Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

TO:

Vancouver City Council

FROM:

Water Opportunities Advisory Group in consultation with the Director of Central Area Planning, the General Manager of Engineering Services and the Director of Planning, Parks and Recreation

SUBJECT:

Blueways Program - Update and Future Directions

 

RECOMMENDATION

GENERAL MANAGER’S COMMENTS

COUNCIL POLICY

A number of policies for specific water bodies have been adopted including:

· encourage the diversity of marine uses; remove boat sheds; and provide for floating homes, seaplanes and charter boats (Coal Harbour ODP, 1990);

· limit marina size and location to maintain a substantial water basin (FCCDD, 1974, False Creek North ODP, 1990);

· design shoreline treatments to enhance fish habitat and improve water quality (Shoreline Treatment Concepts, 1991); and

· reclaim an estuary habitat in the Fraser Lands (Fraser Lands Rezoning, 1988).

Council has also adopted policies related to staffing expenditures:

· On February 4, 1992, Council instructed that any recommendations for increased staff or enhanced programs be accompanied by recommendations for related revenue increases or offsetting expenditure reductions.

· In November 1997, Council instructed that any costs associated with the Blueways work program be funded within the normal budget from tax revenues.

SUMMARY AND PURPOSE

In October 1997, City Council approved a number of recommendations related to the Blueways Program including the following short-term work items:

· confirming jurisdiction/enforcement of regulations;
· revisions to the Health By-law to distinguish between live-aboard and short-term visitor moorage;
· design guidelines for public docks;
· endorsement of the Fraser River Estuary Management Plan; and
· advising on plans.

Council also requested a report back on these items, as well as options for continuation of the Blueways Program.

This work has now been completed, including a proposal for continuing staffing for one year to complete additional high priority work items. Funding would be from general revenues. Management of Blueways would be moved to Engineering Services. It is also recommended that the Water Opportunities Advisory Group (WOAG) continue to advise City Council and staff on water-related issues. Regardless of Council’s decision on staffing, a number of policies and guidelines to direct future initiatives related to Vancouver’s waterfront and waterways are recommended for approval.

BACKGROUND

The Blueways initiative started in 1995 when the WOAG was formed. The WOAG is made up of volunteers from the public and private sectors (see Appendix D for list of members). They were charged with the task of developing a set of recommendations that could form the basis of City policy for current and future planning of the waterfront. In June 1996, Council approved a public consultation process to assist the WOAG which resulted in the publication of the Draft Blueways Document that was received by Council in October 1997. At that time, Council approved staff funding for a six-month period to work on a number of items requiring immediate action and to report back on options for implementing a Blueways Program.

DISCUSSION

1. Blueways Policies: A number of policies and guidelines to direct future decisions and development affecting the city’s water bodies and waterways are proposed in Appendix A. These policies were derived from the Draft Blueways Document which was prepared with extensive public consultation. Items from the draft document that have been completed are not included. Staff and the WOAG have reviewed the remaining items and deleted any that were deemed lower priority. Adoption of the policies and guidelines will help ensure that future developments complement, enhance and preserve Vancouver’s waterfront environments.

The policies and guidelines will:

· encourage and support a diversity of waterfront uses, activities and structures that recognize a variety of users;
· assess, protect and enhance waterfront habitat;
· protect water-based industry; and
· increase public access to and along the waterfront.

2. Update on Work Items: The WOAG and City staff have completed work on the priority initiatives as directed by Council. These include:

(a) Jurisdiction and Enforcement: Determining jurisdictional responsibility in the City’s waterways has been difficult due to the overlapping of authority and involvement of several regulatory agencies at all three levels of government. City staff have been working with their provincial and federal counterparts and private owners to clarify jurisdictional authority in False Creek. Through these discussions it was determined that the vast majority of boats are located on privately-owned water lots. It was also verified that water lot owners have the right to remove these boats, similar to a car being parked on a private land lot. City staff have met with other water lot owners and agreed to proceed with the removal of unauthorized vessels. The water lot owners in False Creek will be contracting a bailiff company and/or towing operators to carry out enforcement.

(b) Changes to Health By-law: The Director of Environmental Health has worked with Blueways staff in preparing a companion report and amendments to the Health By-law to distinguish between live-aboard moorage and short-term visitor moorage for Council’s consideration. Adoption of the recommendations in the report will complete this work and permit short term moorage.

(c) Dock Design Guidelines/Water Transportation System: Dock design guidelines have been completed and are attached as Appendix E. The design guidelines will ensure that public docks will have a consistent design and permit multiple users. The dock and ramp supplier will be responsible for all details of the dock and ramp and must provide drawings sealed by a Professional Engineer for review by the City Engineer

prior to approval. The dock design must meet all applicable design codes. The City Engineer will review the design using the General Guidelines for Docks in Vancouver (see Appendix E). Development and building permits must also be obtained when and as required. Engineering staff are completing further work to determine methods and associated costs for providing barrier free access to docks.

(d) Endorsement of Fraser River Estuary Management Plan: This work has also been completed and is subject of a companion report. Adoption of the recommendations in that report will complete this work.

(e) Advising on Plans and Development Proposals: Staff and the WOAG have reviewed and provided input on several planning initiatives including South East False Creek, the Plaza of Nations rezoning, and the proposed expansion of the False Creek Yacht Club. Continuing to provide advice on development proposals is part of the proposed work program that is described below. Study areas have also been established, so that Blueways staff will be advised of any proposed development adjacent to the waterfront.

3. Actions to Continue Blueways Program: A strong foundation for the Blueways program has been established with a good level of public support. While a number of significant work items have been completed, there is much more to be done. In order for Blueways to build upon this support and successes in a meaningful way, additional resources are recommended.

(a) Priority Work Items: With reference to the Blueways document, staff and the WOAG have identified the following high priority work items:

(b) Management and Resources: To date, the Blueways Program has been managed and staffed by the Planning Department, while other City departments such as Engineering and Parks have contributed staff resources to attend meetings of the WOAG. For the future, it is proposed that management of Blueways be moved to the Greenways section in the Engineering Department. Greenways staff have been part of the WOAG and are familiar with the objectives of the Blueways Program. In addition, this alignment will create opportunities for collaboration on projects. Planning staff will continue to be actively involved through the WOAG.

The Water Opportunities Advisory Group and senior managers discussed a number of staffing options for the continuation of Blueways. Current work programs in Planning and Engineering are fully committed and any further work on Blueways with existing resources would be at the expense of work in other areas such as Transportation or Greenways. It was concluded that additional staffing in the form of a full-time Planning Analyst for a period of one year would be required to deal with a number of important work items outlined above. If City Council does not approve RECOMMENDATION B to provide staffing, additional work on Blueways would be delayed indefinitely.

FINANCIAL IMPLICATIONS

It is recommended that the funding resources for staffing the Blueways Program in the amount of $56,070 (see Appendix B) come from the 1999 Operating Budget, as Council has directed that any costs associated with the Blueways work program be funded within the normal budget from tax revenues. Approval of RECOMMENDATION B will provide funding for staffing for a period of one year.

In addition, funding of $ 60,000 to install the 15 mooring buoys in False Creek is also being requested (see Appendix C) with the source of funds to be the Property Endowment Fund, and would be repaid from mooring buoy revenue. It is estimated that capital costs to install the buoys, provide a dock extension and complete other related works will be recovered in no more than two years based on the projected revenues from the mooring buoys. Annual operating costs are estimated to be $16,450. This would include staffing at Heather Marina for administration and collecting of fees as well as the provision of a garbage bin. These costs would also be recovered by mooring buoy revenue.

Staff estimate the annual revenue from the mooring buoys to be $55,000. This is based on $15/night moorage fee and varying levels of occupancy depending on the season. (See Appendix C for more detailed analysis.) It is estimated that once the capital costs have been repaid, the moorage buoys will generate $40,000 annually after operating costs are deducted.

ENVIRONMENTAL IMPLICATIONS

Council adoption of the policies and guidelines listed in Appendix A will provide direction to improving water quality and shoreline environment around the city. In addition, approval of the work program outlined in this report will allow for dedicated staff time to pursue water quality and habitat enhancement projects with community groups. Designation of English Bay and False Creek under the Federal Pleasure Craft Sewage Disposal Regulations will also result in improvements to water quality in these areas.

WATER OPPORTUNITIES ADVISORY GROUP (WOAG)

The WOAG was established in 1995 and has been critical to the success of the Blueways Program to date. This Group has been meeting on a monthly basis and has provided valuable input and guidance. A number of community interest groups have expressed a desire to join the WOAG. However, staff feel that the various interest groups are represented through the three public positions on the WOAG and that opportunities for membership will come open as positions become vacant. The addition of more members could result in decreased operational efficiency. Therefore, it is recommended that Council endorse the existing structure and composition of the Water Opportunities Advisory Group (as in Appendix D) and that they continue to advise Council on water-related issues.

CONCLUSION

This report includes an update on the Blueways Program and recommends that Council adopt policies to guide future decisions affecting waterways in the city and approve a work program and resources for a further one year period. A proposed budget for the operation of the moorage buoys in Charleson Park is presented for Council’s approval. It is also recommended that the WOAG be retained in their current make-up and continue to advise Council on water-related issues.

BLUEWAYS POLICIES AND GUIDELINES

1.0 APPLICATION AND INTENT


1.1 Vision

1.2 Principles

1.3 Goals

2.0 OBJECTIVES

The following are the objectives of the Blueways Policies and Guidelines.

2.1 Access and Transportation

2.2 Marine Related Commercial/Retail Activity

2.3 Marine-Related Industry

2.4 Moorage

2.5 Recreation, Tourism and Culture

2.6 Safety and Marine Regulations

2.7 Water Quality and Shoreline Environment

3.0 GENERAL POLICIES AND GUIDELINES

3.1 Access and Transportation

3.2 Marine Related Commercial/ Retail Activity

3.3 Moorage

3.4 Recreation, Tourism and Culture

3.5 Safety and Marine Regulations

3.6 Water Quality and Shoreline Environment

4.0 BURRARD INLET POLICIES AND GUIDELINES

4.1 Access and Transportation

4.2 Moorage

4.3 Recreation, Tourism and Culture

4.4 Water Quality and Shoreline Environment

5.0 ENGLISH BAY POLICIES AND GUIDELINES

5.1 Access and Transportation

5.2 Moorage

5.3 Recreation, Tourism and Culture

5.4 Safety and Marine Regulations

5.5 Water Quality and Shoreline Environment

6.0 FALSE CREEK POLICIES AND GUIDELINES

6.1 Access and Transportation

6.2 Marine Related Commercial/Retail Activity

6.3 Marine Related Industry

6.4 Moorage

6.5 Recreation, Tourism and Culture

6.6 Safety and Marine Regulations

6.7 Water Quality and Shoreline Environment

7.0 FRASER RIVER POLICIES AND GUIDELINES

7.1 Access and Transportation

7.2 Moorage

7.3 Recreation, Tourism and Culture

7.4 Safety and Marine Regulations

7.5 Water Quality and Shoreline Environment

APPENDIX B

STAFFING AND PROGRAM BUDGET

1 Includes wage [Step 3] and benefits costs [17.6%].

APPENDIX C

FALSE CREEK MOORAGE BUOYS -
ESTIMATED COSTS AND PROJECTED REVENUES

1. Estimated Capital Costs

2. Estimated Annual Operating Expenses

3. Estimated Time for Payback of Capital Costs Two Years

4. Projected Annual Revenue From Buoys

5. Estimated Annual Net Income After Capital Costs Paid

APPENDIX D

WATER OPPORTUNITIES ADVISORY GROUP [WOAG]

Council Representative:

Appointed Members:

City Staff Members:

APPENDIX E
Page 1 of 2

GENERAL GUIDELINES FOR DOCKS IN VANCOUVER

Ramp

1. Minimum 1.5 m x 20 m aluminum walkway, but as long as possible to minimize the slope at low tide is recommended.
2. Aluminum (6,061) square tubing trusses and cross framing.
3. S4S pressure treated fir decking with cleats on one half and aluminum or stainless steel expanded metal on other half.
4. 2.4 kPa design live load.
5. S4S pressure treated 2" x 4" rails 400 mm from floor, on each side.
6. Drop-leaf hinge and fixed castors with running rails on dock.
7. 40 mm diameter aluminum pipe handrails each side.
8. Hinged/sliding aluminum or galvanized steel transition plates, 1.5 m long at bottom and 200 mm at top of ramp.
9. 800 mm long handrail extensions at bottom of ramp to help while descending the transition plate.

Dock

10. Standard dock dimensions are 3 m x 15 m.
11. Dock to be designed for live load of 3.6 kPa.
12. Positive flotation of expanded polystyrene type 1 with a maximum water absorption of 4%, encased in concrete on five sides providing 400 mm even freeboard on all sides under dead-load of dock, ramp, and shelter(s) for passengers.
13. Include provision on one edge of the dock for small craft such as kayaks, loading and unloading. Consideration should be given to the provision of a continuous metal rail at dock level to facilitate bracing by hand of kayaks during loading and unloading.
14. Shelter weight will depend on design, but City specified shelters are approximately 135 kg each.
15. Concrete deck using type 10, exposure classification C-1, 30 MPa concrete with double pressure treated fir 2" x 8" edge surround on all sides.
16. Pressure treated fir to be used for all other walers and frames.
17. Hot dipped galvanized pile hoops of 75 mm diameter steel pipe
18. Maximum overlap of ramp onto dock to be 4.6 m at highest tide, including transition plates.

APPENDIX E
Page 2 of 2

19. All hardware to be hot-dipped galvanized or 316 stainless steel
20. All rebar and WWM to be epoxy coated as per ASTM A934M-97.
21. Tie-up cleats as required.

Miscellaneous

22. Adequate lighting as per the illuminance Engineering Society of North America’s Recommended illuminance Levels for Pedestrian Ways. Lighting should minimize glare on to adjacent public and private uses, including residential. Consideration should be given to the use of full cut-off fixtures with colour-corrected light sources.
23. Installation of aluminum or galvanized steel ladder on the dock for access from water if someone falls overboard.
24. Provisions for ferry shelter(s) with a bench in each shelter.

The ramp and dock supplier is to design all details of dock and ramps and to provide drawings of the dock and ramp sealed by a Professional Engineer showing the design loads for review by the City Engineer prior to approval. The dock design must meet all applicable design codes.

City of Vancouver
Structures Branch
Engineering Services
August 1998

* * * * *

ag981201.htm

Comments or questions? You can send us email.
[City Homepage] [Get In Touch]

(c) 1998 City of Vancouver