transportation Plan including mode split targets which emphasize the need for increased provision and use of transit, limiting overall road capacity to the present level, maintaining an efficient goods movement network, traffic calming in neighbourhoods, and providing more comfortable biking and walking environments.
SUMMARY AND PURPOSE
Vancouver is required to adopt a "Regional Context Statement" (RCS) illustrating how City plans and policies contribute to implementing the GVRD Livable Region Strategic Plan (LRSP). This report seeks Council's endorsement of a Draft Regional Context Statement based on adopted City plans, policies, and regulations. Existing City policies support the LRSP green zone, complete communities, compact region and transportation policies. The principle concerns are with respect to the ability to accommodate more ground-oriented housing in the city and financing the costs associated with growth.
The report also outlines a process for adoption of Vancouver's Regional Context Statement. The GVRD has requested the City adopt a Regional Context Statement by by-law. This can be done by adopting the City's RCS as an Official Development Plan under Section 562 of the Vancouver Charter. Adoption of a RCS by by-law means that Council cannot authorize, permit, or undertake any development contrary or at variance with the ODP. Should circumstances change, it would be necessary to amend the by-law before new directions can be pursued.
BACKGROUND
Provincial legislation requires the GVRD to prepare a strategy for managing growth. In 1996, the Livable Region Strategic Plan was formally approved as the strategic plan for the Greater Vancouver Regional District. Vancouver is now required to adopt a "Regional Context Statement" (RCS) to illustrate how the City's plans and policies contribute to implementing the regional strategic plan. If Vancouver's policies are not in accordance with the regional plan, then the RCS is expected to outline actions the City will take, over time, to bring City policies in line with the regional strategic plan. Regional Context Statements are required to be forwarded to the GVRD by February 10, 1998, for approval by the Board.
The GVRD has provided an overall format for regional context statements. Municipalities are asked to outline commitments to the LRSP which:
·Protect the Green Zone
·Build Complete Communities
·Achieve a Compact Metropolitan Region and
·Increase Transportation Choice.
These commitments are intended to be part of an Official Community Plan (OCP). The format presents some challenges for Vancouver. The City has a variety of policies and plans which, together, provide the equivalent strategic directions to an OCP. However, these plans are not consolidated into an OCP. To provide a context for the RCS some descriptive information about the intent of the Livable Region Strategic Plan and the policies and plans to which the City's commitments refer is included in the draft statement (Appendix A). The amount of information necessary to provide a context for the RCS will need to be decided by the GVRD and City as part of the review and adoption process.
DISCUSSION
1. Regional Context Statement Content
The City of Vancouver is well positioned to respond to the GVRD Livable Region Strategic Plan (LRSP). During recent years, as illustrated in the "Council Policy" section of this report, and further described in Appendix B, the City has adopted a variety of city-wide strategic directions for land use and transportation.
The LRSP requests the city as a whole, and individual neighbourhoods, be "complete communities" to minimize travel and associated pollution. The Central Area Plan provides for a better balance of jobs and housing in the central area. CityPlan provides a vision of neighbourhood centres which locate jobs and services close to where people live. A program of preparing Community Visions is underway. This includes involving citizens in identifying neighbourhood centres and ways to provide more housing choice throughout the city.
As part of the Growth Concentration Area, Vancouver is asked to take more jobs and housing than trend projections. To this end, the City has approved, through the Zoning and Development By-law, excess housing and employment capacity which contributes to a more compact region.
The recently-adopted Vancouver Transportation Plan identifies actions the City will take to encourage more transit, walking, and biking. These directions support the transportation objectives of the Livable Region Strategic Plan.
On June 6, 1995, Council forwarded to the GVRD a number of issues with respect to the LRSP. The following concerns continue to be relevant:
·the limited ability to accommodate significant amounts of additional ground-oriented housing;
·the desire to improve the city's jobs-housing ratio;
·additional capacity to support the Compact Metropolitan Region, beyond that already approved through the Zoning and Development Bylaw, needs to be agreed through neighbourhood planning processes; and
·processes need to be established to assist municipalities in the Growth Concentration Area, expected to take more than a "fair share" of growth, to provide for servicing the costs associated with growth and maintaining livability. A report on the issue of financing the costs of growth will shortly be before Council.
In adopting the proposed Regional Context Statement, Council is not being asked to set new directions for the city. The proposed Regional Context Statement is based on adopted Council policies, plans, and regulations. There are no commitments included in the Draft Context Statement which have not been previously adopted by Council. In each case, commitments outlined in the Draft Context Statement are based on either:
·50·long established policies of the Board of Parks and Recreation as is the case for City parks and golf courses identified for inclusion in the Green Zone; or·50
·50·Council decisions which were preceded by extensive public involvement (Central Area Plan, CityPlan, Greenways Plan, and the Vancouver Transportation Plan) or formal Public Hearings (housing and employment capacity permitted through the Zoning and Development By-law).·50
In 1996, Council held formal hearings to consider public input on CityPlan and the City's response to the LRSP. Given that the directions and issues of concern have not changed significantly since then, staff have not undertaken a new public review process on the Regional Context Statement.
2. Process for Adoption of the Regional Context Statement
Other municipalities in the GVRD are governed by the Municipal Act. Under this legislation, municipalities adopt, by by-law, an Official Community Plan (OCP). The Regional Context Statement is then adopted, by by-law, as an amendment to the Official Community Plan.
Vancouver's Charter does not require the City to adopt an Official Community Plan. The Charter also does not specify the process for adoption of a Regional Context Statement. Consequently, Council could adopt the Regional Context Statement by resolution. However, to put all municipalities on a similar footing, the GVRD has requested the City adopt a Regional Context Statement by by-law.
The Charter offers the following provisions:
·Section 561: Under this section Council may adopt, by resolution, a development plan which relates to the whole city. A development plan under this section may include a regional context statement; and
·Section 562: Under this section Council may, by by-law, adopt as an Official Development Plan any development plan prepared under section 561. This provides a vehicle to adopt a regional context development plan as an official development plan.
If Council proceeds this way, then the Charter establishes a number of requirements. To meet the required provisions, the following process is proposed.
1.Adoption of a development plan by Council to comply with the requirement for a regional context statement (Recommendation A).
2.Submission of the Regional Context Development Plan to the GVRD Board for review prior to consideration for adoption, by by-law, as an official development plan. This is required under Section 562 (2) of the Charter (Recommendation B).
3.Referral of the Regional Context Statement to the School Board, as required under Section 562.1 of the Charter (Recommendation B) and to the Board of Parks and Recreation for input prior to consideration as an official development plan.
4.Consideration of the Regional Context Development Plan, as amended if necessary, for adoption by by-law as an official development plan (Recommendation C). Should any members of the public wish to address Council on the Regional Context Statement, there will be an opportunity to do so when the RCS is considered for adoption as an Official Development Plan.
5.The Charter requires that existing ODPs include a reference to the Regional Context ODP. A text amendment would be needed to add this reference.
CONCLUSIONS
Recent City plans and policies, combined with housing and employment capacity adopted through the Zoning and Development Bylaw, provide a basis for the City's Regional Context Statement. These plans and policies identify the many actions in support of the Livable Region Strategic Plan. The principle issues the Regional Context Statement raises are with respect to the city's limited ability to accommodate significant amounts of additional ground-oriented housing and how costs associated with growth will be financed.
Adoption by by-law as an Official Development Plan places the City's RCS on a similar footing to that of other municipalities. It demonstrates the City's commitment to the Livable Region Strategic Plan. As with other municipalities, if the Regional Context Statement is adopted as an ODP, Council cannot undertake any development contrary to the regional context official development plan.
* * * * *
THE CITY OF VANCOUVER
A DEVELOPMENT PLAN
TO COMPLY WITH
THE REQUIREMENT FOR
A REGIONAL CONTEXT STATEMENT
JANUARY 1998
The City of Vancouver
A Development Plan to Comply
with the Requirement for
a Regional Context Statement
Contents
1. Background to the Regional Context Statement Development Plan
1.1 The Livable Region Strategic Plan
1.2 Vancouver’s Planning Instruments
2. Protect the Green Zone
2.1 Objectives of the Livable Region Strategic Plan
2.2 City commitments to the Green Zone
3. Build Complete Communities
3.1 Objectives of the Livable Region Strategic Plan
3.2 City commitments to Build Complete Communities
4. Achieve A Compact Metropolitan Region
4.1 Objectives of the Livable Region Strategic Plan
4.2 City commitments to Achieve Compact Metropolitan Region
5. Increase Transportation Choice
5.1 Objectives of the Livable Region Strategic Plan
5.2 City commitments to Increase Transportation Choice
1. BACKGROUND TO THE REGIONAL CONTEXT STATEMENT
DEVELOPMENT PLAN
1.1 The Livable Region Strategic Plan
The Vancouver Charter allows Vancouver City Council to prepare and adopt a regional context statement as a development plan or official development plan. The regional context statement is intended to explain the relationship between the regional growth strategy and the City’s own plans. Where applicable, the regional growth statement is also to show how the City’s own plans will be made consistent with the regional growth strategy over time.
The regional growth strategy applicable to the City of Vancouver is The Livable Region Strategic Plan (LRSP). This was adopted by the Greater Vancouver Regional District (GVRD) Board in 1996 as the Region’s growth strategy under the Municipal Act. The LRSP describes a growth strategy for the region for a population of about 2.75 million, nearly a million more people than currently live in the Greater Vancouver area. The LRSP is intended to preserve and enhance the quality of life for the region’s citizens and protect the environment in which we live. The regional plan incorporates policies, targets and maps. It is based upon four fundamental strategies:
(1) Protect the Green Zone
(2) Build Complete Communities
(3) Achieve a Compact Metropolitan Region
(4) Increase Transportation Choice.
The Livable Region Strategic Plan will be implemented through actions of the GVRD in the delivery of regional services, and through partnerships with the GVRD member municipalities, other lower mainland local governments, the provincial government, the federal government and other organisations. Vancouver City Council endorsed the LRSP in June 1995.
1.2 Vancouver’s Planning Instruments
The City of Vancouver does not have an Official Development Plan(ODP) or an Official Community Plan (OCP), covering the whole city. There are, though, many land use and transportation plans and policies which together provide a planning framework equivalent in scope to an overall development plan. The City also has a number of local area ODPs, and a Zoning and Development By-law which covers the whole city. These plans, policies, local area ODPs and the Zoning and Development By-law, together with plans of the Board of Parks and Recreation address the four fundamental strategies identified in the Livable Region Strategic Plan.
Because the City’s Regional Context Statement is a "stand-alone" Development Plan (to be adopted later as an Official Development Plan), background description of the Livable Region Strategic Plan context and City policies in support of the LRSP are included to provide a context for the City’s commitment to the LRSP.
Map 1
City of Vancouver Green Zone Areas
MAP 1
ON FILE IN CITY CLERK’S OFFICE1. Coal Harbour Walkway and parks 2. English Bay Parks
3A. False Creek North Shore Walkway and parks
3B. False Creek South Shore walkway
4. Fraser River Park
5A. Fraser lands Waterfront 5B. Fraser River Waterfront
6. Golf Courses 7. Musqueam Park
8. Point Grey Road Foreshore 9. Queen Elizabeth Park
10. SkyTrain Parkway 11. Spanish Banks Foreshore
12. Stanley Park 13. Still Creek
14. Renfrew Ravine 15. Camosum Bog
16. Everett Crowley Park
17. Agricultural Land Reserve in Southlands.
Areas submitted to the Region for inclusion as part of the Green Zone, which the Transportation Plan proposes are considered for a combination of rail, transit and Greenways uses are:
A. Arbutus Corridor B. Grandview Cut
2. PROTECT THE GREEN ZONE
2.1 Objectives of the Livable Region Strategic Plan
The Livable Region Strategic Plan identified areas of the region as the "Green Zone", which is protected from urban development. The Green Zone protects the viability of the region’s ecology through such measures as an interconnected system of wetlands, upland habitats, wildlife corridors and the Agricultural Land Reserve. Actions to create and maintain the Green Zone focus on agreements with various agencies to maintain natural assets, including major parks, watersheds, ecologically important areas, and farm lands. Municipalities have nominated lands to be placed in the Green Zone.
2.2 City commitments to the Green Zone
On September 16, 1993, Vancouver City Council, following the approval by the City of Vancouver Board of Parks and Recreation, approved the inclusion of the areas in the Green Zone shown in Map 1.
City policies and intentions to protect the Green Zone include the following.
(1)Zoning to maintain Green Zone lands as a limited Agricultural District - Southlands RA-1.
(2)Plans and policies of the Board of Parks and Recreation to manage the care and custody of city parks.
(3)The City Transportation Plan and the Greenways Plan propose that the Arbutus Corridor and the Grandview Cut be considered for rezoning to transportation and Greenways uses. Council has directed this work be part of the six year Transportation Implementation Program.
3. BUILD COMPLETE COMMUNITIES
3.1 Objectives of the Livable Region Strategic Plan
The Livable Region Strategic Plan proposes building "complete communities". To achieve this, the GVRD encourages, among other things:
- a better balance between jobs and labour force throughout the region;
-a diversity of housing types, tenures and costs in each part of the region, in balance with job distribution;
-development of a network of high-quality, mixed activity urban centres supported by an appropriate level of public transit and a range of community services; and
-development of transportation services and facilities that support local access tocentres.
3.2City commitments to Build Complete Communities
The City supports the Livable Region Strategic Plan strategy for complete communities through its plans, policies, by-laws and initiatives in the following ways.
(a) Reshaping Downtown peninsula major office zoning into a compact, high amenity central business district (CBD), centred on transit, and limiting additions to the established CBD based on office location criteria.(Central Area Plan, Policy 1.1).
(b)Reshaping secondary office zoning outside the Downtown peninsula into an Uptown office district particularly related to health and civic functions. (Central Area Plan, Policy 1.2)
(c)Enhancing the CBD as the region’s prestige office centre, while not adding to the major office capacity outside the CBD, and replacement of office uses outside the CBD and Uptown, with housing, where suitable. (Central Area Plan, Policies 1.1, 1.3, and Section 3).
(d)Continuing to co-operate with GVRD efforts to encourage appropriate office tenants to locate in regional town centres instead of the central area, for a better balance of jobs, housing and transportation throughout the region (Central Area Plan, Policy 1.6).
(e)Promoting the Downtown as a mixed activity urban centre (Central Area Plan, and Downtown ODPs).
(f)Supporting redevelopment of commercial and industrial areas in the inner city, to provide housing close to jobs (Central Area Plan, Section 3; and ODPs for Downtown South, False Creek North, Central Waterfront. S. E. Granville Slopes, Coal Harbour)
(g)Protecting remaining industrial lands to ensure appropriate locations for city-serving businesses, and a range of job opportunities (Industrial Lands Strategy and I-2 zoning schedule).
(h)Creating a network of neighbourhood centres and strengthening neighbourhood centres by permitting residential uses above commercial (C-1 and C-2 Residential Guidelines, City Plan Community Visions Program).
(i) Supporting social housing (City Social Housing Policies).
(j)Encouraging rental housing (Strata Title Conversion Guidelines; Demolition By-law restrictions for rental accommodation; Downtown District Low Cost Housing Policies and Procedures)
(k)Supporting a greater range of market housing through zoning (CityPlan, Community Visions Program, and Downtown ODPs).
(l)Restricting commercial uses outside neighbourhood centres (Large Scale Retail Uses in Industrial Areas)
(m)Enhancing provision of parks in park deficient areas (Park Board Management Plan).
(n)Working towards adequate provision of parks in connection with major rezonings. (Park Board Management Plan).
(o)Ensuring the provision of facilities to offer all citizens the opportunity for recreationactivity (Park Board Management Plan).
(p)Maintaining the Downtown as the cultural and entertainment centre of the region and broaden art and cultural activity at the neighbourhood level (CityPlan).
4. ACHIEVE A COMPACT METROPOLITAN REGION
4.1 Objectives of the Livable Region Strategic Plan
The Livable Region Strategic Plan intends that a greater share of growth will locate in developed areas. Growth is to focus in a "Growth Concentration Area" which includes the City of Vancouver. The LRSP provides household, population, and employment targets for 2021, for the Region as a whole and for the Growth Concentration Area. Through partnerships, the GVRD seeks, among other things:
- achievement of the population and employment growth targets for 2006 and 2021;
-identification of further opportunities for the location of ground-oriented housing;
-provision of transportation services and facilities required to support the population and employment growth targets; and
-achievement of adequate population and employment densities in centres and along transportation corridors to support transit.
Plans, policies and other initiatives adopted by the City and proposed for the future are outlined below.
4.2City Commitments to Achieve Compact Metropolitan Region
The CityPlan adopted by Council in 1995 supports the compact metropolitan region strategy by working towards accommodating more population and employment. Although CityPlan does not include population or employment targets, a population of up to about 635,000 people by the year 2021, was envisaged and reviewed as part of CityPlan’s public program. This is consistent with the LRSP. The City has been pursuing the objectives of the strategy for a compact metropolitan region in the following ways.
(1)Commitments to future population
Present zoned capacity
In 1996, 514,000 people lived in the city. The existing zoning can accommodate up to anadditional 120,000 people. Estiamted zoned capacities are shown in Table 1. [ Zoned capacity estimates are from October 1996. Additional population estimates are from 1996. The growth of population of the city will depend in large part on the economy and the rate of development. The existing zoned residential capacity which is available for development within the twenty-five year period, would provide about 70,000 additional dwellings. However, some of the zoned capacity may develop more slowly. (See Table 1 ). The zoned capacity is shown as a range in Table 1. Planning programs are likely to add to the zoned capacity over the period.] The principal areas of growth are:
-37,000 more people in the Downtown through the development of major areas, such as Coal Harbour, Downtown South and Concord Pacific ( see Table 2)
-11,000 more people on redeveloped surplus industrial land outside the Downtown Peninsula.
-Between 12,000 and 44,000 more people in areas currently zoned for commercial uses which permit residential, and also encourage mixed use commercial.
-Up to 10,000 more people in areas currently zoned for duplexes, townhouses and multi-family units and not yet developed.
-Up to 15,000 more people in secondary suites, in RS1-S areas.
-5,600 more people in other major development areas for which policy plans have been approved.
Table 1
Zoned residential potential and possible build out for 2021
Planning Area
Dwellings
Total
potential from existing zoning
Existing zoned
capacity
Low build-out rate
for 2021(1)
Existing zoned
capacity
High build-out rate
for 2021 (1)
Additional
dwelling capacity anticipated to 2021 in areas expected to be rezoned
Additional Dwellings at low build out
Additional population from new dwellings
Additional dwellings at high
build out
Additional population
from new dwellings
Downtown
23,900
23,900
37,100
23,900
37,100
0
Surplus industrial
7,100
7,100
11,000
7,100
11,000
2,500
Commercial zoning(1)
28,500
7,100
12,300
25,600
44,400
0
Other areas
3,400
3,400
5,600
3,400
5,600
Note (5)
Multi-family zoning (2)
3,800
3,400
4,400
3,400
4,400
0
RT zoning (3)
2,100
1,900
5,700
1,900
5,700
0
Single family lots and secondary suites (4)
20,300
5,500
15,600
5,500
15,600
0
Total
89,100
52,300
91,700
70,800
123,800
2,500
Notes: (1) Build-out rate estimates range shown for commercial zoning only: Low = 25 % build out; High = 90% build out in the period. (2) Multi-family zoning build-out rate estimateis 90%. (3) Various build-out rates are estimated for RT zoning. (4) Secondary suite build-out assumed at 27% for the period (5) Other areas are expected to be added planned and rezoned by 2021.
Other City initiatives
Other areas in the city are expected to be developed or redeveloped over the next 25 years. All these areas will be subject to local planning studies and extensive public programs. The estimates of expected capacity are therefore only an indication and are not intended to pre-empt any future public debate on the appropriate land use or development form. Areas include the following.
Table 2
Existing residential capacity in redevelopment areas
in the Downtown
Major Redevelopment
Areas
Existing
Dwellings
(1996)
Additional zoned capacity Dwellings
Total
Additional Population
Downtown South
4,250
4,250
5,500
Granville Slopes
1,250
1,250
1,800
Triangle West
850
1,150
2,000
Coal Harbour/Marathon
0
2,200
3,700
Bayshore
0
980
1,800
Thornton Park
750
2,250
3,600
Victory Square
1,000
1,250
1,400
Historic Areas
1,750
750
900
North Shore False Creek
700
8,300
14,000
West End
22,500
1,500
2,400
Total
33,050
23,880
37,100
Map 2
Major Redevelopment Areas Downtown
MAP 2 GOES HERE
ON FILE IN CITY CLERK’S OFFICE(a)South East False Creek, former industrial area for which planning studies are now underway. SE False Creek is included in the projected residential potential shown in Table 1.
(b)Through the CityPlan Community Visions program, neighbourhoods will be considering, amongst other things, the possibility of greater housing choice and increased residential densities neighbourhoods. Implementation of these Visions would include future planning studies and re-zonings.
(c)Other major development areas will likely emerge as a result of public and private applications to change land uses.
(2) Commitments to housing supply by type
Vancouver has a mix of housing, with approximately 50% ground-oriented housing and 50% apartments. Present zoning could result in up to 11,000 additional ground-oriented units being provided. The City is committed to encouraging new forms of housing that offer features of ground orientation at higher densities by the following.
(a)Encouraging the construction of townhouses and stacked townhouses in appropriate locations in the city, typically in areas zoned for multi-family housing and mixed use areas.
(b)Providing opportunities, through the CityPlan Community Visions program, for the provision of a wider range of housing, where these are seen as appropriate by the local neighbourhood.
(3) Commitments to affordable housing supply
The City has a variety of policies to increase the supply of affordable housing, including the following.
(a)The provision of City-owned land through lease arrangement to provide social housing for seniors and families with children.
(b)A social housing requirement of 20% social housing in major rezonings for multi-unit housing.
(c) An affordable housing fund, established in 1981, provides grants for social housing projects developed on City-owned land that would otherwise have been over budget.
(d)City policies to manage the affordable rental housing stock include, strata title conversion policies, Demolition Control By-law, Rate of Change Policy.
(e)Assured Moderate Rental Housing Program.
(f)Downtown Low-income Housing Initiative.
(g)Neighbourhood Housing Demonstrate Program.
(h)Tenant Assistance Program.
(i)Replacement Housing Program.
Table 3
Additional ground oriented dwellings estimated from existing
residential capacity
Area
Estimate of additional
ground oriented dwellings
Additional ground oriented dwellings as % of all additional dwellings in class
Additional population in Ground oriented dwellings
Additional population in Ground oriented dwellings as % of all additional population in class
Downtown
1,200
5%
2,400
6%
Surplus industrial
700
10%
1,900
17%
Commercial zoning (1)
0
0%
0
0%
Other major development areas
1,900
56%
4,500
80%
Multi-family zoning (1)
0
0%
0
0%
RT zoning (1)
1,900
100%
5,700
100%
Single family lots and secondary suites (1)
5,500
100%
15,600
100%
Total
11,200
16%
30,100
24%
Dwellings and population using existing zoned capacity
Ground oriented dwellings
Ground oriented dwellings as % of all dwellings
Population in Ground oriented dwellings
Population in ground oriented dwellings as % of all population
Actual dwellings and population in 1996
101,815
47%
325,940
63%
Total existing plus capacity
111,400
Note (2)
39%
351,000
(Note 2)
55%
Notes: (1) See Table 1 for build out rates.
(2) Net total of 1996 plus increase is less than the sum as a portion of the 1996 stock of
ground-oriented dwellings will likely be redeveloped to provide apartment capacity.
(4) Commitments to employment capacity
Although CityPlan does not include employment targets, employment of about 420,000 jobs (including construction) was envisaged by the year 2021. This is up from 321,000 in 1991. While the City provides appropriate zoning for land and the conditions for employment, its powers are limited to encouraging the location of employment in specific areas. Present zoning in the Downtown, Broadway/Uptown, neighbourhood centres, commercial areas and industrial areas, is sufficient to accommodate a higher level of employment.
City commitments to LRSP employment directions are as follows.
(a)Concentrate headquarters, financial and related offices in the Downtown peninsula’s central business district, and focus medical, civic and related offices in the Broadway-Cambie "uptown"(CityPlan and Central Area Plan Section 1).
(b)Encourage job growth at a rate that helps balance the number of jobs in the city with the number of workers who live here (CityPlan).
(c)Encourage services that serve city residents to locate in neighbourhood centres (CityPlan; Industrial Lands Policy; Policy on Large Scale Retail Uses in Industrial Areas).
(d)Retain most of the city’s existing industrial land base for industry and service businesses (with exceptions noted in policy), to meet the needs of port/river related industry, and city-serving and city-oriented industries (Industrial Lands Policy).
(5) Commitment to development around transit corridors
SkyTrain
Residential densities in the city are already sufficiently high to support bus transit. Along the SkyTrain route, zoning has been changed to allow higher densities where appropriate. Current City policies include the following.
(a)Allowing some increase in residential densities in the vicinity of SkyTrain stations (Station Area Plans for Joyce, Nanaimo/29th Avenue, and Broadway Station Area.)
Broadway-Lougheed LRT
Twenty-five thousand people now live within 4 blocks of the proposed route along Broadway (between Pine and Boundary Road). Existing City policies include the following.
(a)Commercial zoning on arterial streets allows residential above commercial (C-1 and C-2 Residential Guidelines). Under existing zoning, upwards of 40,000 people could live within four blocks of Broadway.
(b)Retaining the remaining industrial areas (e.g. Broadway east of Sloan), for industrialand city-serving land uses and associated employment.
Land use planning for the proposed Broadway-Lougheed LRT will begin when a final route and stations are selected. Future studies will include the following.
(a) Review of residential densities along the proposed Broadway LRT stations, subject to Council’s future consideration of community needs and opportunities.
5. INCREASE TRANSPORTATION CHOICE
5.1 Objectives of the Livable Region Strategic Plan
In order to increase transportation choice, the Livable Region Strategic Plan proposes a number of measures to increase transit and reduce reliance on single occupant automobile travel. Measures proposed include the following.
-Applying Transportation Demand Management (TDM), strategies as a fundamental transportation requirement for achieving the goals and objectives of this Strategic Plan.
-Promoting transit oriented and automobile restrained transportation system for the region based on intermediate capacity transit facilities (including light rail transit, SkyTrain and high capacity busways), within identified corridors.
-Developing local transit services and networks with the flexibility to serve different demands.
-Assigning priority for increased roadway capacities first to high occupancy vehicles, goods movements, inter-regional movements, and then single occupant automobiles.
-Enhancing and/or retrofitting local streets and infrastructure to favour transit, bicycle and pedestrian uses, and generally improving the pedestrian environment.
-Maintaining appropriate levels of service for interregional and truck movements by pursuing transportation system management strategies and measures, including future corridor and right-of-way protections.
5.2City commitments to Increase Transportation Choice
In May 1997, City Council adopted the Vancouver Transportation Plan. The Plan adopts both the principles and transportation trip and mode targets expressed in the regional transportation plan Transport 2021. Policies in the City’s Transportation Plan and Greenways Plan support the LRSP in the following ways.
(a)Transportation targets for peak hour travel to the Downtown and other parts of the city for 2021, are generally consistent with the regional transportation plan. (Transportation Plan, Section 2.5).
(b)Transit improvements in the city are proposed through transit priority measures, better waiting facilities for transit users, and consideration of zoning of existing rail rights-of-way for use by transit or as Greenways corridors (Section 3.4).
(c) Small, community bus services are recommended to serve communities where big buses are not warranted, and to feed major bus routes (Section 3.4.7)
(d)Pedestrian improvements are recommended to increase local transportation choice. The City will implement measures such as, reducing unnecessary pedestrian barriers, increasing opportunities for crossing busy roads in safety, providing direct routes where practicable and providing incentives for walking throughout the city and especially within neighbourhoods (Section 3.6). Pedestrian priority areas will be identified in neighbourhood centres where pedestrian environments are to be especially encouraged (Sec.3.6.2) The City’s traffic calming program will give priority to streets and neighbourhoods where traffic impacts are the most serious (Sec.3.6.3), and traffic calming will be extended to busier streets (Sec. 3.6.4)
(e)Cycling facilities will be enhanced, with more bikeways, and by providing painted bike lanes on some arterials, particularly in the Downtown (Section 3.5).
(f)The City Greenways will be a network of 14 routes through the city, approximately 140 km long. When the network is complete, a City Greenway will be no further than a 25 minute walk for every resident (Greenways Plan). Neighbourhood Greenways are also being developed.
(g)The truck network will be maintained, especially for east-west and north-south access routes essential to the Port, and supports the completion of the Port Road (Section 3.8 of Transportation Plan, and Truck Route Network, Street and Traffic By-law Part 3).
CITY OF VANCOUVER
SUMMARY OF MAJOR
LAND USE, HOUSING AND
TRANSPORTATION POLICIES
Note:
This section is for reference only and will not be proposed for adoption as part of the Regional Context Statement.
January 1998
R:\CC\REPORTS\P&E\980205\PE3
Summary of Major Land Use,
Housing and Transportation Policies
Contents
1. CityPlan
2. Central Area Plan
3. Transportation Plan
4. Greenways and Blueways Plans
5. Industrial Land Strategy and industrial zoning
6. Parks Plan
7. The Street Tree Management Plan
8. Housing Policies
9. Local Area Plans outside the Downtown
10. Zoning and Development By-law
11. Financing the costs of growth
1. CityPlan
Adopted by Council in June 1995, CityPlan provides directions for the long term development of the city, neighbourhoods, community services, economy and the environment, the Central Area, Decision-making, and financial accountability to guide decision, corporate work priorities, budgets and capital plans. CityPlan was approved as a context for developing partnership agreements between the City of Vancouver and the Greater Vancouver Regional District with respect to the Livable Region Strategic Plan. CityPlan contains objectives and policies that directly support the four fundamental strategies of the LRSP.
CityPlan resulted from the City’s most extensive public participation program, taking three years to complete, and involving many thousands of city residents and interest groups. CityPlan is the overriding framework for many other City plans and policies. The next level of detailing CityPlan in the neighbourhoods is now underway with a pilot project in two neighbourhoods, and a program of extensive consultation and public involvement.
Major CityPlan policy directions include the following.
-Strengthen neighbourhood centres: provide shops, jobs and services close to home and safe inviting public places to meet and socialise.
-Improve safety and better target community services: identify ways to increase safety; better ways to provide community services; and to use arts and cultural activities to support community identity and participation.
-Reduce reliance on the car: make it easier to get around on foot by bike, and by transit.
-Improve the environment: suggest how to improve air quality; conserve water and energy, and reduce waste.
-Increase the variety and affordability of housing: find ways to help meet the housing needs of community residents of all ages and incomes.
-Define neighbourhood character: define what aspects of neighbourhood character, heritage and appearance to retain, and decide the character of new development.
-Diversify parks and public places: meet park need, and identify a variety of designs, activities, and locations for all kinds of public places.
2. Central Area Plan
Council adopted the Central Area Plan in December 1991. It provides development policies for the Downtown peninsula, and Central Broadway. It acts as a guide for area and project planning in the Central Area. The City applies the plan through area studies, rezoning and project planning. The preparation of the Central Area Plan involved a public program stretching over three years involving residents, business and owners in the Central Area. TheCentral Area Plan was adopted following a series of Council hearings. Major policies and initiatives to promote the Downtown include:
-Reshaping the Downtown peninsula major office zoning into a compact, high amenity central business district (CBD), centred on transit.
-Reshaping secondary office zoning outside the Downtown Peninsula into an Uptown office district along Central Broadway, particularly related to health and civic functions.
- Improving the balance between office and transportation capacity.
-Confirming the role of selected industrial areas near the Downtown Peninsula to continue to provide opportunities for support services.
-Continuing to control the quality of development with design review and enhance the design review process through updating and refining the livability guidelines.
-Focusing retail where it will reinforce existing and desired retail districts and pedestrian routes.
-Ensuring retail contributes to street activity and to the streets as the significant public spaces.
-Developing new residential neighbourhoods in the Central Area.
Subsequently, the Central Area Plan has been followed up by new zoning for Downtown South, and ODPs and zoning by-laws for the False Creek basin. All new zoning and ODPs are consistent with the Central Area Plan. Local plans in the Central Area, include Downtown South and Burrard Slopes, with other plans underway for Triangle West and Victory Square. In addition, in areas of the Downtown where extensive redevelopment is taking place, most major redevelopment areas are covered by Official Development Plan By-laws. There are five ODPs in the Cental Area, including, False Creek North, Downtown, Central Waterfront, South East Granville Slopes, and Coal Harbour.
3. Transportation Plan and transportation policies
Council adopted in May 1997 the City Transportation Plan which further supports the regional transportation strategy. The preparation of the Transportation Plan involved an extensive public program stretching over 18 months, involving the community in symposiums, neighbourhood meetings, and surveys. The process culminated with over 100 submissions (mostly in support of the Plan) before a series of Council meetings.
The City’s Transportation Plan remains dependent on the achievement of the regional plan, especially on investment in transit, constraints on road supply and the regional application of Transportation Demand Management measures. The combination of measures in the Transportation Plan and regional transportation initiatives will result in a wider range of transportation choices in the city.
The Transportation Plan includes a set of transportation targets for the peak periods. Chief among these is a target of 58% of people travelling to work in the Downtown by transit,walking or biking, by 2021. These targets will form the basis for future City decision making for the continuing development and support to the regional policy of expanding transportation choice and reducing the reliance on the car. Measures in the Plan include the following.
Improvements to transit
Better transit is central to the achievement of the regional and City transportation goals. The Transportation Plan recognises the need for better regional transit, especially LRT, but stresses the need and opportunities for better bus facilities within the city. The Plan urges BC Transit ( or a regional transit authority), to adopt a range of proposals. These include reducing waiting times at bus stops, increasing express bus services, and improving services to poorly served areas. Bus priority measures such as queue jumpers and bus only lanes(if required in the future) are recommended. Fare incentive programs such as U-pass, and changed fare structures are suggested to increase demand for transit. The Transportation Plan also stresses the contribution the City can make in providing better waiting areas and information for transit riders.
Transport Demand Management
To help to restrain the growth of car use, the existing network of primary and secondary arterial roads within the city will generally not be expanded. In addition, as part of transport demand management the City will promote car pooling within the Downtown, maintain commuter parking standards and apply a commuter parking ceiling.
Pedestrian improvements
Pedestrian areas will be improved as part of encouraging walking for local trips. The City will establish pedestrian priority areas in neighbourhood centres. Work is underway on these through the CityPlan Community Visioning program.
The City’s Greenway program will provide "green" routes through the city for pedestrians and cyclists and is outlined in Section A.4 below.
Expansion of cycling facilities
The City will provide better facilities for cycling, including more bikeways, and a more complete bicycle network using painted bike lanes. These will be especially valuable in areas such as the Downtown where off-arterial bikeways are not possible. The City will also work with the appropriate transit authority to improve linkages with transit. Measures may include bike racks at bus stops and facilities for taking bikes on transit vehicles.
Maintenance of truck network
The truck network will be improved with the completion of the last links in the Port Road. This will provide direct access to the freeway from the Port, for port related truck traffic.
Parking By-law
The Parking By-law establishes a maximum parking standards for non-residential uses in theDowntown of 1 parking space to between 80 to 100 square metres of gross floor area, depending on location. This maximum level is intended to restrict the level of parking consistent with the existing road network. Over time, this parking standard is expected to support the regional and City transportation plans, by providing parking supply consistent with the 60/40 mode split between transit, walking and biking, and car drivers and passengers.
4. Greenways Plan and Blueways Plans
Council adopted the Greenways Plan, on July 18, 1995. Preparation of the Greenways Plan involved an extensive program of public workshops and community discussions, and Council hearings. There are two types of Greenways, City Greenways and Neighbourhood Greenways.
The City Greenways join important city-wide destinations and create a network that covers the entire city. Greenways join many of the city’s Green Zone areas, for example, along the north shore of the Fraser River, around Stanley Park, and on the south shore of Burrard Inlet and English Bay. They also link to Green Zone areas of Pacific Spirit Part in the University Endowment lands, and with the Fraser foreshore in Burnaby. City Greenways will be a network of 14 routes through the city, approximately 140 km long. Street rights of way comprise approximately 50% of the proposed Greenways network. When the network is complete, a City Greenway will be no further than a 25 minute walk for every resident.
Neighbourhood Greenways are smaller in scale and provide access within neighbourhoods. A number of neighbourhood projects have been completed to date, including Cedar Cottage neighbourhood Greenway, the John Street Connector, the Renfrew Ravine neighbourhood Greenway, the Keefer Street Pedestrian overpass Improvements and the prince Albert neighbourhood Greenway.
Increasing waterfront trails and public access to the waterfront has long been a City priority. Council has adopted waterfront access policies that are implemented through the rezoning, subdivision and development by-laws. These include:
On the Fraser River:
-a continuous waterfront trail from Point Grey to Angus Drive for pedestrians, cyclists and equestrians;
-a waterfront trail, where feasible, from Angus Drive to Boundary Road;
-a waterfront trail is required with any subdivision or change of use, consisting of a 25 feet right-of-way plus a 25 feet landscaped setback.
On the Burrard Inlet:
-At Coal Harbour, a continuous public pedestrian walkway at the water’s edge from Denman to Burrard, at Coal Harbour;
-On the Central Waterfront Port Lands, a continuous pedestrian walkway in close proximity to the existing shoreline (from Burrard to Main).
On False Creek:
-a continuous waterfront walkway along False Creek.
Park Board policy is to allocate 15% of funds from each capital plan to park acquisition. Land that increases public access to the waterfront is eligible for purchase. Waterfront access and walkways will increase with re-development. Examples include, Concord Pacific, Coal Harbour and the Fraser Lands.
A Blueways Plan proposes to:
-encourage and support a diversity of waterfront uses, activities and structures that recognise a variety of users;
-assess, protect and enhance waterfront habitat;
-protect water-based industry; and
-increase public access to and along the water.
5. Industrial Land Strategy and Industrial Rezoning
In March 1995 Council adopted the Industrial Lands Strategy. The objective of the strategy is to protect the remaining industrial lands in the city for industry and service businesses. These lands are especially important for the port, city-serving and city-oriented industries. Approval of the Strategy followed a study of the present and likely future function of the industrial lands. It involved an extensive public program with businesses, land owners, unions and residents. The retention of industrial lands also emerged as a key CityPlan direction. Over the last twenty years many industrial areas have been redeveloped for residential uses. The City intends to retain 1,695 acres of industrial land to provide essential jobs and services for local residents, including more traditional blue collar jobs.
The new Industrial Land Strategy was formally adopted by by-law through the rezoning of most of the City’s industrial areas to a new I-2 Schedule ( includes a change from heavy manufacturing to light industrial). Among other things, the I-2 schedule restricts the use of lands for retailing and office uses.
6. Parks Plan
In 1990 the Vancouver Park Board adopted its strategic plan, "Vision for the Future"’. The strategic plan provides the general direction for the Board by means of goals, objectives, and general policy statements. In 1992, Park Board adopted a Management Plan. This includes a series of actions and specific policies to guide the Board in delivering parks and recreation services in accordance with its Vision for the Future.
Parks and Open Space Provision policies in the plan include; ensuring that each neighbourhood in the city has sufficient accessible open space to maintain and enhance the livability of the area for its residents by acquiring land for parks and by influencing othersto provide open space for public use; maximising public access to the waterfront; seeking opportunities to create open space in non-residential areas; acquiring or securing public access to land in order to create linear parks that link established parks and open spaces; and broadening the funding sources available for park land acquisition.
Recreation facility provision policies in the plan include; providing sufficient accessible facilities to meet the needs of citizens which are not being adequately provided by others; seeking opportunities for joint or shared use of facilities owned or operated by others; designing and building innovative and flexible recreation facilities which provide the opportunity for a wide range of uses and effective operation; and facilitating the development and enhancement of unique and special facilities and places.
7. The Street Tree Management Plan
The Street Tree Management Plan contains policies for implementing arborculturally sound and progressive street tree planting, maintenance and removal. The program also provides trees for the backlog of curbed streets that have sufficient room for street tree planting.
8. Housing Policies
City Council has a range of policies aimed at providing and promoting non-market and low cost rental market housing, to support the diversity of the city’s housing needs. City policy is to give priority to low and moderate income households, especially residents of downtown lodging houses, elderly people on fixed incomes, people with special housing needs, and single parent families with children.
(1) Support for social housing
Continuing initiatives include the following.
The lease of City-owned land
By the end of 1995 the City had leased 111 sites to sponsors of non-market housing. These accounted for 6,333 units. The freehold value of the sites leased from the City since 1978 amounts to $199 million ( in 1995 dollars), with a total write-down of $51.5 million (values at lease time). One third of the social housing in the city is now on city-owned land. Projects primarily serve seniors and families with children.
Purchase of market sites
In 1981, Council set a priority of purchasing privately-owned land for social housing through its Property Endowment Fund. The City leases purchased land to non-profit housing societies at 75% of market value for 60 year leases.
Social housing requirement of 20%
Beginning in 1988, the City has required that major rezoning of lands to multi-unit residential use include 20% social housing. This policy encourages the creation of balancedcommunities and provides opportunities for low and moderate income households to live in conveniently located neighbourhoods. This policy has created a capacity for 2,500 social housing units, of which 700 have now received funding.
Operating a social housing portfolio
The Non-Market Housing Division of the City operates over 800 units of social housing, many for low-income singles in the Downtown.
Social housing for families with children
Low-income families with children have difficulty in finding suitable accommodation at rents they can afford in Vancouver. To improve the availability, the City requires that at least half the social housing units in major projects be designated for families with children.
Affordable housing fund
In 1981 Council established the Fund to provide grants for social housing projects developed on City-owned land that would otherwise have been over budget. To date, the Fund has provided $5.3 million in subsidies.
(2) Encouraging rental housing
Vancouver has traditionally experienced low vacancy rates in rental housing. The City has adopted policies to address various aspects of this issue.
Assured Moderate Rental Housing
To create rental housing, City Council in 1989 approved a public-private partnership to build rental housing on sites leased from the City. Unit rents are initially set at market rates, with rental increases limited to the cost of living. Tenants are guaranteed security of tenure. Over 1,000 assured rental housing units have been built.
Downtown low-income housing
Vancouver’s rental housing stock includes about 7,500 rooms in older Downtown hotels. These single room occupancy rooms (SROs) are largely rented to people on income assistance. The Downtown South Housing Strategy approved by Council in 1991 and the draft Victory Square Plan include a strategy for retaining and upgrading the existing SRO stock. A Housing Plan for the East Downtown is currently being developed.
Neighbourhood housing demonstration program
In 1989 Council set aside $5 million in the Property Endowment Fund to buy land for housing which would allow seniors to remain in their neighbourhoods. The City has used the Fund to help the development and operation of Abbyfield House. The Neighbourhood Housing Demonstration Fund will finance projects that are innovative in terms of form, tenure or affordability of housing.
Tenant Assistance Program
The Housing Centre operates a comprehensive Tenant Assistance Program (TAP). TheProgram provides direct tenant relocation advice and assistance. Funding from the program has provided annual grants to the Vancouver Housing Registry, the Downtown Eastside Residents Association and the Downtown Granville Tenants Association.
Condominium Conversion Policy
Rental housing can be lost through conversion to condominiums. The City requires that conversions of six units or more be permitted only after approval from 2/3rds of tenants.
Demolition Control By-law
Where demolition necessitates the demolition of existing residential rental accommodation (with exceptions), no development permit shall be issued for the demolition until a development permit for the new development has been issued.
Replacement housing
Through the collection of Development Cost Levies, in areas where the DCL By-law has been adopted, the City can assist in providing replacement housing for people displaced by development.
Rate of change analysis
In 1989, to smooth the pace of redevelopment of existing stock, Council established rate-of-change guidelines for rental housing. For neighbourhoods with a high percentage of rental housing, like Kerrisdale and South Granville, demolitions are limited to a certain percent of existing stock each year. In some apartment zones, outright permitted density has been reduced and conditional approval of additional density depends on the rate of change.
(3) Support for a greater range of market housing through zoning
The CityPlan direction is to increase the range of housing types in neighbourhoods where single family housing predominates. A program of community visioning is underway to establish, in consultation with residents, the appropriate housing mixes in neighbourhoods.
9. Local area plans outside the Downtown
The City has adopted a number of local area plans (e.g. Hasting Sunrise, Grandview Woodlands), which provide general guidance for amendments to the zoning by-law. As part of the second stage of CityPlan, the City is currently working towards vision statements for all Vancouver neighbourhoods. These vision statements will be the basis for zoning amendments, and improvements for traffic and transportation, public places, community services etc.
The City also prepared local plans for the areas around SkyTrain stations. These plans have been followed by changes to the zoning by-law to allow higher density residential development adjacent to transit.
10. Zoning and Development By-law
The zoning and development by-law presently provides unused zoned capacity for residential and commercial use in excess of the current development. Existing zoned and unused capacity includes the potential for:
-additional commercial uses in the central area and along many arterials;
-residential uses above commercial in neighbourhood centres and along arterials;
-residential uses as part of Comprehensive Development zones (CD-1s);
-single family residential areas zoned for secondary suites; and multi-family residential zones not developed to their full zoned potential.
11. Financing the costs of growth
Community Amenity Contributions (CACs) and Development Cost Levies (DCLs) are collected by the City to pay for capital projects providing, parks, day care facilities, infrastructure improvements, as well as replacement housing (see above), to meet demands generated by new development. CACs are negotiated on large sites In DCLs, following a planning study, a by-law is passed identifying boundaries and rates. Council is currently reviewing its CAC and DCL policies.
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