Proposed Regional Context Statement ODP

POLICY REPORT

URBAN STRUCTURE
Date: January 7, 1999
Author/Local: B Riera/7683
RTS No. 00220
CC File No. 5340
TO: Vancouver City Council
FROM: Director of City Plans, in consultation with the General Manager of Engineering Services, General Manager of Parks & Recreation, Manager of Housing Centre and Director of Legal Services.
SUBJECT:Proposed Regional Context Statement Official Development Plan
RECOMMENDATION
A.THAT the amended Regional Context Statement Development Plan, in Appendix A, be adopted, to replace the Regional Context Statement Development Plan adopted by Council on February 5, 1998.
B.THAT a by-law to adopt the Regional Context Statement Development Plan (referred to in Recommendation A), as an Official Development Plan, be referred to Public Hearing.
C.THAT if following the Public Hearing, Council choses to adopt the Regional Context Statement Development Plan as an Official Development Plan, that before final reading of the ODP, Council refer the Regional Context Statement to the Board of Directors of the GVRD for approval.
GENERAL MANAGER’S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A, B and C.
COUNCIL POLICY
On February 5, 1998, Council adopted, ‘A Development Plan to Comply with the Requirement for a Regional Context Statement’. The Development Plan was subsequently forwarded to the Board of the Greater Vancouver Regional District for comment, as required by Section 562 (2) of the Vancouver Charter.
The following policies establish the City’s strategic land use and transportation directions. They form the basis of the City’s Regional Context Statement.
- the Central Area Plan Goals and Land Use Policy (December 3, 1991);
- CityPlan (June 6, 1995);
- the Livable Region Strategic Plan (June 6, 1995);
- the Industrial Lands Policy (March 14, 1995);
- the Greenways Plan (July 18, 1995); and
- the Vancouver Transportation Plan (May 27, 1997).
These policies are outlined in Appendix D.
SUMMARY AND PURPOSE
Vancouver is required to adopt a "Regional Context Statement" illustrating how City plans and policies contribute to implementing the Livable Region Strategic Plan. On February 5, 1998, Council adopted a ‘Development Plan to Comply with the Requirement for a Regional Context Statement’. The Development Plan was subsequently forwarded for comment to the Board of the Greater Vancouver Regional District, as required by Section 562 of the Vancouver Charter.
On May 1, 1998, the GVRD Board of Directors endorsed GVRD staff comments on Vancouver’s Regional Context Statement (as attached in Appendix B to this report). The Regional Context Statement, with changes to accommodate the GVRD comments where possible, is now resubmitted to Council for consideration, and adoption, as amended, as a Development Plan. It will then replace the Regional Context Statement Development Plan adopted by Council on February 5, 1998.
Once the Development Plan is adopted, the recommendation is for Council to refer the by-law and Development Plan to Public Hearing for adoption as an Official Development Plan.
Adoption of the Regional Context Statement as an Official Development Plan (ODP) means that Council may not authorise or permit or undertake, any development contrary or at variance with the ODP. If in the future Council wishes to adopt policy or permit development contrary or at variance with the ODP, Council would first need to amend the ODP.
The GVRD requests that after Public Hearing, and before final reading, that Council refer the Regional Context Statement to the GVRD Board for acceptance. Once accepted by the GVRD Board, Council may give final reading to the Regional Context Statement as an Official Development Plan.
BACKGROUND
1. Requirement to produce a Regional Context Statement
Provincial legislation requires the GVRD to prepare a strategy for managing growth. In 1996 the Livable Region Strategic Plan (LRSP) was formally approved by the GVRD as the regional strategic plan for the Greater Vancouver Regional District. Vancouver is now required to adopt a ‘Regional Context Statement’, to demonstrate how the City’s plans and policies contribute to implementing the regional strategic plan.
On February 5, 1998, Council adopted the Regional Context Statement as a Development Plan. This Development Plan was forwarded to the Board of the GVRD for comment. On May 1, 1998, the GVRD Board of Directors endorsed GVRD staff comments on the Regional Context Statement (attached as Appendix B to this report).
To accommodate the Board’s comments, changes have been made to the text of the Regional Context Statement adopted in February. This amended text is now resubmitted to Council for adoption as the amended Regional Context Statement Development Plan, and will replace the Regional Context Statement adopted in February 1998.
2. Adoption of the Regional Context Statement as an Official Development Plan
Adopting the Regional Context Statement as an Official Development Plan, rather than simply a Development Plan, will establish the Regional Context Statement as a by-law, as provided for by Section 562(2) of the Vancouver Charter. The implication is that Council may not authorise, permit or undertake, any development contrary or at variance with the
ODP. If in the future Council wishes to adopt policy or permit development contrary or at variance with the ODP, Council would first need to amend the ODP. This means that Vancouver’s Regional Context Statement will have similar status as the Regional Context Statements of other municipalities in the region, which are adopted as part of each municipality’s Official Community Plan.
The process of adoption of the Regional Context Statement as an Official Development Plan is described in Discussion Section 3, below. The next step is for Council to adopt the amended Regional Context Statement Development Plan in replacement of the one adopted February 5, 1998. It can then be referred to Public Hearing, and then, prior to final reading, referred to the GVRD Board of Directors for acceptance. Following acceptance by the GVRD, Council may adopt the Regional Context Statement as an Official Development Plan.
3. Content of the Regional Context Statement
The proposed Regional Context Statement Official Development Plan, is attached to this report as Appendix A. It contains no new policies. It refers to existing City policies, chiefly, CityPlan, the Central Area Plan, the Industrial Lands Policy, and the City Transportation Plan. In addition, the City adopted the principles of the regional strategic plan, through its earlier endorsement of the Livable Region Strategic Plan (May 1995).
The Livable Region Strategic Plan contains four strategies that member municipalities are committed to working towards. These are:
·100·Protect the Green Zone·100
·100·Build Complete Communities·100
·100 ·Achieve a Compact Metropolitan Region·100
·100 ·Increase Transportation Choice.·100
Perhaps the most controversial of these is, ‘Achieve a Compact Metropolitan Region’. The regional strategic plan provides the basis for accommodating the next 1 million people in the region. Most of these extra 1 million people (73%) are intended to be housed in the ‘Growth Concentration Area’ (defined as Burrard Peninsula, North East Sector, North Surrey and North Delta). The GVRD has not adopted targets for the individual municipalities which make up this Growth Concentration Area, but during preparation of the regional strategic plan, Vancouver’s population expectations were expressed as approximately 635,000 people. CityPlan (adopted by Council in May 1995), does not include population targets either.
Nevertheless, the growth allocations considered during the CityPlan public program were for the City to increase zoned capacity to permit a population of 635,000, so as to meet regional objectives. Indeed, existing zoning and development plans in preparation bring present zoned capacity very nearly to this level, although there is insufficient ground-oriented housing. The Regional Context Statement identifies both these areas where growth is expected, and existing City policies, plans and initiatives which are intended to achieve this general level of population consistent with the Livable Region Strategic Plan. More detail on the relationship of the regional strategic plan to City plans and policies is contained within the proposed Regional Context Statement Official Development Plan in Appendix A.
DISCUSSION
In its consideration of the City’s ‘Development Plan to Comply with the Requirement for a Regional Context Statement’, on May 11, 1998, the Board of the GVRD endorsed the GVRD staff report and its comments. This report is reproduced in Appendix B. The main points are listed in the following sections.
1. Comments on the Regional Context Statement by the GVRD Board
(a) Overall Comment
The Board notes that the Regional Context Statement confirms the general consistency between the Livable Region Strategic Plan’s fundamental strategies and the policy directions undertaken by the City. The Board also acknowledges that the Regional Context Statement provides sufficient detail to monitor Vancouver’s progress towards the specific objectives of the regional strategic plan.
(b) Comments on ‘Protect the Green Zone’
While acknowledging that the park components of the Green Zone are protected through the care and custody of the Vancouver Park Board, the GVRD Board asks that the mechanisms for protecting other Green Zone features be noted in the Regional Context Statement and suggests the City’s support for the Park and Outdoor Recreation System of the regional strategic plan be acknowledged. The Board also requests that some future Green Zone initiatives be identified, and suggests consideration of a process for including John Hendry Park in the Green Zone, finalising the Fraser River Estuary Management Program Area Designation Agreements, and pursuing extensions to the waterfront walkway system.
These suggestions have been included in the proposed Regional Context Statement Official Development Plan in Appendix A.
(c) Comments on ‘Build Complete Communities’
There are no comments on this section of the Regional Context Statement.
(d) Comments on ‘Achieve a Compact Metropolitan Region’
The GVRD Board acknowledges that the City of Vancouver’s plans and policies allow for a population of approximately 635,000 people, and that this is consistent with the growth management objectives of the regional strategic plan.
The Board notes that the existing zoned capacity for 11,000 ground-oriented housing units (updated subsequently to 12,000 units), is substantially less than included in the growth management objectives of the regional strategic plan. The Board proposes a review, in cooperation with the GVRD, to determine which units in the city now classified as apartments might be reclassified as ground-oriented units.
While there may be some issues of classification, such a review will not reduce the shortage of ground-oriented housing in the city. Instead, the wording in the Regional Context Statement proposes the City collaborate with the GVRD in working to identify design features which could be incorporated in new apartments to give them those characteristics which are sought in more traditional ground-oriented housing. Such a study could help both the City and the development industry to meet the future demand for this type of housing. It is hoped that this wording will be acceptable to the Board.
(e) Comments on ‘Increase Transportation Choice’
(i)The Board acknowledges the assertion in the Regional Context Statement that the City’s Transportation Plan supports the goals of the Transport 2021 plan, and is generally consistent with its transportation and mode split targets.
(ii)The Board asks that the City confirm its support for a future LRT connection between Vancouver and Richmond. This is consistent with the Vancouver Transportation Plan and the addition has been made to Section 5.2 (5) of the Regional Context Statement.
(iii)The Board asks that the City acknowledge its support for regional strategic plan’s transit priority and HOV (high occupancy vehicle) facility proposals.
The wording of the amended Regional Context Statement addresses this comment in Sections 5.2 (4), and 5.2 (7).
"Proposing transit improvements and priority measures, including bus-only lanes, if and when warranted (Transportation Plan Sections 3.3.4, 3.3.7, 3.4.5) . . . . . " Section 5.2 (4)
"Supporting bus only lanes in the city, when and where these are considered appropriate, but these will generally not be used for car pools, except in limited circumstances of short queue jumpers. In these situations, the Transportation Plan proposes an occupancy minimum of three people for private vehicles (Transportation Plan Section 3.3.7). The City expects to work with the Provincial Ministry of Highways and Transportation, and the GVTA, towards appropriate measures for connecting City streets to regional high occupancy vehicle facilities." Section 5.2.(7)
Although this wording falls short of full support for what appears to be the regional proposals, it is consistent with the adopted policy contained in the Vancouver Transportation Plan.
The regional proposals for high occupancy vehicle lanes (HOV lanes), are shown on page 15 of the Livable Region Strategic Plan of April 1996. The HOV facilities shown on page 15 suggest HOV lanes along Grandview Highway/12th Avenue, as far as Clark Drive. These facilities differ from the current proposals from the BC Transportation Financing Authority, which are now being studied by the City.
(iv)The Board suggests the Regional Context Statement include reference to the City’s support for Transportation Demand Management (TDM) strategies, car pool programs, and on-going monitoring of mode splits in cooperation with the GVRD.
The wording of the amended Regional Context Statement addresses these suggestions in Sections 5.2 (1), 5.2 (7), (quoted above), and 5.2 (15).
"Supporting the regional transportation plan for limiting road expansion and promoting transportation demand management measures (Transportation Plan, Sections 3.2.2); Section 5.2 (1)
"Monitoring and reviewing transportation services and targets (Transportation Plan, Section 3.10.1). As opportunities arise, the City expects to work towards cooperation on data collection with the GVRD and other agencies as appropriate. Section 5.2 (15)
2. Comments from other agencies
The Vancouver Charter requires that a draft ODP be circulated to the School Board. The comments of the School Board and other agencies commenting are included in the following sections.
(a) Vancouver School Board
The Vancouver School Board in its comments on the Regional Context Statement, requests the City give attention to improving communications between the City and the School Board in relation to redevelopment proposals. The School Board requests that in consideration of proposals for the development of family housing, that the City give regard to the existing school capacity in the area, and the likely implications of redevelopment on the demand for school services.
(b) Vancouver Board of Parks and Recreation
The Regional Context Statement was prepared in collaboration with Park Board staff, and The Park Board has no further comments at this time.
(c) City of Richmond
The Council of the City of Richmond requests that the Vancouver Regional Context Statement acknowledge the Vancouver-Richmond transit corridor and Rapid Bus. These references are made in Sections 5.2 (4) and 5.2 (5) of the amended Regional Context Statement. A copy of the Richmond staff report and Council resolution is included in Appendix C.
(d) City of Burnaby
The City of Burnaby has not made specific comments on the ‘Development Plan to Comply with the Requirements for a Regional Context Statement’. A copy of the report by the Burnaby Director of Planning and Building is attached in Appendix C.
(e) City of North Vancouver
The City Council of North Vancouver supports the adoption of the ‘Official Community Plan - Regional Context Statement of the City of Vancouver’ as an ‘Official Development Plan by by-law’. A copy of the Council resolution is contained in Appendix C.
(f) Provincial Agricultural Land Commission
The Commission is pleased to note that the Regional Context Statement reiterates that the City has zoned the Southlands area as a limited Agricultural District and supports its retention in the Agricultural Land Reserve. The Commission is satisfied that it is consistent with the ALC Act in the context which permits the landowners in the Agricultural Land Reserve in the Southlands area to subdivide or use their properties for non farm purposes, as in the City’s RA-1 District Schedule in By-law #6223. The letter from the Agricultural Land Commission is included in Appendix C.
3. The process for adopting the Official Development Plan
Other municipalities in the GVRD are governed by the Municipal Act. Under this legislation, municipalities adopt, by by-law, an Official Community Plan. The Regional Context Statement is then adopted, by by-law, as an amendment to the Official Community Plan.
The Vancouver Charter does not require the City to adopt an Official Community Plan. But the Charter does make provision for the adoption of the Regional Context Statement as either a Development Plan (Section 561(4)(b)), or an Official Development Plan (Section 562(2)). An Official Development Plan is adopted as a by-law. The significance of this is that Council is bound to make subsequent decisions consistent with the Official Development Plan. If Council wishes to adopt a resolution or take action at variance with the provisions of the ODP, it must first change the provisions of the ODP.
In order that the Regional Context Statements of all municipalities have a similar status, the GVRD has requested the City adopt the Regional Context Statement as a by-law (i.e. as an Official Development Plan).
Council has already adopted the Regional Context Statement as a Development Plan (February 5, 1998). The remaining steps in the process to adoption as an Official Development Plan are proposed as follows.
(a) Adoption of the amended Regional Context Statement
The amended Regional Context Statement attached as Appendix A, is ready for adoption by Council as a Development Plan. This will replace the Regional Context Statement Development Plan adopted by Council on February 5, 1998.
(b)Referral of the By-law to adopt the Regional Context Statement Development Plan to Public Hearing
The process will include a standard public notification of the Public Hearing in local newspapers. Copies of the Regional Context Statement will be available from the City Clerk. No public information meetings are proposed as the Regional Context Statement refers to policies already adopted by Council, each of which has been the subject of a substantial public program.
The Public Hearing would be the opportunity for anyone to address Council in connection with the Regional Context Statement.
(c)Referral to the Board of the GVRD
Following the Public Hearing, and prior to final reading, the Regional Context Statement Development Plan may be referred to the Board of the GVRD for acceptance.
(d)Adoption of the Regional Context Statement as an ODP
Once accepted by the Board, the City Council may give final reading to, and adopt, the Regional Context Statement as an Official Development Plan.
CONCLUSION
The Regional Context Statement is an important planning document because it demonstrates how the City’s policies conform with and serve to implement the Livable Region Strategic Plan. All municipalities which comprise the Greater Vancouver Regional District have prepared, and most have adopted, Regional Context Statements.
The policies referred to in the Regional Context Statement have been previously adopted by Council as part of other planning programs, such as CityPlan, the Central Area Plan, the Industrial Lands Policy and the City Transportation Plan. No new policies are contained in the Regional Context Statement.
With changes requested by the Board of the GVRD and other agencies made to the extent possible within the wording of existing Council policies, the Regional Context Statement is ready for referral to Public Hearing.
The GVRD has asked that following the Public Hearing, and before final reading, that Council refer this Regional Context Statement Development Plan to the GVRD Board of Directors for acceptance. Once accepted by the GVRD Board of Directors, Council may then adopt the Regional Context Statement as an Official Development Plan.

SUMMARY OF CITY POLICIES

D. 1 Central Area Plan
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 greater emphasis on walking, biking and transit.
D. 2 CityPlan
On June 6, 1995, Council adopted CityPlan to guide policy decisions; corporate work priorities, budgets, capital plans with respect to neighbourhoods, community services, transportation, economy, environment, central areas, decision-making, and agreements between the City of Vancouver and the Greater Vancouver Regional District with respect to the Livable Region Strategic Plan.
D.3 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:
·100·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;·100
·100·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;·100
·100·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·100
·100·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.·100
D.5 Industrial Lands Policy
On March 14, 1995, Council adopted the Industrial Lands Policy 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.
D.6 Greenways Plan
City Council approved the Vancouver Greenways Plan on July 18, 1995. City Greenways join important city-wide destinations and create a network that covers the entire city. They are being developed by the City with the support of the public, and are funded through City funds, with contributions from major developments, adjacent neighbourhoods and sponsors. The proposed network of 14 City Greenways, is approximately 140 km long. Street rights-of-way make up approximately 50% of the proposed City Greenway network. When the network is complete, a City Greenway will be no more than a 25 minute walk or a 10 minute bicycle ride from any residence.
D.7 Vancouver Transportation Plan
On May 27, 1997, Council adopted The Vancouver Transportation Plan including mode split targets which emphasise 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.
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