M E M O R A N D U M

   From:            CITY CLERK'S OFFICE                 Date: Jan. 2/96
                                                 Refer File: 5340-2

   To:              Vancouver City Council

          Subject:     CityPlan in Neighbourhoods


   The attached Policy Report dated November 30, 1995 and the draft
   discussion paper entitled "Bringing CityPlan to Neighbourhoods -
   a Proposal for Discussion"* dated December 1995 refer.

   Dr. Ann McAfee, Director, City Plans Division, and Ms. Ronda
   Howard, CityPlan, will make brief presentations.

                                       COMMITTEE CLERK


        the City Clerk's Office and the Planning Department).

                             POLICY REPORT

                                            Date:  Nov. 30, 1995
                                            Dept.File No. RH/TF/SA

    TO:       Vancouver City Council

    FROM:     Director of City Plans
              Director of Community Planning, in consultation with
              CityPlan Department Heads Steering Committee
              General Manager of Engineering Services
              General Manager of Community Services
              General Manager of Corporate Services
              General Manager of Parks & Recreation
              Manager of the Housing Centre
    SUBJECT:  CityPlan in Neighbourhoods


         A.   THAT Council approve the release of the discussion
              paper entitled, *"Bringing CityPlan to

         B.   THAT Council invite public review of the discussion
              paper, during January through March 1996, and that
              Council approve the review process described in this
              report (including distributing a summary of the
              discussion paper to the CityPlan mailing list; staff
              presentations, discussion groups, and city-wide

         C.   THAT the Planning Department report back in May 1996
              on the results of the public review of the discussion
              paper and on a proposed approach to implementing
              CityPlan in Neighbourhoods, including staff and
              budget requirements.

         D.   THAT Council approve carrying forward the remaining
              CityPlan budget of approximately $72,000 and using
              $23,800 for the public review noted in "B" above, and
              $44,000 for preparation of "neighbourhood planning
              guides" - with costs as detailed in Appendix B.


         The City Manager RECOMMENDS approval of the foregoing.

    On June 6, 1995, Council approved CityPlan as providing
    directions for Vancouver.  Included in CityPlan are directions
    for neighbourhoods, as noted in Appendix A.  These include:

    -    ... create or strengthen neighbourhood centres in all
         neighbourhoods as a place where people can find shops,
         jobs, and services close to home.

    -    ...increase housing variety and affordability in
         neighbourhoods that have little variety now to help meet
         the housing needs of people of different ages and incomes
         in the neighbourhoods, the city, and region.

    -    ...maintain and improve neighbourhood character.

    -    ...increase walking, biking, and transit in neighbourhoods
         and between neighbourhoods, and reduce single-occupant car

    CityPlan includes the following statements about

    -    "The City should, as a first step, bring people from
         across the city together with Council and City staff to
         determine how to plan for neighbourhoods and their
         neighbourhood centres."

    -    "Develop a new planning process to be used in the planning
         of each centre and its surrounding community which
         promotes problem solving and resolving differences."

    CityPlan was adopted on June 6, 1995, as directions for
    Vancouver.  Among the new directions identified in CityPlan are
    several that are very relevant to the city's neighbourhoods. 
    These include, for example, a desire for housing choice
    throughout the city, reducing travel by locating jobs closer to
    where people live, and choice of neighbourhood character.

    Realizing that there are various ways to proceed with these
    directions and that any process will involve a significant
    commitment of City resources for some years to come, Council
    asked staff to propose a process for implementing CityPlan in
    neighbourhoods. The City would then invite public comment. 
    This public input would assist staff to firm up a neighbourhood
    planning proposal for Council's consideration.
    The discussion paper, *"Bringing CityPlan to Neighbourhoods"
    outlines a proposed approach to implementing CityPlan at the
    neighbourhood level.  The discussion paper contains four
    sections: principles, expectations, product, and process, as
    well as questions and answers on topics such as cost,
    boundaries, timing, and rezoning policies.

    The process proposed in the discussion paper is to develop
    "neighbourhood visions".  Each "vision" would involve
    residents, business owners and operators in a six-month
    process.  The product, a vision, would describe the kind of
    neighbourhood people want and how to move on CityPlan
    directions at the neighbourhood level.  It would, for example,
    identify: the location and form of neighbourhood centres;
    important aspects of neighbourhood character, public places,
    and services; ways to increase the type and amount of housing
    and jobs in the neighbourhood; and ways to make the
    neighbourhood less car dependent.

    A concurrent process at the city-wide scale will assist
    neighbourhood visions to build toward a consistent response to
    CityPlan.  Based on the visions, the City can be strategic
    about the location and timing of implementation actions such as
    rezonings, capital projects, and the provision of city
    Staff propose that the discussion paper, and a shorter summary
    version, be released for public review and comment early in the
    new year.  Following this review, a revised program proposal
    including staffing and budget will be submitted to Council in
    May 1996.  For Council's information, preliminary estimates of
    staffing and budget required for the approach laid out in the
    discussion paper are provided in Appendix C of this report.

    Concurrent with the public review of the discussion paper,
    staff propose assembling Neighbourhood Planning Guides and
    other data, information, and tools/models to assist in the
    neighbourhood program.

    Costs associated with the discussion paper and public review as
    well as information gathering can be met from funds remaining
    in the 1995 CityPlan budget.  Staff are available to undertake
    the activities outlined.

    The CityPlan in Neighbourhoods Program will be under the
    direction of the Directors of City Plans and Community
    Planning. The CityPlan Department Heads Steering Committee will
    continue to provide guidance and coordination between policy
    planning initiatives (e.g. Neighbourhoods Program,
    Transportation Plan).PURPOSE
    The purpose of this report is:

    -    to present a discussion paper which outlines a proposed
         approach to implementing CityPlan in neighbourhoods,
         including proposed budget estimate; and
    -    propose a process for public review of the discussion


    CityPlan provides fourteen key directions for Vancouver.  In
    addition to ongoing City initiatives in the areas of
    "Addressing Housing Costs,"  "Art and Culture," "the Downtown," 
    and Clean Air and Water," a variety of new initiatives are
    underway which further the CityPlan directions.  These include:

    Distinctive Neighbourhhod Character: A new zoning schedule, RS-
    6, will be considered at Public Hearing in January. In February
    staff will be reporting on a program to assist neighbourhoods
    to maintain neighbourhood character.

    Accessible Community-Based Services:  Fifteen community-based
    inter-departmental "Integrated Service Teams" are now in place.
    Their mandate is to work with staff from civic departments and
    with the community to solve community issues in the community.

    Promoting Safety:  Nineteen community-based safety initiatives
    are underway through Police/Community Service Centres,
    Community Crime Prevention Offices, neighbourhood police
    offices, and police visitation programs.

    New and More Diverse Public Places:  On July 18, 1995, Council
    adopted a City Greenways network plan involving 14 City
    Greenways totalling approximately 140 km.  A "Ridgeway
    Greenway" is under development along 37th Avenue between
    Granville and Knight Streets linking VanDusen Gardens, Queen
    Elizabeth Park, and Kensington Park.

    Diverse Economy: Early in 1996, changes will be considered to
    the City's Industrial Schedules to facilitate city-oriented and
    city-serving jobs.  From January to June 1996, a public process
    will consider sites for a convention centre -- a major new
    initiative to enhance tourism.

    Transit, Walking, and Biking:  During January to April 1996,
    the City will be undertaking a public process on key
    transportation choices.  This input will be the basis for a
    draft Transportation Plan which will then be distributed for
    public review.
    People Involved in Decision-Making and Financial
    Better City Government initiatives, such as the Development and
    Building Regulation Review and the Public Process Review, are
    addressing CityPlan Directions.

    CityPlan in Neighbourhoods

    These ongoing and new programs form a context for the CityPlan
    neighbourhood initiative outlined in this report.

    The proposed program considers all CityPlan directions, from a
    neighbourhood perspective.  In particular it will address
    directions for Neighbourhood Centres and Housing Variety,
    Distinctive Neighbourhood Character, Housing Cost, Jobs Close
    to Home, Diverse Public Places and Transit, Walking, and

    In June, Council asked staff to consider ways to implement
    CityPlan in neighbourhoods. 

    The attached discussion paper -- "Bringing CityPlan to
    Neighbourhoods" -- outlines a proposed approach to implementing
    CityPlan at the neighbourhood level.  The discussion paper
    contains four sections: principles, expectations, product, and
    process plus questions and answers.

    a)   Neighbourhood Principles:

    In developing the proposed approach, staff were guided by
    principles which emerged from the CityPlan process:

    -    Reach all neighbourhoods in a reasonable time;
    -    Follow up on the full range of CityPlan topics together;
    -    Move forward in the CityPlan directions;
    -    Recognize neighbourhood distinctiveness;
    -    Help neighbourhoods keep a city-wide perspective;
    -    Encourage as many people as possible to participate by
         making it easy to be involved in different ways; and
    -    Keep costs reasonable.

    b)   Neighbourhood Expectations:

    Arising from the principles, staff identified some possible
    expectations for the scope of the program.  For example:

    -    CityPlan directions (see Appendix A) provide a guide for
         neighbourhood planning.
    -    Each neighbourhood will seek ways to bring CityPlan
    directions to the neighbourhood level.- The City's
                                            expectation for a
                                            neighbourhood product
                                            is that it demonstrates
                                            a full consideration of
                                            the CityPlan
                                            directions, data, and
                                            consequences, and shows
                                            movement toward the
                                            CityPlan directions.
    -    Targets will be set from the ground up based on
         information provided in Neighbourhood Planning Guides and
         the unique circumstances of each neighbourhood.
    -    CityPlan is intended to unfold over 30 years. As
         conditions and needs will change over that time, not all
         details need to be resolved now.
    -    Neighbourhoods will be given the opportunity and
         responsibility of sharing information and work in progress
         and taking stock as the process proceeds.

    Expectations will need to be widely shared and agreed as a
    guide for both the neighbourhood process and the product.

    c)   Neighbourhood Product:

    Staff took the above principles and expectations into account
    when considering alternate approaches to preparing
    neighbourhood plans.

    One option considered, but not proposed, is to do detailed
    "neighbourhood plans."  This would be similar to approaches we
    have used in the past.  The advantage of this approach is that
    the product provides certainty about development directions
    (e.g., zoning, design guidelines, development cost levies),
    services, and capital plan priorities.  The drawback of this
    approach is that it can take up to three years to complete each
    neighbourhood plan.  Given current staff resources, it could
    take more than 20 years to reach all neighbourhoods.

    Staff are proposing a new approach called "neighbourhood
    visions."   Visions will provide overall guidance on
    implementing CityPlan directions in each neighbourhood. 
    Visions will, for example, include the location of
    neighbourhood centres, important aspects of neighbourhood
    character and services, ideas to increase the type and amount
    of housing and jobs in the neighbourhood, ways to make the
    neighbourhood less car dependent, and actions for followup

    Not every detail will need to be resolved in the visions.  They
    could contain options for resolution at a later date.  Since
    visions will provide less detail than traditional neighbourhood
    plans, they can be prepared in a shorter time, reaching all
    neighbourhoods within about five years.  With visions in place,
    the City can be strategic about the location and timing of
    d)   Neighbourhood Process:

    The process for developing a neighbourhood vision is designed
    to encourage wide public involvement over a six-month period. 
    The process has two levels -- a neighbourhood process
    complemented by a concurrent city-wide process (Figure 1).
    The city-wide process creates a link between neighbourhoods. 
    It provides a forum for information exchanges, discussion of
    common concerns, and opportunities to take stock of progress
    and addresses questions of equity between neighbourhoods.

    To facilitate the visioning processes, and subsequent
    implementation, staff will be developing neighbourhood planning
    guides containing information on new approaches to implementing
    neighbourhood visions.  The city-wide program provides a forum
    for staff to discuss new ideas for implementation with the
    public.The neighbourhood process (Figure 2) includes two
    activities - those that involve the public and those that
    require staff to assemble information and integrate material
    for further public review and comment.

    (1)  Introductory events invite people to participate in
         developing a neighbourhood vision.
    (2)  At workshops residents, business owners and operators
         discuss ideas for the neighbourhood. 
    (3)  Staff assemble workshop ideas into draft visions. 
    (4)  Workshops, displays, and surveys engage citizens in
         choosing and refining a preferred vision.
    (5)  Staff assemble public input into a draft preferred vision.
    (6)  The neighbourhood discusses and proposes any changes to
         the preferred vision.
    (7)  The neighbourhood vision process concludes with the
         preferred vision being discussed with City Council in a
         public forum.
    Staff suggest starting with two neighbourhood vision programs
    concurrently. This would complete four visions a year.  A
    program review is proposed at the conclusion of four visions. 
    This will provide an opportunity to adjust the program based
    upon experience.  At that time staff will be in a better
    position to assess actions required to implement completed
    visions and advise Council on ways to adjust staff resources
    between developing new visions and implementation.  In addition
    to this major review, staff will be reporting to Council for
    direction at the start and conclusion of each vision process.

    e)   Neighbourhood Program: Estimate of Costs and Staffing:
    At this point, Council is not being asked to approve budget or
    staff for the neighbourhood vision process.  Following a
    decision on the preferred process, staff will propose a program

    For information purposes, staff have done some preliminary
    program cost estimates.  Based on the proposed program:

    -    Annual non-staff cost to do four neighbourhood visions is
         $305,000.  This cost could be partially offset by funds
         normally spent on community planning projects.  

    -    Estimated annual staffing requirements to do the
         neighbourhood and city-wide processes is 20 staff.  All
         but three positions (multicultural, communications, and
         youth coordinators) are available through redirection of
         existing staff from community planning and policy
         programs. If this program proceeds, there will be
         substantially reduced resources for undertaking
         traditional local area planning programs, area studies,
         and zoning reviews.

    Further information on possible staff and other resource
    requirements is attached as Appendix C.  A more refined cost
    projection will be included in the May 1996 Council report.


    Staff propose that the discussion paper "Bringing CityPlan to
    Neighbourhoods" be released in January 1996, for public review
    and comment from January through March (Figure 3).  Following
    this review, staff will report back to Council with a proposed
    program for implementing CityPlan in neighbourhoods.  Funds
    required for the public review are $23,800 as noted in Appendix
    B, page 1.  Source of funds is the CityPlan budget.  Staff will
    coordinate with other City initiatives such as the
    Transportation Plan and Better City Government to take
    advantage of opportunities for joint programming and


    During this same period, January to May 1996, staff recommend
    starting to assemble information for "Neighbourhood Planning
    Guides". The guides will include information which residents
    can use to develop vision statements on such directions as
    housing variety and neighbourhood character. The guides will
    outline expectations for the program and provide information
    about the extent of the City's resources for implementing

    The guides will also include a "catalogue" of example traffic
    calming methods, affordable housing actions, public place
    designs, financing options, and zoning schedules to provide for
    more housing variety and address neighbourhood character. 
    These ideas can be used by residents to develop their
    neighbourhood vision and implementation plans.

    The estimated cost to start preparing the guides is $44,000 as
    noted on page 2 of Appendix B.  Source of funds is the carry-
    over CityPlan budget.

    On June 6 1995, staff noted the possible problems associated
    with privately initiated rezonings potentially prejudicing
    visioning processes. At that time Council approved a motion
    that applications for rezoning prior to adoption of a
    neighbourhood vision should not justify the rezoning on the
    grounds that it "supports CityPlan neighbourhood centres."

    Staff have reviewed the issue of rezonings prior to and during
    neighbourhood visioning programs.  Staff continue to be
    concerned about the potential disruption and diversion of staff
    resources which might occur should a controversial rezoning be
    initiated prior to an agreed neighbourhood vision.  This is
    particularly problematic in or near otherwise single-family
    areas where development of a neighbourhood centre will be a
    significant new direction for the neighbourhood.

    A seperate report from the Directors of Planning and the
    Manager of the Housing Centre proposes policies regarding
    rezoning inquiries during the neighbourhood visioning process.


    The adoption of CityPlan provides the City with overall
    directions.  These directions provide a context for: future
    neighbourhood, city, and regional plans; capital plans; and the
    delivery of city services.

    A wide variety of programs to implement CityPlan are already
    underway.  Programs include Greenways, the Transportation Plan,
    Community Policing, zoning schedules for more compatible
    single-family zoning, and Integrated Service Teams. Further
    initiatives will be considered in the context of Capital Plan

    The CityPlan directions provide quidance for improving
    neighbour- hood livability.  The next step is to develop
    neighbourhood initiatives which respond to CityPlan directions.

    This report proposes a process to develop Neighbourhood
    Visions. These Visions will provide a framework for actions in
    neighbourhoods which meet both the needs of neighbourhoods and
    contribute to the kind of city thousands of people supported
    through the CityPlan process.
    The neighbourhood vision process is a proposal which is being
    aired for public discussion.  Following public input staff will
    prepare a detailed work program for "bringing CityPlan to

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