Agenda Index City of Vancouver

POLICY REPORT

PHYSICAL SERVICES

TO:

Standing Committee on City Services and Budgets

FROM:

Manager of Non-Market Housing

SUBJECT:

Mountain View Cemetery Study

 

RECOMMENDATION

SOURCE OF FUNDS

GENERAL MANAGER'S COMMENTS

COUNCIL POLICY

Consultant contracts over $30,000 require the approval of Council.

and;

Special privileges for the embellishment of grave surfaces not be permitted at Mountain View Cemetery and the Medical Health Officer and Cemetery Superintendent continue to exercise their discretion.

and;

The closure of 37th Avenue at Mountain View Cemetery west of Fraser Street be made permanent for Greenway development.

SUMMARY

Mountain View Cemetery has the potential to become a viable commercial enterprise without compromising its cultural and historic place in the City. With a fresh vision and a master plan; a business plan including management, operational and financial restructuring; an investment of resources; and the re-opening of memorialization opportunities for Vancouver citizens, Mountain View Cemetery could operate on a break-even basis in perpetuity and even generate surplus revenues for the City.

The Vision Plan for the Cemetery was prepared with considerable public and stakeholder input through the Citizens Advisory Committee and the Staff Liaison Committee. The community desire for a continuing role in the evolution of the Cemetery may be accommodated satisfactorily with the creation of a Cemetery Advisory Board. The addition of a Cemetery Foundation could also facilitate the solicitation of donations for restoration work and other worthwhile initiatives that would not normally generate fee income.

The Master Plan and a Development, Marketing, Business and Financial Plan proposed for the next phase will take a comprehensive approach to a detailed design for landscape and built elements, and a strategic approach to operations, management and maintenance. It will guide development of the site and identify suitable locations for structures to minimize impact on neighbours and sight lines.

The Pilot Projects proposed by the consultants to initiate the change process and generate revenue for early evolution of the Cemetery is seen as premature. In order not to compromise the Master Plan process, it is recommended that these be deferred until after the completion of the Master Plan and report back to Council.

Instead, to reinforce the permanent closure of 37th Avenue at the Cemetery for the Greenway, it is proposed that the street closure work (cul-de-sac, berming and planting) be undertaken now. Engineering has advised that a contribution from the Cemetery is needed to supplement the costs of Greenway improvements at the Cemetery. Additionally, in consideration of the people of Vancouver, the sale of a few double-depth gravesites would be permitted where, in consultation with the consultants, it would not compromise the Master Plan process.

While the long term plan anticipates more efficient and effective use of land, including demolition and options for replacing the substandard Administration building, the existing building should be brought up to acceptable health and safety standards for the next 5 years. This would present a renewed face and improved environment to the public and staff.

To improve service to the public and to provide accurate base of information for the Master Plan, a physical and legal survey of the Cemetery lands in digital format should be undertaken.

The systems requirements of the Cemetery needs a comprehensive review to capture the hardware/software and training requirements; provide a GIS function,; establish a data base and meet the record-keeping functions and operational needs of a retail business operation proposed in the Master Plan. In the interim, the process of transforming the Cemetery records to a computerized data base will require software and additional staff time. A computerized data base will improve considerably the speed and accuracy of access to information that is needed for public enquiries.

The neighbours and Citizens Advisory Committee members have concerns about security and vandalism. Safety principles will be incorporated in the design of the landscape and structures to the satisfaction of CPTED Committee members. In the interim, the installation of gates that can be closed at dusk will serve to reduce inappropriate use of the cemetery at night.

Cemetery fees have not been revised since 1993 and are significantly below market (what is being charged by other jurisdictions). Fees should be reviewed annually and revised to maintain an average of those charged by other jurisdictions or, as a minimum, on a full cost recovery basis. The companion Administrative Report of May 26, 1998 "Cemetery Schedule of Fees Amendment" recommends a revised schedule for Council approval.

The City will initiate discussions with the Loewen Group, owners of the "B" listed Vancouver Crematorium building, as part of an effort to secure the heritage designation of the structure.

To learn first hand from other cemeteries that are operating on a financially sound basis, the Cemetery management should travel to visit and view operations in Edmonton and Calgary, Washington State and possibly other BC destinations.

To increase the potential flow of revenues without requiring the City to finance capital investments of built elements such as columbaria, mausolea, niche walls, the opportunities for partnership with private sector investors will be fully explored.

Council is being asked to allocate $405,000 for the next phase of the study and work that will bring us closer to reinstating Mountain View Cemetery to its full potential as a civic asset that is viable for the long term.

PURPOSE

The purpose of this report is to seek Council approval of the vision to revitalize Mountain View Cemetery and Council authorization to contract with the consulting team of Philips Wuori Long Inc. in association with Harris Hudema Consulting Group Ltd. and Pechet + Robb Design to develop the Master Plan and a comprehensive Development, Marketing, Business and Financial Plan; and to remove barriers to the renewal process that would transform Mountain View into a viable commercial enterprise.

BACKGROUND

Mountain View Cemetery, located west of Fraser Street between 31st and 43rd Avenues, has been owned and operated by the City of Vancouver since 1887. The Cemetery has 106 acres of burial land bisected by several City streets including the 37th Avenue Greenway, approximately 90,000 grave sites and approximately 140,000 buried. Within the Cemetery is a privately-owned parcel of land on which sits the "B" listed Vancouver Crematorium.

The Cemetery has 15 regular fulltime employees, revenues of approximately $350,000 and operating costs of approximately $1,000,000. In 1997 the Cemetery lost approximately $650,00. The projected loss in 1998 is $750,000. Since 1986 there has been no sale of plots except for burial of indigents. Many plots purchased between 1887 and 1945 remain unused and can be resold with proper notification. The Cemetery By-law is out of date as are the lack of options for memorialization available to the public.

On May 16, 1996 Council decided to retain control and operation of Mountain View Cemetery and instructed staff to report back on ways to ensure a publicly acceptable, cost recovery operation, including the possibility of transferring the operational aspects to the Park Board under contract to the City.

Before its transfer to the Vancouver/Richmond Regional Health Board, the Vancouver Health Department ran the Cemetery. Subsequently the Cemetery has been managed as part of the Non-Market Housing Division in the Community Services Group.

On March 25, 1997 Vancouver City Council approved the retention of Philips Wuori Long Inc. in association with Harris Hudema Consulting Group Ltd. and Pechet + Robb Design as the Mountain View Cemetery consultant team to recommend on:

The study was to help re-position historic Mountain View Cemetery as a viable commercial operation that would meet the present and future needs of the citizens of Vancouver for memorialization of loved ones while respecting/enhancing/conserving the historic legacy.

In April, 1997, supervision of the consultant study was transferred from the Manager of Real Estate Services to the Manager of Non-Market Housing.

PROCESS

A Citizen Advisory Committee (Appendix "A", Citizen Advisory Committee Members) with representatives from the local community, Cemetery societies and other stakeholders was brought together to provide community input and insight and to guide the study. These consultations were supplemented with widely advertised Cemetery tours and public forums to capture a broader cross-section of Vancouver. Until Council authorizes the establishment of the Cemetery Advisory Board, the Citizens Advisory Committee can continue to provide support to the planning process. We intend to add a Heritage Commission representative to the Advisory Committee with the hope that such representation may be appointed to the Cemetery Advisory Board or equivalent.

A Staff Liaison Committee of interested departments including Planning (Heritage, Greenways, CPTED), Police, Engineering, Corporate Services (Real Estate) and Parks was brought together to provide technical advice to the consultants. For the Master Plan phase, it is proposed that Finance representation be added to the Staff Liaison Committee.

Copies of the report, A Vision for Mountain View Cemetery with Appendix A City of Vancouver Terms of Reference & Public Process and Appendix B Business Plan dated January 1998 are available in the City Clerk's Office for Council's convenience. Executive Summaries of both Vision Plan and Business Plan are attached as Appendices "B" and "C" of this Council report.

DISCUSSION

The vision for Mountain View Cemetery is of a revitalized civic resource that will more fully meet diverse and changing needs of the citizens of Vancouver. The 10-year Cash Flow Projections (Appendix "D") have Mountain View recapturing a market share of 35% of burials and 25% of cremations and attaining a small surplus in Year Four.

To achieve this Vision, the consultants have made 67 recommendations (Appendix "E") that take us from now to 15 years hence. These include the development of a Master Plan to provide the detailed design for landscape and structures for the Cemetery and to guide future development on the site. Suitable location of built elements will be identified to minimize impact on neighbouring uses and sight lines. The Marketing and comprehensive Development, Marketing, Business and Financial Plan will consider management and operations, marketing and strategic developments and medium and long term maintenance and upgrading needs and the long term viability of the Perpetual Care Fund.

More than 70% of British Columbians are now choosing cremation over burial. To increase capacity in the Cemetery and choice for the public, the range of interment and memorialization options must be diversified. The Registrar of Cemetery and Funeral Services should be notified and the City By-law changed to allow for above-ground memorialization. Council Policy restricting the use of upright markers and monuments should also be modified to facilitate choice and the restoration of heritage elements. Additional costs in maintenance are recoverable through a revised fee structure or a special fund.

The use of plantings, pavers and benches will be sited according to a comprehensive landscape architectural master plan and guidelines. Heritage and cultural preservation, safety and security, density, traffic circulation and restrictions, are considered and will be addressed in the Master Plan.

Council is being asked to approve $405,000 for the next phase to prepare the necessary plans and undertake the work that will bring us closer to a viable Cemetery operation for the long term. The Cemetery will immediately advertise to reclaim unused gravesites (purchased between 1887 and 1945) and close roads where appropriate to use existing land capacity more efficiently while providing a revenue stream into the future.

By maintaining the current management structure, we will be able to build on the momentum that has been established during the vision phase and propose that the Master Plan phase include consideration of the options available through contracting with other service providers including the Vancouver Parks Board in the operations.

An accurate survey in digital format and computerization of the data base (90,000 plots and 140,000 names) will improve our records management capability significantly. It will also improve our ability to respond effectively and efficiently to requests from the public for information and ultimately make it feasible to collect a fee for this service.

Continued public involvement can be accommodated by a Cemetery Advisory Board made up of interested community representatives and other key stakeholders. If Council so authorizes, the Manager of Non-Market Housing will develop the terms of reference and recommend selection criteria to Council in a report back. In the interim, the Citizens Advisory Committee can continue to work with management and the consultants. A Heritage Commission representative will round out the talent on the Committee and should be considered for participation in future governance.

Considerable interest has been expressed by some community representatives in the establishment of a Cemetery Foundation to solicit donations for worthwhile projects such as heritage restoration and publications. Should Council direct, the Manager of Non-Market Housing will report back on the terms of reference of the Foundation.

FINANCIAL IMPLICATIONS

Council authorization to spend $405,000 is an investment in the transformation of Mountain View Cemetery from a money-losing operation to a viable business while preserving its traditional role and heritage elements.

The next phase of study costing $220,000 for the Master Plan and the Development, Marketing, Business and Financial Plan and plant inventory, will take approximately 9 - 12 months. These will provide the landscape design and guidelines for location of products and buildings and the business plan implementation.

The physical/legal survey in digital format and the computerization of the data base will give us the basic data in an accurate and useable form which is not available at present. The present method of searching for information through log books and index cards is tedious, time-consuming, and not very effective in terms of service to the public. If Mountain View is to move into the 21st Century with the rest of the City organization and compete effectively with other service providers, we need to modernize.

The substandard Administration building is an embarrassment as well as a health and safety hazard with poor air quality, rotting draperies, carpets and wood, dripping taps, poor heat and ventilation. Facilities Development advises that an investment of $25,000 will make it serviceable for the next 5 years until location decisions and future revenue make it feasible for a replacement to be built. It will also freshen the appearance and smell of the office and washrooms for the public and staff.

The 10-year Cash Flow Projections (Appendix "D") make conservative assumptions about the City's market share of burials and cremations and propose moderate fees for the products and services that will be offered. The Cash Flow Projections show a small surplus of $28,445 in Year 4 and a surplus of $219,056 in Year 10 are achievable with the objective of optimizing and not maximizing density and revenues. It does not, however, address the long term needs for the Perpetual Care Fund to cover all operating costs into the future. This will be addressed in the next phase.

CONCLUSION

No business can grow and flourish without a fresh investment and renewed commitment at critical stages of its business life. Mountain View Cemetery is at a crossroads where its future could be either a continuing downward spiral and a drain on City resources; or be transformed successfully into a viable business and civic asset.

Mountain View Cemetery can become a financially successful City-operated enterprise with a new vision, a fresh commitment, an investment of resources to modernize and re-open opportunities for memorialization to the people of Vancouver. The next step is to prepare a Master Plan and a Development, Marketing, Business and Financial Plan that will take us toward the goal of self-sufficiency.

COMMENTS

The collective vision of the Citizen Advisory Committee of "what could be" was a strong affirmation of the potential for Mountain View Cemetery to become not only a beautiful place to memorialize loved ones, but also a welcoming and peaceful green space for all who seek a quiet retreat. They would like to see future community involvement in the governance of the Cemetery.

The Vancouver Heritage Commission supports the recommendations in the Heritage Management Section 3.6 of the consultant report; and will designate one of its members to represent it on a Cemetery Advisory Board or equivalent body managing change within the heritage values of the site.

The Director of Finance recommends that the source of funds for the initiatives included in Recommendation B be a loan from the Capital Financing Fund (Solid Waste Capital Reserve) with the expectation that repayment begin once the new commercial operations are up and running. Loans from this source are currently being issued at 4.5% annual interest.

Attachments to this Report that do not have electronic copy are available on file in the City Clerk's Office.

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