GOALS FOR

VANCOUVER

Vancouver City Planning Commission,February 1980

 It is not the experts but the laymen who hold the key to
11

the urban future . The basic decisions that need to be made

are political ones . They will provide the foundation to be
built upon by experts - the technicians , planners, sociologists,
and civil servants . An urban area itself, as any of these
experts can tell you is incredibly complex .. . but the
political questions that we have to decide are pretty straight-
forward. What kind of cities do we want? Wbat sort of lives
do we want to live? How should our wealth be distributed?
And what stands highest in our list oF priorities?
Boyce Richardson in
"The Future of Canadian Cities''

"The city defies simple definition . It is the place of

intellectual and economic interplay, of racial and social
melting, and of conflict. Tt is where political strands are
woven together , where cultures and cultural interests meet .
It is a place of formlessness . It is magnet, market place,
melting pot, factory , foundry, incubator, auditorium, theatre ,
arena, battleground . It is a place of togetherness and an
island of loneliness . Tt is a land of promise and a place of
despair . If the promise is to be realized and the despair
overcome, the city must be able to draw upon the skiils ,
knowledge and good will of many.
Hilda Symonds in
11
The Teacher and The City"

nwe must make plans ; who looks not before , fi.nds himseli
behind . "
Publilius Syrus, 44 B . C .
Quoted as preface to
"A Plan for the City of Vancouver,
British Columbia , 1930. "
Preface
Th~ value of this document may lie as much in what it is , as
in whaL it says . As a statement of goals for the future of
Vancouver it represents the collective vision of over 5 , 000 citi-
zens who have taken the time and effort to articulate for us their
values ~nd beliefs about what kind of a city this should be . For
this alone it has extraordinary and historic significance.

Because it deals with values . . . what should we keep , what

should we change, what needs and aspirations have still to be met
. . . rather than reactions to specific or transitory issues an
important asswnption we make is that as a "touchstone" for future
decisions and policies many of the goals have depth and durability .
We are confident that the methodology used to collect and
validate the information base reinforces this assumption .

'l'here is general affirmation of the notion that we live in

one of the most functional and beautifully-endowed cities in North
America . Compared to others our problems are minor and still
solvable , many of our options are still open , and our opportunities
are not limited by having made irreversibly bad decisions in the
past. But there is concern expressed that these parameters may
change if we fail to protect those special qualities of scale and
natural setting which give Vancouver its unique character .

The Planning Commission , in its role as a citizen body

charged with developing this statement of goals , could not have met
its mandate without the extensive and thoughtful input from the
general public , the 106 Program Associates , and the many groups
and associations which provided us with written briefs . We owe a
very great debt to our own dedicated and overworked staff , to staff
of the various city departments who gave us valuable technical
input, and to City Council for their foresight in perceiving the
need for this citizen dialogue1 backing it with a written by-law ,
and continuing to support i t .

Peter Ross ,
Chairman.
Acknowledgements
The Goals for Vancouver Program has been made possible by
funding from the City of Vancouver and the Province of British
Columbia under the planning grant progrc1m of the Ministry of Muni-
cipal Affairs . However, the development of the Goals Program has
depended upon the volunteered goodwill and support of many indivi-
duals and organizations, without whose concern for Vancouve r no
statement of a desired community could have been possible .
The Commission, therefore , wishes to express appreciation and
thanks Lo all participants; to the City for support in direct fun -
ding and co-operation and assistance by City staff; the Provincial
Ministry for funding and constant understanding of the purpose of
the program; and to the various corporations who helped with the
outreach to the community: Safeway Stores, Super-Valu , Woodward's
Stores, McDonalds , the Eikos Group, Plimley-Dodge, many small
businesses and organizatlons, and the City libraries and community
centres . The Vancouver Composite Committee sponsored meetings and
an exhibit and thanks are due to the civic organizations who make
up the Committee and their representatives on it , and to
Mr . Jack Webster who kindly recorded the audio portion of the
exhibit .
In the production of the report a special note of thanks goes to
the commission Secretary , Elizabeth Garland, and to Keith Bennett
and Kiyoshi Otsuji for graphics and layout . We are also grateful to
Mr . Len Norris and the Vancouver Sun for permission to use some of
Mr . Norris's cartoons.

The Vancouver City Planning Commission 1979-1980

Chairman: Peter Ross* Vice- Chairman : Joyce Catliff*

John Auersperg Myrna Kitchen
Charles Christopherson John Maco . Lecky*
Donald Fairbrother Jo-Anne Lee
Larry Herbert* Margaret Pigott
Alderman Donald Bellamy Alderman Helen Boyce
Commissioner Ian Bain (Parks Board)Trustee Peter Hebb (School Board)

Hilda Symonds,• Executive Co-orcdnator, VCPC

Elizabeth Garland, Secretary, VCPC
Daniel Janczewski , ~ Project Manager, Goals for Vancouver
*Members 0£ Goals Program Steering Committee which also included
Ted Droett.boom, Associate Director, Overall Planning Division ,
City Planning Department .
Table of Contents
INTRODUCTION

The Context of Planning . . . . . . . . . . . . . . . . . . . • . . • • . . • . . . . . . . . 2

Goals - One Key to Rational Decision-Making ........ .... .•. 3
ELEMENT I - THE CITY AS A STAGE
Natural Setting . . .. . ... .. ... ... .. . . . .. . •. . •. . . . . . . . . . . • 6
Views . . .. . . . . •. . . .. . . . . . . . •. . •. . . . . . . . . . . .. . . 7
Landscaping .. .. . ... ... ..•.. .. .•.................... 8
Parks and Open Spaces • . . . • . . . . . . . . . . •••. •••••••.. ••••. ••. . 9
Waterfront Access • • • • . . • . • • . . . • . • • . . • • • . . • . • . • • • • • • • . • • . . 10
The University Endowment Lands ...... .... . ................. 11
Building Heights .................. . . . . . . . . . . . . . . . . . . . . . . 12
Pollution . • • . . . . . . • . . . . . . . . . . . . . . . . . . . • . . . • . . . . . . 13
Noise . • • . • • . • . . • . . . . . . . . • . . • . . . • • • . . • • . • • . . . . 14

ELE.ME:NT II - THE PEOPLE OF TRE CITY

Size of Population . . . . . . . . . . . . . .•. .. .. ... ... ..... .. ... ... . 16

Soci.al Mix ...•.•.••..•. ... • ...........•... ... . ... . l7
Families and Children . . . . . . . . . . . .... ... . .. . ... .. . .. .. .... . 18
Elderly . . . . . . •. . . .. . .. ... . ... .. .... ... ... ... .. . 19
Disadvantaged ............. .. ... .. .. .. . ... .. . .. ..•. .. . 20
Ethnic Mix . . •. . . •. . . •. . •. •. . . . •. •. . . . . . •. .. . .. . . . . 21

ELEMENT III - THE PARTS OF Tlill CITY

Downtown • •• • •••• •••• • ••• ·• • • • • • • • • .. • • • • • • • • • • • • • • 2 4

Neighbourhoods 25
Commercial Areas .. ..... ............... .... ...... ...... ... 26
l:iousing 27
Improvement Areas 28

ELEMENT I~ - THE ECONOMY OF THE CITY

Jobs and Employment • . • • . • • • • • • • • • • • • • . • • • . • • . . . . . . . • . . . • • • 30
The Port and Trade 31
Tourism 32

ELEMENT V - LEISURE IN THE CITY

Access to Natural Areas . .... ..... ..... .... ........•....... 34

Recreation 35
Libraries ... . ...... ........... . , 36
Culture and the Ar ts . . . . . . . . . . . . . . . . . . . . . . . . • . . . . . . . . . • . . . 37
Stadium 38
ELEMENT VI - MOVEMENT IN TUE CITY
Transit • •• •• •• ••• •. • •• ••. . . ••• • •• • . ••• • . • •••• • • 40
Pedestrian Atmosphere .... . ............ .. . ..... ..... ...... . 41
Bicycles .
. . . . . . .. . .. . ... ..................... ... .
•· 42
Trucks 43
ELEMENT VII - SERVICES TO PEOPLE OF THE CITY
Health ••••••••••••••••••••••••••••••••••••••• 46
Educat ion 47
Justice 48
Safety and Security 49
ELEMENT VII - SERVICES TO PROPERTY OF THE CITY
Clean City • • • • • • • • • • • • • • • • • • • • • • . • • . • • . • • . • • • . • • • 52
Utilities 53
Fire Protection 54
Animal. Control 55
ELEMENT IX - SPECIAL CONCERNS OF THE CITY
Heritage . ... .. .. ... .. .. .. . ... . ... .. . ... ... ... .. 58
Energy •. . . •. . •••••••••••. ••.•. . . •.• . . •. . . . •. • 59
Farml a nd .•.. .. .. ..•. .. . .. ... . .. .. ... ... ... ... .. 60
Character and 1dentity ..... . . . ....................... . ... 61
Quality of Life ..•.................................... 62
ELEMENT X - MANAGEMEN'l' OF TUE CITY
City Governmen t .. .. .. .. ..•... . .. .. .. .. .. ... ... ... .. . .. 64
Government Efficiency ....... ... ... . .... .... . ............. 65
Taxes . . . . •. . . •. . . •. . . •. • . •. . . . . •. . . . . •. . . •. . 66
Electoral Process ........ . ... . . . . . . ... .......... . ... .. .. 67
Resident Participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 68
Greater Vancouver Regional District •. . ..•.•...... . . . . . . . . 69
Regulation •.•.. .•.. .. ... ... . .. . .. . .. ... ... ... ... . 70

The following reports were completed in support of the Goals

for Vancouver Program and are available either in the Office
of the City Clerk or in the City Planning Commission office.
Goals for Vancouver : Technical Report on the First Outreach .
Oec/1978 .
Verbatim Transcripts of Responses of Programme Participants .
Dec/1978.
The Beginning : First Round Goals Statements . Feb/1979.
Survey of 1,000 Residents . sept/1979 .
Survey of 762 Residen t s . Feb/1980 .
Group Submissions to the Goals for Vancouver Program. Feb/80 .
A Summary : Surveys Completed for the Goals for Vancouver
Program . Feb/1980 .
The Context of Planning

The first two months of the Goals for Vancouver Program were,
frankly , filled with uncertainty. J\s a community planner, I was
aware that. the setting or goals as a basis for governmental
management was a subject of debate . Research showed that,
theoretically , lhe establishing of objectives is the foundation of
all planning . Management theory also suppo.r ted this approach.
The thrust of these statements was : ''Row do we know what to do,
and why are we doing what we are doing , unless we know what it is
we are trying to accomplish?"
During the course of the program, because goals were on all
our minds , it became incr:easingly apparent that the word "goal"
was everywhere. The British Columbia Municipal Act requires a
stat~ment of civic goals in all community plans; candidates for
election constantly describe their goals; thousands of citizens
obviously knew what Goals £or Vancouver meant .
Accepting the premise that goals could be relevant, could
this approach be used in Vancouver? Vancouver completed Canada's
first comprehensive city plan in 1929 and many parts of this plan
have been implemented . But since that time, little has been
articulated in long-range planning for the city .
Using a goal - setting exercise could contribute to an under-
standing of what it is that Vancouver, as a human community and
physical expression, is striving to become. Without a clear
understanding of what a community wishes to become, the actions of
government decision-makers, staff or elected, may not reflect or
reach for what it is that a community values . It is a fact that
at this time no city residents have available to them a statement
of intent of what Vancouver is trying to become. Experience
indicates there is value in having this statement of "Vancouver
the Future City" involved in day-to-day decision-making . My bias
indicates that this statement would be of interest to citizens .
The City Planning Commission by-law calls for obtaining
"ideas and opinions of the citizens of the City of Vancouver about
the fut:ure of their city" . The many thousands of Vancouver people
who took part demonstrated that they understood the importance of
future goals . From the eloquent to the halting , a consistency
of perception was tapped. Anyone who takes the time to read the
thousands of essays written on Vancouver's future will appreciate
this fact .
Sixteen months later , after accepting the position of Project
Manager for the Goals for Vancouver Program, there is no longer
uncertainty. As one facilitator of this process the experience
of working with the cit izens of the Vancouver City Planning
Commission and hearing from the residents of Vancouver h~s been
a strong affirmation of my belief that people are the most vital
part of the planning process .

n Daniel

2
Goals - One Key
to Rational Decision-Making

This Statement of Goals for Vancouver bears little semblance

to the typical report prepared 1or consideration by decision -
makers or the community . Its difference lies in that it deal s
with values . Most important, it is a statement of what, as a
community, we desire for the future of Vancouver .
The issues of cost, trade-offs , or priorities are intention-
ally not dealt with . These matters will always vary according to
situation, timing and opportunity. What we feel to be of para-
mount importance is that a clear indication of direcLion and
purpose be established for the City of Vancouver. Without the
goals that follow in this report decisions could possibly be made
that bear little resemblance to why we have chosen Vancouver as
a place to live .

The basic use of these Goals for Vancouver is to establish

an articulated direction and purpose so that the residents of
the city have a clear understanding of what the commu.ni.ty values
and is trying to accomplish . Thus, in the first place , the
goals are targets ~cling as an expression of our urban life
objectives - of what we desire nnd to which our efforts should be
directed.
secondly , this Goals Statement is a framework for evaluation
of actions that will be completed in the city. Considerations
such as a five - year plan , the zoning by-1aw , an annual budget, or
any other major program can be gauged against the expression of
community targets . Unknown decisions at this time can be
measured against the Goals Statement to determine if they are
helping or hindering the image of the city that the community
values .
The goals that are presented here are the ideal expression
of what Vancouver is hoping to become. Following the goal state-
ment in each section, some implications for policy are listed .
In some instances, these are believed to be the kinds of initial
steps which should be considered in order to accomplish the goals .
Others represent important concerns that will require discussion
and resolution as policy is made . It is recognized that there are
likely to be interactions between different sections that will
have to be dealt with in the final analysis . However , we trust
that from these statements further programs and actions can be
deve1oped within a framework that supports an image of the place
that Vancouver residents desire thejr city to be.
A statement of goals is not a static entity; it will conti-
nue to be modified as we continue to discuss our objectives .
The expression of Goals for Vancouver is most concerned with the
EundarnenLal aspects of our , or a ny city's , reason fo r existence :
people , places and pursuits .

3
The Process

The Vancouver City Planning Commission (VCPC) celebrated its

50th Anniversary in 1976 . Tts role was redefined in a 1977 City
By-Law which reads, in part:
"To obtain ideas and opinions of the citizens
of Vancouver about the future of their city; to
prepare , and thereafter keep up to date, a set
of goals for the City which can be used to
guide action for change , and to submit these to
Council annually."
tn developing a strategy to meet this mandate, the Commission
determined that a key factor would be how credibly we could
demonstrate that any statement of goals was based on a broad range
of citizen input . The answer to the question : "Whose goals are
these?'1 must be beyond any doubt ' 1 The citizens of Vancouver'' .
To this end the VCPC recognized that public input received
through various methods of communication - - the generally distri-
buted brochure , public meetings , written briefs , etc. -- must be
supported by a statistically-valid survey .
The questionnaire used both fort.he survey and the public
brochure , was developed from a series of meetings we held Hitb the
106 Program Associates i n 1978. These citizens, se l ected to be as
nearly representat ive as possible of the city as a whole , gave us
insigh ts into public values and be.liefs and set the parameters for
the l arger publ ic outreach program which took place in the summer
of 1979 .
100 , 000 b~ochures were d~stributed in all parts of the city,
through community centres, libraries, supermarkets , department
stores , and 0~1er retail and commercial enterprises . Without t.he
help of any paid advertising support, we received over 3,000
complet ed questionnaires through this distribution , mostly mailed
at the respondent ' s own cost, and over 70% of them added lengthy
comments on the blank space provided for this purpose . We also
invited briefs from over 300 organizations .
The survey, conducted in the fall of 1979 , was based on perso-
nal interviews with 1,000 households selected at random through the
city to match census tracts. Less than 5% of those contacted
declined to participate . The interviews lasted an average of 40
minutes.
Following collat ion and analysis of this input , we conducted a
further survey of 750 households in January , 1980 , to clari£y some
goals , and also contacted over 3 , 000 of our m.ail respondents,
receiving back a remarkable 1 , 700 written responses which were also
collated and analysed . Thus , an unusually extensive amount of data
h as been used in preparation of the statement of goals .

4
Natural Setting
GOAL : Maintain access to and enjoy-
ment of natural setting and environ-
ment which is perceived as one of the
Vancouver ' s peerless natural principal components of Lhe quality of
setting is a permanent gift from life in Vancouver .
nature . So massive and close are the
North Shore mountains that no amount
of human folly can ever obliterate
them . Thus , vancouverites live in a Some implications for policy
city and an atmosphere which preserves
man ' s close identity with nature (and (l} Preservation of all bodies of
the frontier) and this natural water if possible from pollution
presence has shaped the attitudes and and inappropriate development.
mentality of its citizens . They Ancient creek beds in the city
rejoice in the active pursuit of should be cleared and restored
fishing , boating , yachting , skiing, to their natural forms, lakes
swimming , hiking and climbing - as such as in John Hendry Park
well as the simple enjoyment of views should be saved from the proximity
and walks . of transit .
Vancouver ' s setting does, of
course , pose problems . Its land area (2) Preservation of water edges and
is restricted by water and mountains beache$ for public access or
on three sides and property values are viewing. (See Access to Water)
correspondingly high , with space for
growth no~ limited to replacement and (3) Extension of sea wa]ls and
redevelopment. view-blocking high walkways.
b uildings are more keenly resented here
than e1sewhere a nd development must be (4) Discouragement of logging in the
sensitive at all times to view view areas of the North Shore
potential . More modest natural mountains.
features such as streams , ravines and
h i l ls 1 which are lovingly groomed in (5) Conservation of Wreck Beach in
other urban centres are often unappre- its natural state .
ciated here , if not virtually ignored .
There is concern that the visible (6) Preservation of low density
mountainsides on the North Shore be agricultural reserve lands on the
preserved from unsightl y Fraser Flatland and below
overdevelopment. Southlands.
Vancouver residents were asked in (7) Maintenance of the public golf
our first contact, if they believed it course system as "green lungs"
was important that the city have a within the city and within the
unique character and identity . Eight pocketbooks of most citizens.
out of ten believed that it was, and
in a second outreach, were asked to
identify which component -- natural
setting , man-made form and buildings ,
or the mix of people , -- contributed
most to the uniqueness of Vancouver .
Natural setting, not surprisingly ,
was identified by 65\ of respondents
as being most important, while the
other t wo reasons split the remaining
35% . Perhaps as significant was the
response in the general survey --
access to natural areas and to
outdoor activities such as boating ,
skiing , and hiking, ranked third in
choice as to what should not change.
6
Views
GOAL : Views of the mountains and water
should be protected .

Response to all aspects of the A fundamental difference between

survey indicated that preserving views
of the mountains and water was about
the most important objective for
residents of Vancouver . (96t) A
number of civic organizations also
affirmed the need for view protection .
There is a strong feeling that without
these views, Vancouver would be much
like Many other cities in its physical
structure.
Views are believed to have a
direct economic benefit in relation to
tourism and development preferences.
The attraction of Vancouver as a place
to live is strongly influenced by the
natural environment and its visibility.
Views can be frorn a living-rooc, office
or hotel window, street enc1, or hill top
and all are important.
This means that very real problems
face the preservation of views in
Vancouver with the ever-present need
for economic development and re-
building for one reason or another.
Redevelopment pressures are increasing
at street ends where historically-
accepted views exist. Views from
bridges have always been considered
important but in recent years have
bcco~e endangered. Another issue is
nPighbourhood height limits established
by historical building patterns . ln
many areas, new construction is
blocking traditional views . Air
pollution is perceived as becoming a
severe problem; there are many ~ays
in the year when our mountain back-
drop is completely obscured .
Vancouver and most other cities is in
its natural surroundings. That this
environment should be visible is a
rnajor element of the quality of life
in our city .
Some implications for policy
(1) Definition and inventory of the
most significant view sites and
the vantage points that provide
them .
(2) Consideration of transfer of
development rights as a means of
protecting view-sensitive areas.
(3) Protection of vistas from bridges
and their approaches.
(4) Tree-planting carried out in such
a way that significant views are
enhanced not obscured .
(5) Eventual undergrounding of
utilities in all parts of the
city on an equal basis.
(6) Protection/preservation of street-
end views .
(7) Firm pollution control to reduce
atmosphere contamination so that
the city and its surroundings
remain visible at all times .
(8) Assessment of impact on view in
major new developments prior to
development approval.

Another problem to be resolved

will be the definition of views for
"whom" . Tall buildings block high
views but can provide views of the
surrounding area . Lower buildings
can preserve d~stant views, but can
obstruct the view from street level .
The important views of the city from
both public spaces and residences have
not yet been identified.
7
Landscaping
Some implications for policy
( 1) Priority in civic landscaping to
areas of the city deficient in
In a city like Vancouver so well- flowers, trees and greenery .
fitted by its coastal climate for
year - round growth and cultivation of (2) Continuation of the policy
a r.lch and varied vegetation , it is requiring landscape plans to b~
not surpr.ising that both ln the submitted with all development
statistical survey and in the r.esponsc plans .
to the public nuestionnaire ,
residents placed a high value (80%) on ( 3) Strict enforcement of civic
landscaping and qreenerv . Nith clean-up by-laws .
evidence all around in the form of
thousands of different flowering (4) Less standardization in types of
plants, shrubs and trees, with a tra- tree- planting on streets to allow
dition of well- kept gardens and parks, for the enhancement of local
the thrusts are to maintenance and character and differentiation of
extension rather than initiation . neighbourhoods .
Historically important stages (5) Preservation of view corridors .
have been the far-sighted preservation
of Stanley Park by the early city ( 6) Provision of incentives to
fathers , the concern for treed streets beautification of commercial
in the original Point Grey Municipali - areas and industrial parks .
ty , the initiative of the downtown
business community in regard to tree- (7) Recognition that in some circum-
planting on major downtown streets, stances it may be particularly
and the on-going presence of an desirable to plant certain types
elected Parks Board dedicated not only of trees even if they create
to provision of major parks and recre- enginee~ing problems with
ation but to street trees , boulevardo , decision made on cost/benefit
verges and so on. basis.
To ensure the development of a (8) Formation of landscape advisory
city where attractive landscaping is group to advise and identify
found in all areas it is necessary to beautification opportunities .
have available or assi3n urlequatc
funds fo:r such work in both puhlic
and private sectors . Pride in
private open space needs to be fos-
tered by incanl:ives and neglect
deterred by enforcement of relevant
by-laws . Strong pressures for
devclooment can also affect the
desirable space allowance for land-
scaping around and within structures .
Tree roots and heavy leaf falls often
of very attractive varieties can be
sources of trouble for pavement and
sidewalk maintenance and in relation
to underground utilities .

G01\L : That trees, flowers and natural

greenery be part of the landscaping in
all parts of the city .

8
Parks and
Open Space
Respondents in all aspects of the
Goals Program have expressed strong
appreciation of the value of
Vancouver's parks, their careful
development and management, and their
availability to all. However, so.me
inportant concerns have been noted:
Lack of access to Burrard Inlet
and Fraser River industrial water-
fronts east of Granville Street;
deficiencies in neighbourhood park
space especially for playing fields,
e.g. in Fairview, Mt. Pleasant, and
Grandview/,•loodlands, and in district
parks in the northeast sector and the
south sector; vandal!srn, rowdyism,
£ear of molestation near heavily
forested areas, "parties" in parks
where there may be use and misuse
of alcohol, drugs; drainage problems
in playing fields and heavily used
areas.
Other types of concerns r.elate
to: ongoing maintenance costs after
development under special programs;
conflict between demolition of
housing and development of parks on
land bought for park purposes; loss
of playfield and playground space
through sale of school yards.
People have recognized a need for
innovation rather than standard
solution (c . g: West End heritage park);
the special needs of high density
areas where there are a majority of
renters with limited or no private
outdoor space .
GOAL 1: Ensure adequate park acreage
on good sites to provide for parks of
a neighbourhood, local, district,
waterfront, and regional character to
satisfy outdoor recreational and
amenity needs.
GOAL 2: Provide for innovative park
designs or park amenities in all
public open space, such as linear
parks, mini parks, street landscaping .
9
GOAL 3: Maintain existing and new
parks to a standard in keeping with
the desired image for Vancouver.
Some implications for policy
(1) Development of an updated
program for acquisition and
development of parkland with
emphasis on an updated formula
for the ratio of parkland acreage
{in various categories) to number
of people and type of zoning
density.
( 2) Action re deficiencies in dist.rict
parKs, particularly int.he north-
east and southern sectors .
(3) Provision of a variety of
appropriate and adequate neigh-
bourhood parks.
(4) Preservation and rehabilitation of
creek beds and ravines as nuclei
of linear park and trail networks,
and e>:amina tion of ways to reclaim
the east end of False Creek.
(5) Retention of school fields and
playgrounds in sale of school
property if part of neighbourhood
parkland quota.
(6) Encouragement of innovative forms
of park space (e.g. m~ni parks,
linear parks, adventure play-
grounds .
(7) Emphasis on waterfront access and
mini parks on Burrard Inlet and
the Fraser River east of Granville
Street, with opportunities for
fishing and boating where feasible.
(8) Development of all-weather
surfaces for amateur sports .
Waterfront Access
The people of Vancouver have a
deep appreciation anc love for their
city and its natural setting.
Residents in all parts of the city
repeatedly identify the importance
of its two do~inant natural elements -
water and mountains. While ~any ,
especially in the northwest sector,
are fortunate enough to live close
by , most residents must journey some
distance in order to enjoy direct
contact with the water 1 s edge .
Between 60\ anc 70% of r~spondents
declared public access to water to be
important . The age group, 30 to 65
plus, tended to find it more important
and, in order of frequency, it was the
eighth most often raised topic on the
back page of our questionnaire . The
Commission ' s second outreach indicated
the public's priorities for future
development of public waterfront access
concentrated upon the Burrard Inlet
(especially downtown) and then the
Fraser River and Point Grey Road .
Conflicts wit::h port activities;
shipping lanes and security are seen to
be a major problem to new water access.
Unrestricted public presence in port
and industrial areas on the water is
undesirable and can create conditions
leading to accidents and pilfering.
A second concern is the very real
imbalance in access between east and
west sides of the city. The historic
location of port ~nd industry cannot
be undone, but the inequity and
frustration for east side residents
must be recognized .
A problem of acquiring public
access on our most limited and
valuable property is the inevitability
of high land cost . However, a
tendency to think in too large or
grand a scale for new access is a
perceivec probleM. Waterfront access
can be ~odest in size without
involving massive park developrr.ent
and property acquisition and in such
areas as the working waterfront non-
green access in the form of look-out
points could be provided .
10
GOAL : Enable Vancouver residents to
en'3oy more fully their natural heritage
of sea and river by increasing water-
front access in areas where it is
.restricted.
Some implications for policy
(1) Preservation of all existing
public access to the waterfront
and the river, including street
ends.
(2) Pursuit of a policy of. acquiring
some additional public access to
waterfront areas with the
priorities assigned to Downtown
eurrard Inlet, the rest of Burrard
Inlet and the Fraser River.
(3) Pursuit of a long range objective
of acquiring waterfront lots in
order to create uublic access
points, viewing spots and, where
feasible, opportunities for active
and passive recreation .
(4) PrP.vention of the upzoning of
waterfront land and therefore its
alienation from public use unless
justified by compelling reasons .
(S) Attempts to confine the working
port ana river front to water-
related activity and to satisfy
public access here only by
development of small scale
observation decks and walkways.
(6) Control of landfill .
(7) Continuation, as a long range
policy, of the gradual acquisition
of properties on the north side
of Point Grey Road . In the
meantime, improvement in existing
access to the heach .
The University
Endowment Lands
Some implications for policy
(1) As a regional park, responsibility
for park ~~nagement by the Greater
The University Endowment Lands Vancouver Regional District with
were originally established to be a input from the City of Vancouver.
source of support for an eY.panding
learning institution. However, focus (2) Preservation of the natural
on the Endowment Lands as another features, such as streams, ponds,
type of resource has become wildlife areas.
increasingly oopular with the public.
About three-quarters of Vancouverites (3) Improving the access to the park
involved in the Goals Program from for the general pooulation .
all parts of the city, believed the
preservation of these lands for park (4) Consideration could be given to
purposes to be important . some development of housing or
university-related uses that do
There has been some conflict with not affect areas needed for park
the Lands being maintained as park, and open space needs .
coming mostly from development
pressure to meet housing demand and
expansion of tbe University of British
Columbia and its related institutions.
The lack of new growth areas in the
city c aused consideration to be given
to building on the Lands . The
Musqueam Indian Band also has land
claims in the area. The transport-
ation corridors running through the
lands have also been expanding and
eroding the park-like setting .
Responsibility for the University
Endowment Lands , no matter what its
future, has also been a matter of
concern as to whether it should be the
University, the Provincial Government,
the Greater Vancouver Regional
District, or the City of Vancouver .

GOAL : Development of the greater part

of the University Endowment Lanas as
a regional park.

The Endowment Lands are a major

open space and recreational resource
to the entire region . Acquisition of
land for new regional parks near to the
urban core will become increasingly
difficult, if not impossible . Stanley
Park is already experiencing severe
over-use. As population growth e~pands
additional park space of this type will
be a requirement.

11
Building Heights
GOAL: Define clearly those areas
where hioh-rise or medium-rise
huildings are acceptahle; restrict
In many cities, creation of wind them in other parts of the city;
tunnels, loss of sun penetration, review from time to time.
chanae in neighbourhood character, and
other issues have been elencnts in the
ongoing debates over appropriate
hui.lding heights . Some implications for policy
In Vancouver, this issue is (1) C'ity-wide view analysis and
largely related to what has aopeared district character definition
throughout our public dialogue: our that clearly shows areas where
quality of life and character of the hiqh-ris~ or merlium-ri~c building
city that is tied to the natural is unacceptable .
setting. The loss of views or any
change to the relationship of the city (2) General limitation on ne~ high-
to t.~c sea anc mountains is ~orriso~e rise construction to areas where
to residents. It is not the nuMber they have been establishef
of storeys in the structure that is (Do~~town, Yest End, etc . } until
at issue, but its impact on views or the broader understanding
the imnediately surroundinq neightour- suggested above is co~plete.
hood.
(3) Encouraoe~ent of unacr.standing
The staterrents from Vancouver and use- of higher density/low-
residents showed a sensible under- risc building forms in approoriate
standina of h.iah-rise buildings in areas .
the future of the city. Our first
survey showed that there was some
apprehension a1rong residents ahou~
high-rise developments proliferating
throughout the city. ~his was probed
further in the second survey to
detenr~ne a clearer staterr.ent.
It became clear that there was
no mandate to pressure for the halting
of high-rise construction; a rruch
larger percentage of residents
indicated hioh-rise buildings were
acceptable corrpared with the number
indicating unacceptability. But ~hat
has been said is important: high-rise
development is an inappropriate
building form for many parts of the
city , blocking im~ortant views,
having a ~ajor impact on the areas
in \,·bich developments are located.
Other factors such as quality of
design, and local impacts like loss
of sunlight were also mentioned.
The effect of high-rise
dev~lopment is not well unncrstood
by city builders . For e~onorr.ic .
reasons, a developer 's first choice of
building form is often the high-rise
and the evaluation of local impact
and city-wide view effect is mini~al .
12
Pollution
The public has clearly told the
Goals Program that the natural setting
and environment creates the character
of Vancouver. They also told us
many other important things about
their attitude towards the envJ.ronment.
The reduction and control of eollution
was considered as one or the priorities
~or action in the city . rt was also an
important reason for people moving away
from the city - if pollution should get
worse. The thousands of essays about
the city that were ~eceived mentioned
pollution control as the number four
subject . When asked to rank eight
issues , including reduction o.f truck
traffic, conserving energy , promoting
government efficiency and personal
security , cleaning the water of English
Bay, the Fraser River, and the Harbour
was the first choice.
Over three-quarters of residents
rated the quality of water at beaches
as fair or poor .
Clearly ; Vancouverites with their
care for the natural setting are
concerned about pollution in the city .
Growth in population , employment
and traffic is increasing the amount
of air contaminants and is reaching
the point where mountain views are
often hazy . The natural weather
conditions that prevail in Vancouver
often accentuate the problem. Water
quality also suffers from urban
growth .
Since contamination is no
respecter of boundaries, coordinated
management of pollution control on a
regional level could be strengthened.
GOAL: Improve and maintain water
quality of the Fraser River, English
Bay, and harbour, so that it is fit
for fish, wildlife and recreational
13
This goal is not solely within
the power of Vancouver, but leadership
and support for other responsible
agencies , and improving our own
conditions is a necessary step .
GOAL 2: Reduce air pollution within
t he region .
This goal is not only important
for health reasons , but because of the
effect of pollution on the natural
setting .
GOAL 3 : Reduce land contamination and
its subsequent effect on water quality .
Land fills can be an acceptable and
safe method of disposing of solid
waste. However; care must be taken to
ensure that proper design and sites are
used to prevent leachates from entering
local waters without treatment .
Some implications for policy
(1) Opgrading of all treatment plants
that discharge effluent into local
waters , to realize the water
quality goal.
(2) Restriction of the dumping , or
piping to treatment plants, of
toxic materials that cannot be
made safe .
(3) Increase in public awareness of the
pollution issue and the place for
individual action.
(4) Begin the disseminatjon of
information on hourly and daily
air quality in conjunction with
weather reports .
(5) Strict monitoring of sources of
water and air contamination and
enforced reduction of pollutants
when t:hey are excessive .
Noise
Vancouver will tend to experience
more noise than the surrounding muni-
cipalities because of the more
concentrated activities here . Noise
can take many forms . There are some
loud or persistent noises that occur
in our city, but which are tied to
its enjoyability: the B . C . Hydro noon
whistle, the Nine O'Clock Gun, seagulls,
church bells, or music from outdoor
performances. The concern that has
been raised by Vancouver residents is
over sound that is unwanted.
(3) Development of apolicable
standards for the reduction of
noise froll' heavy vehicles, sea-
planes, and trucks .
(4) Requirement of better acoustical
design standares in multiple-
family dwellings.
(5) Sound-maskinq in outdoor areas
of heavy noise ~y provision of
such features as surging fountains
in the downtown core.

Onwanted noise was given as one

of the most important reasons that
would cause people to leave Vancouver.
The majority of residents indicated
the reduction of noise to be i~portant .
Apartment ~wellers were especially
concerned about increasing noise levels.
The noise issue is a complex one
because it is tied to the economy of
the city related to large truck and
automobile volumes . Noise is beginning
to be shown to have a relationship
with both mental and physical health.
The train-switching yards are also an
issue that have an impact on resident-
ial areas nearby .

GOAL: Support efforts to generally

reduce, buffer, or mask the unwanted
noises of the city .

This is recognized as a difficult

qoal to achi.eve, but nevertheless, one
of continuing importance that shoula
not be lost sight of.

Some implications for policy

(1) Establishment of maximun, perl'Y'itted

noise generation {as has been done
in other cities) and subsequent
monitoring and enforcement .
(2) Peview of emergency vehicle
sirens after widnight .
14
Size of Population
The size of the city in population
terr.:s is ~ost d ramatically affected by
type of housing and employment
opportunities that exist . More housing
does not necessarily mean more people
as the latest census showed.
Employment growth may not create
increased city size either, as
COTl'1'1Uting from suburban areas may
increase. Nevertheless it can be
expected that if in cowbination with a
broadening o! employroent.: opportunities
more housing is consl:ructed, the city
will increase in population size .
Residents of Vancouver have
clearly expressed a desLre for more
·ob availability and an increase in
housing opporturu.ties. I Job
opportunities expand within the city
and no additional housing is provided
then population can be expected to
remain fairly constant; however,
housing prices will escalate further
and particularly affecc low and
average income residents.
Initial contact with the community
showed that they were satisfied with
the current size of the city and that
it was unimportant for more people to
live here. This was especially the
case for residents of the West End ,
Strathcona, Grandvlew, and Hastings-
Sunrisc. Worry about; the city getting
larger and the impact of this growth
was also expressed.
When asked to consider further
their choices for growth in relation
to job and housing impact , a clear
picture of community attitudes emerged:
allow growth for jobs and housing only
if the character of the city is
maintained . Both rapid growth and
no growth were rejected .
Problems can be expected to
accompany poorly-managed growth .
Overcrowding, pollution, congestion,
shortage of housing, racial tension ,
threats to neighbourhood stability
and other issues are possibilities .
Zoning regulations are currently
restricting both the expansion of
housing and employment possibilities .
16
GOAL : Encourage growth where it will
lead to the expansion of housing and
employment opportunities but ensure
management of such growth so that the
quality of life and character of the
city are maintained .
This goal emphasi2es the belief
that no - growth attitudes can contribute
to the reduction of opportunities in
the ci t~t' and is not in keeping- wi.th
concepts of a free society . A creative
approach to the management of growth
that <1llows job and housing expansion,
related to stated public goals, will
allow us to ma.intain the quality and
character of Vancouver .
The goal of growth, but with a
stringent concern for our quality of
life is one of the tenets of thls
state~ent of future objectives .
lt is clear that Vancouverites
understand the need for growth to meet
housing and sustenance needs. However,
growth for its own sake and a rush to
attract new residents is rejected .
Some implications for policy
(1) Population growth directly tiec
to an increase in services - parks ,
recreation , schools, etc . - to
maintain our quality of life .
(High growth housinq areas have
often fallen behind in services to
people . )
(2) Balancing growth with the objective
of maintaining the important life-
style and physical characteristics
of neighbourhoods and the city.
Social Mix
Many different types of people
call ~ancouver home. It is generally
a social fact that the major city of an
urban region bas a wide diversity of
residents . In Vancouver, this
variety is related to bejng Canada ' s
Western port . Social mix refers to
peo~le with different lifestyles , ages ,
fam:lr status, ethnic origins , incomes ,
religions, and all the other traits
that comprise the human experience .
A mix of people provides many
kinds of benefits to a city, ranging
from the physical and fiscal (tourism)
tot.he human (new ideas , alternatives)
to the just plain fun (food, dances ,
etc . ) .
The majority of Vancouverites re-
cognize this fact and believe it
imper tant that " many different people
from various cultural, ethnic , and
social backgrounds 1 i ve in the city .''
, The support of social diversity
is not always easy . At times there
are s~cial c~nili 7ts that occur through
perceived maJor difference in ll£e-
styles , (such as big families doubling
up in homes) or worries about changes
to the general Canadian culture .
A sudden influx of immigrants can
pose an economic ci1reat related to the
availability of jobs and housing .
Certain types of people work in certain
jobsi without these employment oppor-
tunities , they may move e l sewhere .
Probably the most critical factor in
diversity is the availability of a
choice of housing type and cost .
GOAL : Support Vancouver ' s social
deve l opment as a city that is home to
a wide variety of people with many
different personal and group back-
grounds and many different lifestyles.
This goal means that a first
action is the recognition that there
are many types of people who meaniny-
17
.fully contribute to the character of
our community : people from differe nt
ethnic and cultural backgrounds , from
the old to the infant ; from t.he rich
to the poor ; from the nuclear family
to the single-parent family , etc .
The second action is to support
all of these life-styles in whaLever
ways req uired so that they can
productively share in the pleasures
of living j n this city and not be
sll.bject to discrimination .
Some implications for policy
(1 ) Educational -institutions within
Vancouver encouraged to develop
a greater understanding of the
strength of diversity .
(2) Regulations implemented
sensitively so that they support
different life- styles , rather
than discourage them .
(3) An employment base as diverse as
possible .
(4) A range of housing type and costs .
(5) Services and programs specifi-
cally designed to meet the needs
of individual life-styles .
{6) Re cogni.tion o f the range of
expression s of personal faith when
religion is t o play a part in
public ceremonies .
(7) Support of non-discriminatory
hiring practices in both the
government and private sectors .
Families
and Children
Families with children have been
one of the nost typical characteristics
of Vancouver ' s population. In recent
years, however, the presence of
children in many parts of the city has
been in consistent decline. This is
worrisome in that one of the desirable
social traits of the city is being
reduced. As well, facilities that had
been provided for children (schools,
parks) are bP.coroing under-utilized in
many parts of the city . Closures of
schools can accelerate the loss of
children as ne~ families try to locate
near a school .
Housing type affects the ability
of families to live in the city . For
the most part far.iilies tena to prefer
detached or lower-density housinq
rather than apartments . Thus, zonin~
affects the choice available for
families and, indirectly, dP.termines
who will live in the city .
The changing employment base has
meant tha t many families have moved
outside the city to be near their work .
The city cannot undertake all of
the actions and incentives to make
this happen, but i t can offer some
facilitating steps.
Some implications for policy
(1) Utilization of the City's zoning
and land-use control mechanisms
to provide housing opportunities
for families in townhouses,
alternative housing forms, ano
for more moderate-cost housing .
( 2) Retention of facilities such as
schools, parks, elc. , in all those
areas that are presently potenti-
ally family-oriented, even if
these are likely to be under-
utilized in the immediate future.
A future time may see a demand
again exist.
(3) Support for facilities and
services to meet the needs of
single ~arent families who are
a growing element in the overall
family situation in Vancouver.

Housing costs dramatically affect

the choice of younger, children-
oriented families when searching for
dwellings . This is one reason for
younger, middle-inco~e couples often
locating in surrounding municipalities .

A conflict often exists between

preserving the existing character of
an area and the need to provide
additional opportunities for family-
oriented housing.

Support was expressed by residents

for the objective of younq families
with children being able to live in the
city .

GOAL: Maintain and expand opportun-

Ttles for child-rearing families to
live within the City of Vancouver.

18
Elderly
Over 90% of survey respondents
i.nclicated a special concern £or the
elderly of the community in regarn to
their enjoyment of life , their ability
to reside in the city and to the
overall quality of life for
Vancouver 's residents.
As part of the social mix within
the total population , senior citizens
provide a different outlook and life-
style of benefit to everyone . From
their individual point of view they
have previously spent a life-time of
responsibility and work that has
helped provide the type of community
tha-1: we know today.
Many problems face the senior
citjzens' ability to continue to
reside comfortably and with security
in Vancouver . Mob ill ty , ease or
movement about tbe city and housing
are especially important . Suh-issues
of housing are constantly escalating
costs or rents, and lack of adequate
seniors' housing in the neighbour-
hoods where they have spent their
lives. It is particularly
discouraging for an elderly person to
bi? C!Y.~ected ':o leave I\ l.E n.-,i.ghbourhood
because suitable housing opportunities
do not exist. Zoning obviously
affects these housing choices .
The issue of community responsi-
bility to the elderly will be an even
more important issue in the future
city , as a large increase in the
number of retired ~ndividuals will
occur in coming years.
The rising cost of living drama-
tically affects senior citizens on
fixed incomes and pensions . It is
important to recogni.ze that retired
individuals bear the brunt of many
"problems" in our sys tern that are not
of thelr own making . Government
policy that allows rapid inflation
destroys the savings and living stan-
dard of the elderly if no special
provisions are made for their care .
Shortage 0£ housiog or land for new
housing bas an impact on their shelter
needs as demand causes housing cost_s
to escalate .
19
GOAL: 'l'hat the elderly be supported
and assisted in obtaining a high
quality of life in Vancouver .
This goal covers all aspects of
seniors' needs 1 especially housing,
health care , income stability,
mobility, and is important both for
reasons of social mix and
responsibility t_o the elderly.
Some implications for policy
(1) Encouragement of housing for the
elderly in their traditional
neighbourhoods .
(2) Development of seniors ' housing
or other housing so there is a
supply that meets their needs.
(3} Promotion of the idea to both
the Provincial and National
Governments that income supple-
ments for the elderly must keep
pace with inflation .
(4) Support for programs and activi-
ties that allow the elderly to
continue to be p~oductive and
contributing members of society .
(5) Support for the concept of
seniors ' self-help by aiding
their organizations, o r those
other social or cultural groups
who support the efforts of the
elderly to remain in the city
with a good quality of life.
(6) Integration of seniors ' housing
and extended care homes into the
community social mix, with good
walking or transit access to
recreation and commercial
facilities .
Disadvantaged
Nearly 90% of citizens surveyed
agreed that the needs of the eis-
advantaged (handicappec, P90r,
Tetarded, etc.) should be considere~
in decisions affecting the city .
I t can be. assumed that where the
accision-~aking process fails to take
our disadvantaged people into account
or consult wiLh them, this is more
frequently because of over.sight and
lack of understanding than deliberatn
exclusion .
The problems of the poor over-
lap and interlock: inadequatP. housing,
education and training, lack of access
to opportunity (or even knowledge of
it), lack of facili ·ties and services
in so~c areas, hopelessness and
ignorance - all intensified by qhe~·to-
ization, and perpetuated from one
generation to the ne:-ct .
t·Ihile the various helping
agencies, the Welfare system and
institutions of our society struggle
with the day-to-day crises and social
prob]ems concowitant with poverty ,
there is very little time or money
available for the prevention of so~e
of these problems so that at least
the next generation mav be able to
break out of the mold. And yet ,
without prevention, the Vancouver of
the future will find itself coping
with these same prohler:is and even
greater costs (not the least of these
being the cost of a higher crime rate)
anrl a greater number of oeople
unskilled and unable to cope .
In relation to governl'lent, the
problems of the physically and ~entaily
handicappec are many tirres connected
with the opportunities for cmployir.ent
ancl the mobility to enable them to
get about and participate in affairs.
This is obviously important both to
their well-being and to the contribu-
tions they can wake as individuals
towards the city.
20
GOAL: To recognize the special needs
ofthe disadvantaged and to assist in
all \-;ays possible to il'!lprove their
situation and enable thetr to
participate as fully as possible in
the ~ainstream of life.
Some implications for policy
(l) Support for anc encouragement of
all ef£orts by physically and
wentally hanoicappP.d people to he
employed, roobiJ e, ll.nd well-
adjusted citizens of our city.
(2) SUp?ort for the amelioration of
crisis situations, e . g. housing,
wherever possible.
(3) Prevention of problems by support
for the or.ogratrs for children and
young people that will help to
develop maturity and responsibil-
ity.
(4) Provision of or encouragement of
neveloor.;ent of special facilities
and opportunities, education or
training to facilitate equal
access to Vancouver ' s quality of
life .
(5) Recognition of the existence of
a segment of the population thut
is poor or disadvantaged and
whether by choice or circ\unstances
their lifestyle and environment
is their own (e.g. Skid Row) .
(G) Involvement of individuals or
groups interested in these special
situations to help design programs
that arc sPnsitive to need.
(7) Recognition of the £act that in
certain circumstances there are
advanta9es (support, etc.) in
groun living environments,
particularly for so~e
hanoicappec people .
Ethnic Mix
There can be little doubt that
Vancouver's ethnic diversity is one of
the primary contributions to the unique
character of the city. This richness
of fabric is shown in many ways, from
restaurants to festivals to new ideas .
The uniqueness of roany of
Vancouver's neighbourhoods is
directly tied to their ethnic
composition. These neighbourhoods
are not only of interest to the
general population, but also serve
an imoortant social role by providing
support to new immigrants until they
are better able to deal with Canadian
society.
The public's appreciation of the
t~nefits of a wi.~ of different types of
people in the city has been shown. At
the same time, some concern was
expressed over the way that the
different ethnic, racial, and cultural
groups qet along today. Renters,
young~r residents, and people in the
north-east sector of the city were
more dissatisfied.
The potential for conflict between
some of the ethnic and racial groups
is prohably the most important social
proclem associated with this subject.
Our contact with the residents of
Vancouver shed so~e important light
on why this conflict may be happening.
Sowe perceived causes were that
the new ethnic groups isolate them-
selves and do not mix; federal
ilTunigration policies which have
pern,itted what is seen to be too many
of one group in too quickly an~ the
community's perceived inability to
assimilate them; a fear that the
''Canadian" culture is changing; the
need £or more education about one
another's customs ancl beliefs;
language barriers; and concern over
the effect of immiqration upon housing
and jobs.
21
GOAL l: Recognize the mixed ethnic
character of Vancouver and its ethnic
neighbourhoods by supporting the
development of unique character areas,
events, facilities, activities that
promote our peoples' mixed heritage.
This goal recognizes that ethnic
mix will result from many influences
and that specifying a certain number
or mix of peoples is not possible .
Yet, it does emphasize that to support
and build upon what exists and may
occur in the future, will contribute
to a mor~ interesting and unique
community .
GOAL 2: Promote amicable relations
between ethnic, racial; or cultural
groups within the city and so assist
in reducing existing and potential
tensions .
This goal is of paramount
importance to a city with the objective
of providing a comfortable, relaxed,
anc safe environment for all of its
residents. It is also important to
rnake the national goal of a "multi-
cultural" society work .
Some implications for policy
(1) Education within the school system
that exposes young people to the
multi-cultural nature of our
society and the varying lifestyles
of its members.
(2) English language training for ~oth
newly arrived and long standing
non-English speaking residents of
Vancouver .
(3) Activities and events that
encourage the interacting of the
various groups within the city .
(4) A growing awareness by the city of
its limited ability to absorb
large numbers of new immigrants
and their impact on other elements
of the community. The result ot
this would be to make the Federal
Government -m ore aware of the
impact and effects of its
immigration policy.
 v.atcnll •• ,.

· • · It's a pet1t1on to ban the automobile.,.

22
Downtown
Downtown in many ways is the most
important district of Vancouver . It
provides employment , the primary shop-
ping area , and is the visually
important element of Vancouver ' s man-
made environment . There are many other
elements of downtown that are equally
important. Growth in the downtown for
any reason, increases the dally move-
ment of people in and out of surroun-
ding neighbourhoods . As a showplace to
visitors and residents, it ideally
provides the s~tt:ng for enjoyment,
activity and fun. It should generally
reflect a concentrated microcosm of the
larger regional community of which it
is the core , and attract people of
diverse lifestyles and activities .
Public sentiment towards
Vancouver ' s future downtown showed onl:t
about one-half of Vancouver's residents
are currently satisfied with downtown;
this is counter to its destiny as a
hub of interest and activity . Younger
residents were more satisfied with
do~~town, while long-term residents
were more dissatisfied , as was the
north-east sector of the cit~.
Residents identified these actions
as of major import~nce to downtown --
improve the perlcstr1an envir.onment ,
install public washrooms, prevent wind
tunnels and sunless areas, emphasize
high quality building design, reduce
traffic congestion, improve transit
access , reduce heavy truck traffic,
provide more public open space, reduce
crime, reduce litter and dirt, provide
more greenery and trees, provide good
street lighting , encourage street
activities sJch as cafes, festivals
and civic arts.
Of particular interest was the
community attitude toward underground
shopping malls . Although not a
majority , many inaividuols thought the
provision of more underground malls to
be unimportant. This may relate,
strongly, to the desire to improve the
interest of the pedestrian environ-
ment in downtown.
24
The provision of more auto parking
spaces was supported by about one-half
of respondents; this compares to the
strong emphasis (about 90%) for
improving transit access and reaucing
congestion.
Provision of more stores and
services, encouraging downto,.;n housing,
and increasing entertainment was
thought to be relatively unimportant.
While it is recognized that busi-
ness, offices, financial activity ,
shopping, government and residential
uses are important activities for the
future of downtown, respondents in the
second survey gave priority to
transit/transportation, port and tr~de,
cultural activities and tourism .
GOAL l: Improve downtown Vancouver so
that 1t nects the objective of being a
central plnce of regional activity,
enjoyment, and a showplace of pride.
The improvements that the public
perceives to be desirable in the
downtown are priority objectives.
COAL 2 : Develop downlown Vancouver ns
an attractive, economically viable,
transit-oriented core of the region.
Some implications for policy
(1) In order to support the objective
of interesting strPet level
environment,future development of
additional underground shopping
malls should be restricted . (There
is no clear public preference for
this form of development . )
(2) Rejection of the concept of
downtown Vancouver solely as an
"executive" city centre, and the
encouragement of the idea that
downtown should be a place of
mixed and diverse activity.
Neighbourhoods
Vancouver has always experienced
a neighbourhood character and
neighbourhoods have been ar accepte~
part of so~~ government decision-
making. 'fhis has been narticularly
the case in planning , improvement
projects, parks and recreation, and
social service delivery .
Our perceotion is that neiahbour-
hoods with identity provide a ~irect
benefit to those who live in tham .
A large wajority of Vancouver's
citizens (about 75~} believe that
neighbourhoods and their varying
characters ~ho~ld be supported as one
of the most important things about
Vancouver that shoule not change .
Renters valued neighbourhoods evP.n
more that O\•mers . This coulc be
because in the higher density areas
the neighbourhood oEten acts as a
"living-roorn" . Many civic organiza-
tions indicated support for
neighbourhoods that reflect the wide
range of lifestyles and cultural
diversity that exists in Vancouver-
There are a number of road-blocks
that face th~ promotion of neighbour-
hood identity: standartization of
land use control and zoning is becoming
an increasing threat to local identity;
the same height limits, set-backs,
uses, etc., can eventually make all
areas look alike . Conversely, neigh-
bourhoods where area-specific zoning
was developed are evolving a
distinctive identity .
Different perceptions as to
whether a neighbourhood should change
or remain stable is also a problem.
Some areas of the city do not enjoy
any particular focus and their identity
suffers while some are not as good as
ochers as far as services are
concerned . some neighbourhoods are
undergoing both physical and social
changes contributing to conflict.
GOAL: Support the development of
individual character and identity
for neighbourhoods of Vancouver.
25
This goal recognizes that there
is a scale of hUJT1an appreciation for
the environment; from the block to
the neighbourhooc1, to the nistrict,
to the city and to the region.
Some impiications for policy
(1) Clearer identification or what
constitutes the neighbourhoods of
Vancouver.
(2} Definition of the elements of
"identity" in these neighbourhoocls
whether buildings, heritage/
history , views, people, or other
aspects, so that they are
maintained as change occurs.
(3) ~pplication of existing land use,
engineerir.g services, parks anc
tree-planting standards with
sensjtivity, or development of
new ones to avoid city-wide
standardization.
(4) Fncouragerrent of neighbourhood
participation at the conununity
and local governMent levels .
(5) Facilitation of neighrourhood
self-helo in those areas where
civic expenditure and assistance
is not required .
(6) Support for the concept of a
neighbourhood focal point or
meeting place in areas where
one does not already exist .
(7) Recognition of the fact that
levels and types of services and
programs differ from neighbourhood
to neighbourhood, largely because
of different social make-up .
(8) Consideration of the benefits of
specialized zoning for some
neiqhbourhoods.
Commercial Areas
substantial residential component.
Few can rely inc!efini tely or totally
on visitors.
'.l'he terJT' "unique col"C'merci al
areas" is used to apply to those
commercial areas in Vancouver which
are essentially distinctive in GOAL~ Preserve and enhance the
character or flavour . Such distinct- ciiaracter of unique com~ercial areas
iveness rr.ay have resulted from the in the Cily O" Vancouver.
historical hackground of the cow~ercial
area, its major ethnic char~cteristics
(proprietors, clientele), its special
location or sorne degree of emphasis Some implications for policy
on specialty goods or services. i:ost
unique corr:mcrcial areas feature (1) Discouragerr:ent of non-retail use
restaurants of one kind or anoth~r at ground level.
designed initially lo appeal to the
major eleJI1.ents in the clientele, and (2) Discouragement of traffic
frequently carrying t..,rough the congestion but allo~ance for
flavour of the area. convenient transit and/or parr.in9 .
No particular questions were asked ( 3) Encouragement of ped~strian
in the survey ahout "unique commercial enjoyment (canopies, ar.caaes).
areas" but a considerable indication
of support for them was evident in (4) Encouragement of local self-help
responses to such questions as "What on the part of merchants by civic
things should not change?' and in co-ordina~ion or facilitation in
open-ended comments on back pages of matters of oarking, weather
the oublic questionnaire. Character protectior., maintenance and
areas of one kind or another are upkeep, signage, colour .
important factors in the er.cation of
a sense of place and in the develop- ( 5) Encouraaen;ent of locnl oartici-
ment of a special sense of identity pation in planning studies to
for a city. determine what creates t.he
uniqueness of a 9iven area, how
On the whole, unigue commercial viable it is, how it can he
areas are not large in scale and are protected and enhanced.
the result of evolutionary factors .
One important concern therefore (6) f-ncouragement of develop~ent
relates to the pressures of chnnge (or continuance) of residential
which, if too violent, can actually uses over stores .
destroy the unique qualities that
have rr4de the area important to the
city . The sarne aoplies in a sense
to traffic volurr.es although ease of
access is L~portant .
There is a "balancing act" in
both the above issues . There is a
similar need for balance letween
conscious beautification and local
evolution. Obvious "intrusion" in
design may deleteriously a(fect one
area, while enhancing the liveliness
of nnother . A well-defined clientele
is important to all successful
ventures. Retail areas can only
benefit froM being adjacent to, or in
close proximity to, a reasonably
26
Housing
Inability to find suitahle and
affordable housing is one of the
debilitating concerns of urban life and
severely affects the diversity and
socjal mix of the population. So~e
residents suffer from housing that is
substandard,
Public sentiment over the need for
new housing is clear. Almost 90% of
residents, particu~arly renters, believe types - seniors, moderate income,
in the importance of housing with a
broad range of rents and prices as well
as a wide range of housinq type. The
lack of affordability and variety in
the present housing stock was mentioned
as to what should change in the city and existing single-family districts, but
was also raised as one of the chief
reasons to cause citizens to leave their than are currently provided, for wider
city.
Vancouver has some definite, yet
limited means with whic~ to address this approach than concentrating "projects"
problem. The city hus run out of
vacant land for new construction, and
zoning regulations applied to secondary
suites reduce an important source of
low cost housing. eut zoning and land
use controls can also increase the
availability of land for new housing.
Providing new affordable Multiple
housing by replacing existing stock
J1as received a generally negative
response from neighbourhoods where
citizens are aaequately houseo . Because
of this community attitude, electe~
officials and staff are often reluctant
to promote alternative fo~s of housing .
The preservation of existing single
family areas was supported by the public
but this position against the desire for
more housing opportunity and vari~ty
reveals the primary housing conflict .
Our public contact shows the community
to be split down the middle on whether
to allow multiple-housing forms in all
areas or concentrate it in only a few
districts. A decision one way or the
other will leave a large portion of the
public dissatisfied. Neverthel~ss, the
Commission believes, on balance, that
the correct and equitable decision will
be to accommodate some multiple-housing
in the most compatible and sensitive
way possible within nearly all areas of
the city .
27
GOAL 1: Provide a wide variety of
housin~ cost and type to meet the
shelter requirements of existing and
future Vancouver residents.
GOAL 2: Distribute acceptable housing
types and forrrs within all appropriate
areas of Vancouver rather than having
them concentrated in a few districts.
'l'his goal is based upon a belie£
that a fair share of. housing of many
families, co-operatives, social
housing - throughout the city exp~nds
housing opportunities and promotes
interesting neighbourhoods . This goal
does not recommend great change to
believes there are many more situations,
housing opportunity. It does support
the belief that this is a far more
equitable and socially more positive
in only a few areas.
To n,ake this goal workable, our
collective experience indicated that
serious neighbourhood involvement in
determining appropriate locations for
housing diversity will be necessary .
Some implications for policy
(1) Provide leadership in supporting
the objective of providing wider
opportunities for housing; this,
in the city, includes encouraging
appropriate shelter prograrrs by
senior levels of government.
(2} Use of City-owned land as a "land
bank" to assist in the provision
of affordable housing .
(3) Develop rapid transit which ~ill
expand housing opportunities
especially near transit stops;
begin housing planning now to
ensure that housing diversity
occurs in these locations .
(4) Investigate the potential for
creating housing through a
process of rezoning.
Improvement Areas
Compared to many cities,
Vancouver maintains a high standard
of maintenance and upkeep of both
public and private property. This
established standard appears to be
valuable to residents and they do not
wish to see some areas of this city
falling below this standard .
!he reasons for areas having a
run-down appearance are complex. They
are tied to: interrelated market
patterns and investment actions; the
enforcement o:f building regulations
and by-laws: historical developMent
patterns, ohsolescence in buildings,
public utilities, or activities; land
use and zoning conflicts, social
issues and general public perceptions.
What is not so complex is that they
detract from the overall image of the
community and reduce the quality of
lire for Lhe inhabitants of these
districts.
Fixing up run-doWY; <;treas.of ~he
city is an important civic obJective
to residents. About 90% of people
involved in the Goals Program indicated
this. They also indicated a perception
of areas most in need of assistance in
improvement actions . Most significunt
was the area in proxi.mi ty to Main and
Hastings Streets; following this the
areas of Granville Street south of the
mall, the waterfront, and the
Strathcona area . Other areas were also
mentioned but these were the priorities.
Upgrading the quality of these
districts depends upon solvin<' c1
nUT11ber of problems. '!'he ''problem''
may be tied to perceptions of life-
s ·tyles di[f~rent from the norm. 'l'here
is a need for understanding of a major
city's requirements for various kinds
of areas. A lack of adequate J· y-law
enforcement can contribute to hlight.
"Redlininq" of districts by insurance
and investment aqencies can be a major
influence on building upgrading. ~he
local improvement financial basis for
upgrading neighbourhoods is an
increasing concern; people and
businessmen in poorer areas cannot
generally afford the ~onetary_contri-
bution required for physical improve-
ment's.
28
GOAL: Upgrade areas of the city in
need of both physical i~prove~~nts and
services to the residPnts.
Physical improvements are tied
to the need £or an equal standard of
street, sidewalk, liqhtinq, building
maintenance, etc . , as exists in other
parts of the city. A ~alanced n~ed
for available social and recreation
programs or services is also indicated.
Some implications for policy
(1) Direction of an initial concen-
tration of assistance to i~prove-
ment to the ar a generally
0
referretl to as the Downtown Fast
Side as a neighbourhood, and to
Granville Street south of t.he Mall
as an i~portant gateway to the
do\>m town peninsula.
(2) Reconsideration of the Local
Irnprove~ent Prograr as a basis
for neighbourhood physical
improve~Pnts; lower income areas
way find this approach unworkable
for siqnificant improvewents.
( 3) P.ecognition of certain areas of
the city as providing an iwport-
ant neighbourhood of ''refucze''
accommodating different life-
styles .
'4 ) f.nforcemant of civic by-laws to
improve the living standards of
resi~ents and improve the i~age
of districts seen to be in need
of improvement.
(5) onaerstanclinq of management in
areas in need of repair or
suffering from decay and the
need to plan for their upgrading
in advance of crisis.
Jobs and
Employment
The opportunity for employment is
one of the £undamental bases for
measuring the quality of life in a
community .
The City of Vancouver's economy
has been undergoing many changes over
the past years . Opportunities for
both employment in industry and "blue
collnr" work for younger residents has
declined .
r:'cw residents arc satisfied with
the availability of jobs ln the city.
This was the number one reason for a
decline in the quality of life i~ the
city . In response to the question
about what would cause residents to
abandon Vancouver, a lack of jobs was
the most frequent reason given . Of
serious concern is the dissatisfaction
with job availability by younqer
residents and renters .
'.!'he east side of Vancouver
believed job creation to be more
significant than other parts. A
variety of job choices was important.
An understanding of the importance
of a regional economic base was under-
stood by city residents . The most
preferred objective was the creation of
employment in both Vancouver and
surrounding municipalities.
Larqe population growth without
job opportunities will contribute to
additional problems. Local training
is not keeping pace with future avail-
able job opportunities. The city is
experiencing a decline in blue-collar
job opportunities and other tradition-
al jobs that have been available . In-
dustrial lands have been affected by
ambiguous land use policies and are
accompanying rapid escalation of land
costs which are restrictive to this
type of employment generation .
Zoning uncertainty is a real problem .
Business taxes are also a deterrent to
investment in the city when they are
ill-defined a nd subject to constant
change . Regulations perceived as
11
over-regulation'' (although they may
be misunderstood) , are also a factor .
30
Vancouver ' s continuing expansion as a
place of high technology and corporate
management, is reducing the opportunity
for other forms of employment .
GOAL l: Promote a diversity of
employment opportunities within the
city .
This goal supports job
development of all types : service,
industrial , blue-collar , management,
etc. to create maximum opportunity
for Vancouverites. It specifically
rejects the idea of Vancouver
concentrating employment solely in
the ~·hi te-colla r or "bra in" sector.
GOAL 2: Support job development, not
only in the city itself but on a
regional basis .
Job opportunities can be found in
all parts of the Lower Mainland; the
required economic development should
be supported.
Som~ implications for policy
(1) Protect land suitable for indust-
rial purposes through zoning
regulations and prevention of
adjoinLng non-compatible land
uses.
(2) Support skill development through
the educational system that is in
line with employment opportunities.
(3) Increase understanding of
Vancouver's economic base as it is
now in terms of the types of job
opportunities that can be provided.
(4) Encourage industrial investment by
developing a fair 3nd stab1e tax
approach.
The Port and Trade
from the image 0£ the port as a place
lor efficient trans - shipment.
Con£licts exist between activities
The Port of Vancouver was one of that might occur on the waterfront·
the dominant reasons for the founda-
.
trans-shipment '
might oppose urban and
tion of this city . It continues to public use unless properly designed .
be important today, and is expected
to be even more so in the future.
Vancouver's position as Canada's
Western Gateway located on tbe GOAL : Strengthen and support the
Pacific Rim, with its expanding econo- trade and port activities that occur
mic activities , will make ils port an within Vancouver.
increasing generator of jobs and
economic activity.
The primary reasons for this goal
The port is one generator of job are the need for creating a diversity
creation, but the wider subject of of employment opportunities , and the
trade is also important. Trade can strengthening of our total, local
be expected to result from the direct economic base.
exchange of commodities through the
harbour (grain, lumber, chemicals,
etc.). Trade will also result from
international and national delegations Some implications for policy
making commitments to both Provincial
and Canadian products; this type of (1) Increase local responsibility and
activity can have economic spin-off autonomy for management of port
effects upon the local economy. and airport planning and
Because of these activities, activities .
facilities, transportation and
services are important to the trade (2) Consideration of the evoJut1on of
requirements of the community. the Port of Vancouver as a free
port .
It is clear that the residents of
Vancouver understand the importance of ( 3) Des :l.gnation of those parts of the
port and trade activities to the waterfront suitable for the
over-all employment and economic specific purposes of trade .
health of the community . It is parti-
cularly important to the objective
mentioned in another area of this (4) Protection of the quality of the
goals statement, that a diversity of local environment by reasonable
employment opportunities exist . pollution control over shipments .
Almost nine out of ten Vancouverites
believe strengthening port and trade (5) Support for the port in relation
activities to be important. This was to competitive cities on the West
also supported by a number of Coast of North America .
Vancouver organizations: The Cedar
cottage Board, The Britannia School (6) Broadening of international air
Consultative Committee, The Vancouver connections between Vancouver and
Board of Trade, and the Economic other destinations.
Advisory Commission.
(7) Promotion of Vancouver as Canada's
It should be realized that there Western ~acific Rim Gateway .
are obstructions to this desired
strengthening of port and trade. The
port is affected by jurisdictional
responsibilities and for whose benefit
it is being operated . Continuing
labour and management conflicts1
whether real or perceived, detract
31
Tourism
Tourism or the visitor indusLry is
a major component of the B. C. economy
and generates considerable revenues.
As the Province ' s largest city and
transportation ann comrnunlcations
centre, Vancouver has an important
function in this business. The signi-
ficance of the relation between
Vancouver and the tourist industry is
heighLenea and accentuated , first by
the city ' s strategic position as
Canada's Western gateway and, further,
by Vancouver's own intrinsic
attractions as a visitor Jestination
as well as interchange point .
Vancouver is rapidly earning a
wocld-wide reputation as a city to
enjoy - the "once in a world a city
like Vancouver " . An influx oC visitors
who come to enjoy the city ' s
amenities , facilities , landscaping,
climate , lilestyle and unique environ-
mental qualities, provides a valuable
incentive to maintain and enhance the
livability of the city while also
providing a substantial amount of
employment and source of revenue.
Public response has indicated good
support for encouragement of tourism .
Some concerns have been expressed
relating to possible over-use of
facilities and amenities to the
detriment of the environment and conve-
nience of residents , (e . g . parks,
recreational facilities , taxis,
ferries, etc. )
Safety in the streets is important
to residents and visitors alike.
There is also some concern that the
city sho~ld not lose its own
characteristics and unique qualities
and be cransformed into some sort of
ri in te ma tional bazaar" .
However, the attractiveness of
Vancouver as a visitor destination
and travel centre is generally
recognized and valued .
32_
GOAL: Encourage the tourist/visitor
industry in Vancouver with clear
guidelines minimizing impact on
quality of life and other beneficial
factors .
Some implications for policy
Cl) Encourageirent of a range of
accoJ1UTtodations from luxurious to
low cost (hostels, etc . ) .
(2) Encouragement 0£ variety in
accon:modation to suiL individuals,
families with children , groups,
conventions.
(3) r-ta.intenance of high standards
of design , cleanJiness and upkeep,
in streets, public places and
spaces.
(4) Provision (and/or encouragement)
of good direction signage in a
variety of languages as approp-
riate.
{S) Assistance to mobility through
public transit and taxi system.
(6) Support for cultural and special
events to enhance the "festival
city" aspect of Vancouver .
(7) Early planning for the tourist
aspects of 1986 . (City
Centennial and probably Transpo
' 86 . )
(8) Monitoring of economic and social
impacts of tourism on cost/
benefit basis .
( 9) In view of Vancouver's position
as a major world focus of inter-
national travel, work towards the
estaulishnient of a Commission to
investigate how the Cit~· can
meaningfully participate in the
management of the Port of
Vancouver and the Airport in
regard to such local concerns as
tourist accessibility to the city .
Access
to Natural Areas
(2) Support for good public transit
connections to North Shore areas ,
Vancouver Island, and eastward out
of the city .
While some aspects of this theme
are dealt with under "Natural Setting• (3) Support for g~oups and ..
and "Water£ront Access" (Element I), organizations dedicated to facili-
the concern here is related more to tating low cost enjoyment or
general leisure activities than to preservation ur the natural
views and to access to city natural environment .
features . The proximity of large
bodies of water, of mountains and (4) Support for cost/benefit and
forests near Vancouver, and the com- impact studies of projects likely
parative proximity of the natural to have a major impact on the
features of Vancouve~ Island and the natural enviro nment.
rest of the Prov!nce are important
aspects of living .in Vancouver, with ( s) Study of the practicability of
its connections by road, sea and air recreation activities within the
to some of the world's most exciting watershed .
natural environments .
rt is not surprising, therefore, (6) Ecological protection of very
sensitive natural areas such as
that participants put high on t.heir estuaries and wild fowl
list that access to natural areas,
skiing, boating, hiking, etc., should sanctuaries.
not change. There are some possible Support for a rail extension to
problems. Energy shortages are likely (7)
the Whistler Mountain ski areas.
Lo affect ease of access; competition
for space and increasing costs may
affect the provision of marinas,
launching facilities and inexpensive
tenting and hostelling facilities;
development of various kinds may
result in the wilderness with its
flora and fauna being pushed further
away.
It is recognized that in the
expression of the goa1 and poLicies
below the City government has a
limited power, if any, but its
influence is important and should not
be underrated.

GOAL: facilitate access to and enjoy-

ment of t.:.he natural areas of the
Vancouver area, Vancouver Tsland, and
the mainl~d of B.C., for residents
of the City of Vancouver .

Same implications for policy

( l) Provision of a range of convenient
docking and launching facilities
for the Vancouver boating
community .
34
Recreation
Public recreation services are
"soft" services well-received by the
public, but without the kind of hard
support that engineering services have
in times of budaetary restraint . They
function to provide a variety of
leisure opportunities and to foster
physical and mental fitness for all
ages and cultural groups . Public
recreation services in Vancouver are
well-established , very well regarded
here and abroad . They involve a great
nun:ber of volunteers and find a major
co~ponent of their funding through
volunteers and their non-profit
societies and community associations.
'l'hi s is a unique feature of recreation
in Vancouver as is their elected Park
BoarcJ . The high level of citizen
satis=action and support is In part
related to these uniaue features .
A substantial minority of citizens
have expressed a lack of awareness or
appreciation of public recreation
facilities. Overlapping recreation
services offered in neighbourhood
houses, schools, and social or health
facilities rnay be servicing part of
this group, under another nane than
recreation . This does not take from
the overwhelming support of citizens
for maintaining or increasing the
puhlic recreation budget . (One - third
support an increase . )
Concerns have been expressed
about the following: geographic
inequity in the distribution of
recreation facilities; the corrpetence
of the Park Board and the City
Departments to direct long term
policy; dividec admioi~trative
authority; lack of a comprehensive
public philosophy of the nature of
public recreation .
The philosophy of most modern
recreation services encompasses all
the leisure needs and demands not
otherwise adequately provided for .
Thus , as in Vancouver , cultural
programming goes along with sport
and physical fitness progra~rning . Not
only do city recreation services need
integration and co-ordination, but
35
recreational facilities owned by the
School Board need to be integrated
with the City ' s recreational
facilities end services as in most
other R. C. municipalities .
This question is often imnlied if
seldom asked: Who pays for recr eation
services - the user or the taxpayer
and : How much by each party for each
form of recreation or sport?
GOAL 1 : Adopt a co~rehensive approach
to public recreation prooramming and
facilities which unifies their
function in develooing and improving
the physical and mental fitness of all
ages and cultural groups, with maxi~um
voluntary input and responsible citizen
involvement .
GOAL 2 : Co-ordinate or integrate the
mana~ement of public recreation
facilities and programs .
Some implications for policy
(1) Determination of the role of the
City in public recreation and the
eY.tent to which recreation involves
artistic and cultural activities.
(2) Planning of recreation facilities
and programs to meet predicted
needs or demands using a revolving
five-year or similar time base .
(3) Provision of a firm predictable
form of funding for recreation .
(4) Provision 0£ a balance in the
type of progr ams and facilities
provided .
(5) Diversity of recreational
opportunities, e . 9 : natural
teaches and f orest areas .
(6) Isolatio n and remedy of legitimate
causes of dissatisfaction.
Libraries

Provision of a comprehensive
public libr~' system is a special
advantage of living withL'1 a l , irc:Je
urban centre . The storage of accumu-
lated knowledge and opinion with
broad accessibility is a vital ingre-
dient for the quality of life of the
community , and provides iMportant
opportunities for the enjoyment and
intcllectuai development of
individuals . In addition to its
public library system v ..1ncouver is
also fortunate in possessing several
institutions of higher learning
which further broaden choices - - par-
ticularly for research and scholarly
work . However, a public membershi~
in the University of a.c. Library, for
instance, costs $25 . 00 per year .
Participants in the statistical
survey undertaken as part of the GoaJs
Program were asked to rate their
degree of satisfaction with the
public library system . A very high
proportion (86%) rated the City ' s
library system positively , and presu-
mably this applied not only to the
general loan system but to the many
rich anci1Iary activities , particular-
ly for children . Possible conflicts
were seen between the needs for areal
extensiveness on the one hund and
comprehensiveness and depth on t h e
other. Shonld such conflicts arise
D
f1·om budgetary restrictions it was
felt that some priority should be
given to the core collection.

GOAL : Maintain the high standard of

serv~ce that has evolved in the
Vancouver Public Library system, and
constantly seek where possible to
renew and expand .
0

Some implications for policy

(l) Neighbourhood and central
accessibility to branch libraries .
(2) nalntenance and extension of
inter- library and retrieval
system.-; .
36
Culture and the Arts
Access to a broad choice of
cultural activities , «folk" ,
"popular" or ''high" , as a participant:
or patron, Ls a vital ingredient in a
city's qunllty of life . A Secretary
of State study some years b~ck showed
that more Canadians attend artistic
events than live sports events . For
instance, the Vancouver Symphony has
the largest paid-up subscription
aud~cnce in North America . Vancouver's
strong showing in the arts indicates
that it offers its citizens the
benefi t:s of a ma tu re society .
The economic spin-off of this
lubour-intensive non-polluting industry
is in the millions of dollars. The
tourist ~nd hospit~liLy industry is a
beneficiary as are the arts-related
businesses - galleries, publishing,
electronic and print media,
architectural and interior design firms, (6)
arts schools, studios, stage-craft and
instrument shops, booking agencies and,
of course , the budding film industry of
Vancouver as "Hollywood North" .
The one single overriding problem
shared by all the arts is lack of
money. This complaint is familiar and
universal to all Rocieties, and rises
from the very nature of nrt and culture- (8)
its labour intensive component which
cannot be eliminated . To create, to
rehearse, to perform and to stage works
of art cannot be done by high
technology or rnnchines . It is ,
therefore, a problem to which
Vancouver , its government and its arts
communit:); must continually commit
J.tsel:f .
GOAL l : Provide a nourishing
atmosnhere in Vancouver in which all
the arts will flour i s h.
C..OAL 2 : Encourage a myria<l of
cultural e>:nressions in order to
enrich the iives of citi~ens
37
Some implications for polici
( l) Support for Council Corranittee on
the Arts .
(2) Contributions to the flow of
funding of t he City ' s major public
arts institutions .
(J) Provision of "seed rnoney"
assistance to smaller or
struggling arts organizations
which provide variety ,
innovation and challenge to the
arts establishment .
( 4l Commissioning of public art ann
sculpture as a means of
encouraging the artist as well as
enriching pub1ic spaces .
CS) Arrange for competitions for
important public projects in
architecture and public amenity
space .
Support for increased exposure to
the arts 1n schools and community
centres.
<7 > Support or facilitation of the
establishment of local scholar-
ships, adJudications, festivals,
recitals, showings , workshops and
grants to the aspiring young
artists or our community .
Conslder.ation of inclusion in
comprehensive zoning b 1•-laws of a
civic "arts " clause that would
stipu l ate a certain minimum
fraction of development costs to
be spent on art and sculpture on
street level spaces with public
exposur.e .
(9) Promotion of outdoor concerts,
ethnic presentations, art shows,
and popular events in downtown
mini-parks and plazas .
(10) Estab l ishment of a modest endow-
men t fu nd or acquisitions fund
to increase the permanent
collections of the Vancouver Art
Gallery and MuseuM. Emphasis
might be given to native people ' s
art and artifacts
Stadium
This topic is more specific than
most of the gonls included within this
statement of: civic directions. rt is
included, thouqh, because it continu-
ously stirfacecl during community
dialogue.
A stadium is usually looked upon
as a facility to house professional
sports and major events. In fact, it
is much more than this because
development must be viewed as a
~owerful agent for change. Experience
in other cities has shown that a
stadium can have many different impacts
upon its surrounding area . Some of
these can be positive, such as
economic spin-offs that increase busi-
ness and employment, and lund
redevelopment in under-utilized areas.
Others are negative such as increased
traffic congestion, parking problems
and view obstruction.
A stadium can also act as a focus
for civic pride 1 although a facility
such as this iS a regional and, in
fact, a provincial resource.
Vancouverites appear to have mixed
feelings about the construction of a
new stadium. ..iust over half of the
residents who were involved in the
Program thought it to be important .
Younger residents and those over. 65
thought a stadium to be more important.
Respondents from other cities in the
reyion believed it to be more import-
ant. The north-east sector of the
city believed it to be less important.
Only two of the twenty-one briefs
received from organizations mentioned
the development of a stadium. Because
of these mixed feelings, this is one
of the goals for which the Commission
itself accepted primary responsibility .
1rhere are problems facing the
development of a stadium. The most
important is funding for both initial
construction and on-going operating
costs. The ir.tpilCt upon the surroun-
ding neighbourhood is unknown. Its
relationship to other similnr
tacilities is not known . Access and
38
transportation that serves the facility
will be a continuous issue. Views of
surrounding areas may suffer.
GOAL: A new stadium to house major
sports activities and events should ba
constructed within the City of
Vancouver.
The stadium should be desianed to
accommodate all major sports. in
addition, i t should be covered so that
it can be used for other activities in
all weather, and not cause noise
conflicts in the surrounding area .
Location wichin the city is
approprlate because of the historical
1.·ole of Vancouver as the hub of the
region . Transit, hotels, restaurants ,
and entertainment and other back-up
facilities are also available in the
city .
Soi!le implications for policy
(1) Because this facility will be a
provincial and regional resource,
its costs should not come out of
the City ' s proper~y tax .
(2) Planning for this stadium should
be mtdti-focetcd so that not just
the building is designed. The
impact on the surrounding area and
the services it will require must
be understood . (A special Stadium
Planning District should be
established.)
(3) The stadium should be of high-
quality design and sensitive to
the impact it has upon views and
the visual character of the
city .
(4) Duplication of facilities that will
be provided in the Trade and
Convention Centre should not occur.
(5) Transit should serve the stadium .
Transit
The way chat people get around a
city has traditionally shaped the form,
appearnnce, and to a degree, the
social patterns of i ·ts residents.
Vancouver is no different, and
historical1y, the extension of roads,
bridges, tunnels, and trolley lines,
have affected growth, change and th~
mobility of city residents.
~s an ideal principle, develop-
ment that occurs for housing, jobs or
other activities, should only grow to
a point that the transportation system
can accommodate. Vancouver. is
appr.oaching the poin·t where this
increased growth is beginning, at
times, to exceed the capacity of the
transportation system.
Because of the importance of
transportation to the future city, this
issue was considered thoroughly during
the goal-formulation stage . Public
thinking showed an understanding about
transportation in today's and
tomorrow's city.
Residents were generally satisfied
about travelling in the citv for
shopping and pleasure, but dissatisfied
with the daily work trip . The east
side of: the city was more dissatisfied
with travelling to work. The
importance of driving easily around
the city by car was consiclered
important by about one-half of
residents in the first survey.
"Improve public transit" was the
number one response to the question :
What changes would you make to the
city?
A basic "value'' decision of
emphasis would be cequixed because
either transit or auto use would have
.impact on more than just the movement
of people -- neighbourhood quality,
energy consumption, safety, lifestyle,
among others, would be affected .
The downtown goals show that
people prefer to see a transit-oriented
core with reduced auto congestion .
When asked , "if our present-day
40
transportation system is approaching
capacity .... do you prefer the future
city as one where emphasis is placed on
public transit, private auto use or a
system combining both?'' 76%
responded in favour of transit.
Vancou\•erites clearly believe the
future city to be one that is
transit-oriented.
GOAL l : Emphasize transit in the deve-
lopment of future transportation in
Vancouver.
Vancouver is entc.ring a transition
stage between the time when i t was easy
Lo move about by car, and the tiir~ when
transit services will be increasingly
necessary. At the present, traffic
concerns concentrate upon peak period
travel. In the near future, however,
this problem is expected to occur
throughout the day.
GOAL 2: Improve automobile circulation
in the city by the management of
existing facilities, rather than the
development of new roads, widening of
existing roads, etc.
Very :few residents indicated the
desire for construction or new roads
or the widening of existing ones, but
emphasized functional improvements such
as restricting left turns .
Discouraging th9 us~ of autos in
the city was more preferr.ed than any
type of street improvements. As
transportation becomes more congested
emphasis should be directed towards
transi·t.
Some implications for policy
(1) Promote actions that increase the
overall attractiveness and
usability of tho public transi't
system; more frequent service,
direct routes, less transferring,
faster trips and reduced
passenger crowding.
Pedestrian
Atmosphere
About one-third of reSPOncents
incicatec that the City's pedestrian
atmosphere could be i~proved. This
was particularly noted in the north-
east sector, perhaps largely because
of the heavy amount of through traffic.
~:.any prohleJ"ls face the orovision
of ?n enjoyable pedestrian en~~romrent
as the city crows . Conflict with
vehicles occur5 in r:-any situations;
noise, pollution, reduced si~ewalk
\o:idth as vehicles cler.:anc 1,-ricer roads .
Lar~e builoings block sunlight and
can create uind-tunnels. Cyclists
often co~oete for the same soace
because there arc £ew designated cvcle
routes. Suildir.os that are permitted
with no provision !or activitr and
interest at sidevalk level can
contrihute to a feeling of apprehen-
sion in the person walkin~ at niqht.
Pedestrian moverr.ent differs from
other foms of transportation in that
some of its requi rerrents are tied t o
h\lJTlan charact~ristics . As ilf.portant
as safe desi~n are interesting
buildings and sights , weather
protection, activitJ, cleanliness,
attractiveness, anc so on .
Imorovccl peccstrian ways can
often be nn economic benefit . Retail
a~eas with Pnhancrd nedestrian amenity
are frequently ~ore successful hecause
they attract more shopprrs .
Some implications for policy
(1) co~pletion of sidewalks in those
nei9hbourhoods of the city that
currently do not have them , with
funds, if necessary, provided
from general revenue .
(2) Eventual undergrounding of
utility wires with initial
concentration of effort in a r eas
of high pedestrian activity.
(3) Builcing guidelines to be
followed by both private and
public developers that provide
pedestrian interest in irr.portant
areas .
(4) F.Mphasis on pedestrian ways that
link employment and transit stops .
(5) Restriction of new underground
shopoing malls to support street
level inter1?st .
(6) An eventual plan that links
together t:.he pieces of a pedes-
trian system .
(7) Guidelines for the siting of
buildinos to increase the amount
of sunlight getting through to
the str eet and for the rPduction
of wine'! prohleTI's .
(8) Separ ation of cyclists f r om
pedestrians .

GOAL: Iwprove the pedestrian

erivrronrnent ln all parts of. the city
anc plan for its enhancement with the
sa~e care ana concern as for other
forn,s of trnnsportation.

Pedestrian ways are expected to

become increasingly important as
transit ·service assumes a larger role .
,,·al king fror:1 residence to transit to
er:::ployment will mean that safer , more
protected an~ attractive pedestrian
way~ are needed .

41
Bicycles
(2) Provision of bicycle parking
places that are secure from theft .

'l'ransporta tion by the bicycle (3) Development of at least one safe~

mode is of two types - commuting and bicycle crossing of False Creek.
for pleasure. Cycling has become an
increasingly i~portant recreational
and fitness activity in the city.
Cyclinq to emoloyment places
is growing in popularity as a method
of transportation. With energy costs,
congestion, and with the number of
people living in proximity to work
expected to increase int.he future,
commuting by bicycle will probably
become more common. This method of
travel is positive in that it is non-
polluting, quiet, saves energy
resources, and promotes fitness.
The need for iwproved facilities
for bicycle travel surfaced strongly
during public contact. At the present
time, bicycle travel for both commuting
and recreation can be hazardous. The
most dangerous eleJT1ent is the conflict
that e:idsts kietween cars and bicycles.
Streets with heavy traffic volll!'!'es
are often those most frequAnted hy
cyclists; bridges are extr.emely
hazardous. Conflicts with pedestrians
are also a serious safety issue. In
addition, the design of the existing
bike system leaves m\1ch to be desired.
Other elements of the total str~et
system such as sewer grates, curbs,
ramps, etc. also relate to the safety
of cycling.
-·-,
GOAL: Facilitate the use of hiC)'Cles .. <
in Vancouver as a recreation activity
ancl as a rroc:e of commutinq to and
from e111p l oymen t.

Some implications for policy

(1) Development of a commuter and
recreational bicycle route
system in areas whera safety and
con£lict;s with pedestrians and
automobiles are an issue.

42
Trucks Some implications for policy
Cl} Gradual designation of a separate
truck route to carry the dominant
The reduction of truck traffic in a~ount of heavy vehicle tra£fic
residential areas is indicated as an from the primary origins;
important objective. The elderly concurrently a phasing out of
especially are concerned with this trucks from residential areas .
issue . The relationship of trucJ.';
traffic to the economic base activity (2) The development of buffering ,
of the city and the servicing of the sound reduction or other
needs of residen·t s are understood and alternatives on the most heavily
recognized . used truck routes until this new
facility can be realized .
Yet, the impact of heavy through
truck traffic especially upon homes (3) Consideration o: compensation to
and residential neighbourhoods cannot horreowners who have been affected
be over en,phasized. Obvious problems by the designation of their
relate to noise, safety antl street as a heavy truck route ,
envirorurental pollution. These rather possibl~· through a property tax
abstract ~ords mean that the resident credit.
of a home along a truck route has
difficulty watching a television
progran in quiet, may have vibrations
in the home each time a truck passes,
and must breathe a higher level of
contaminants. The problem is not
easily solved, as trucks must ~ove
through carts of the city . The basic
concern is that some residents suffer
frorr. these factors while many do not .
Truck traffic is expected to increase
in the future i,:i th the 0ort and other
commercial activities growing in
imoortance. Trucks also contribute to
ru;h hour traffic and deliveries can
often accentuate traffic conqestion .

GOAL: The removal of as much through

truck traffic as possible from
residential areas.

This is certainly a long term

goal , but a particularly important
issue to the quality of life in many
parts of Vancouver . Ontil the funds
and capabilities exist to remove them
completely, interim steps of wandatory
noise restriction from trucks, or
other steps should be taken .

43
 r

..
.. \l' e•re not !'or.-. but -.e'H! nan-n~rd it d()i,.n h• • 11iifr r(f,__"t"l o( ,.omt"lhinf: ht" b:athr1J i11, 11tc-,
l1N::tthrd, drank. han,lll"CI, looke,I al 1,r th1,ocl,t oC."

44
Health
level of personal health or experience
special health problems, and are not
receiving the necessary care .
The health of the population is
a primary determinant of individual,
family and community quality of life.
Health is not just an absence of GOAL 1: Fnsure that health services
illness, but includes a sense of well- are equally available anf oriented to
being . In the broad sense, health all segments of the population and all
reflects a concern for both the body parts of the city.
and the mind .
GOAL 2 : Support the concept of self-
The delivery of much of the health help in health care.
care systems is orovided by federal
or provincial governments or the medical
community . Much of the resoonsibility
for health is borne directly by the
individual himself. Some implications for policy

The City does, however, have both (1)
direct and inairect effects upon the
level of col'IU'l1unity health - directly ,
through administration of health units,
special programs, inspections and
other activities; indirectly, throuoh
decisions that affect pollution , · (2)
recreation, oar~s, social services,
by-law enforcement . In many ways
these may have tl"Ore significant long-
term impacts upon the well-Peing of (3)
residents than the direct actions that
are taken.
Programs specially tarqeted to
meet the needs of the elcerly,
young children ann infan-ts, who
are particularly vulnerable to
health problems .
Identification of groups within
the city who require special
health care attention .
F.ealth Units ana local clinics
located where they can be most
effective .

Existing City health services (4) More ' 1out-reaoh" programs .

were rated positively by resoondents .
Compared to other issues , raising the
level of personal health was not a
priority . Generally , responaents
believed that public health services
should be provided equally to all age
groups of the population . There was
some emnhasis, however, on providing
a high degree of care to the elderly
and to infants and young children .
Residents strongly supported (over
90\) the objective of directing oublic
health services to such groups as the
disadvantaged , high risk, and those
with language problems, etc.
Because of the urban nature of
Vancouver , and for many other complex
reasons, Vancouver experiences serious
health prol;\lems from sut-stance abuse
and venereal disease . The awareness of
the public to these and other health
hazards is not high . A particular
concern is that there are elen-ents of
the population who have a much lower

46
Education
The oublic education svstem is
perceived.by most people as.one of the
rr.ost inportaot services that gove..~ent
provides for the community . Not only
are basic life skills to be learned,
but the educational system is a source
of personal enrichtrent and development,
as well as helping children to
understand their culture and environ-
ment.
The surveys showed that public
attitudes to the education system were
mixed, with one of the lower deqrees
of satisfaction being expressed.
Detent"ining all the reasons for this
is difficult, but some readings did
emerge during our public contact .
Satisfaction with the public
school system declined cown the scale
from pre-school to primary to
secondary education. Dissatisfaction
was eY.pressed in the provision of
special education for the handicapped .
Post-secondary education and especially
continuing education were seen as very
positive.
The largest positive response to
the educational system was aqain to
continuing education and to the
variety of courses taught and the
number and location of neighbourhood
schools . · counselling to assist students
Dissatisfaction was chiefly
directed at too little attention being
paid to a core curriculum of the
three "R ' s", a limited curriculum that
does not allow for full opportunity in
education, a lack of discipline in the
schools, a lack of attention to soecial
education and the need for teacher
upgrading . A very high response was
indicatec in support of English
language training .
The general concerns with the
education system are also tied to
other issues such as school taxes .
The need for counselling of high
quality that helps students to make a
wise decision about career directions
was also considered important .
47
The responsibility for education
in Vancouver does not rest with the
City, but with the School Board . The
following Goal and Policy lll'plications
are therefore conveyed to them for
consideration as resulting froM our
contact with the residents of
Vancouver.
GOAL: Provide the opportunity for
FiTgn quality education throughout the
public school system.
Some implications for policy
(l) Particular attention to be
directed to improving elements of
·t he secondary school system with
which Vancouverites are dis-
satis£ied.
(2) Continued support for location of
schools within neighbourhoods to
foster other goals of community
life .
(3) Strengthening of the opportunity
for students to receive a sound
education in the basic skills
required for operating in our
complex society.
(4) A high standard of student
in making curriculum choices in
relation to career objectives .
(S) Provision of alternative "tracks"
or "streams'' of education so that
the local school is able to
educate in alternative career
development potentials .
(6) Support for English language
training for those who do not
have English as their first
language .
(7) Continued development of teacher
qualifications and skills .
(8) Provision of special education ,
of high quality, for handicapped
students .
Justice

To achieve a just society is one

of the highest goals of man. This
encompasses a society's vie~ of
social j ustice and a refined system of
laws as a safeguard against oppres-
sion, inequality and uncertainty .
Vancouver as a part 01 Canada is
fortunate to live under one of the
world's great systems of juris-
prudence which is administered in all
its aspects by the Provincial and
Federal governments. Municipal in-
volvement has now been phased out
except Eor local by-law
administration.
In Vancouver, the physical
presence of the justice system is
centred in the Provincial Courts on
Main Street dealing in summary justice
and in the new Court House on Hornby
Street which houses the higher courts.
New premises for the Family Court are
i n a process of design and
construction which answers a long-
standing need for better access and
more space and amenities .
Problems in the delivery of jus-
tice traditionally centre on cost ,
delay , equity, and the public ' s
perception that justice is indeed
being done . Vancouver citizens rated
the system's performance as fair , and
it may be unrealistic to expect a
more enthusiastic response to a
process in which there is
customari.ly a winner and a loser.

GOAL: A system of justice which is

universally applied, accessible to
all citizens, and which accurately
reflects the values and conditions
of our society.

Some implications for policy

(1) Support for Legal Aid facilities.

(2) Support for public information
programs to foster community
responsjbility and development
of a caring society .
48
Safety and Security
(4) Civic and private development
(i . e. buildings , streetscape ,
disposition of open areas such as
Public oerceotions of the current squares , etc . ) of such a nature
safety cliwate of Vancouver are high . that it facilitates public safety
The need to put ~ajor efforts into and does not invite crime .
increasing security was not considered
as important as many othe r issues . (5) Development of a police fo r ce
Current oolicing services in Vancouver that is represent ative of the
were rated very positive1y. At the social diversity of the Vancouver
same time, a worsening crime situation population by recr uitment from
was seen as an important factor that ethnic, racial , cultural and
would reduce the enjoyment of life in special lifestyle groups .
the city. Ho~eowners and older
residents were more interested in
safety and security than other mewbers
of society.
Vancouver \..ill always face certain
problems . Part of this is tied to the
influence of the port on the city and
the fact that rany people are just
passinq through. The r ich cultural
lifestyle and ethnic mix of the city
also m~ans that the police have a
special responsibility to be able to
deal fairly and equally with these
people .

GOAL : Provide a high standard of

personal safety and property secur ity
to the residents of Vancouver .

Some implications for policy

(1) Reduct.ion of both the actua l crime

rate and public perceptions of the
crime rate .

(2) Emphasis on the prevention of

criw.e rather than werely
apprehension after a cri~e has
been committed.
(3) Face-to-face presence of police-
men in areas of high criwe
incidence or other social concerns ,
by team policing , beat policemen ,
etc .

49
"I'll say this for Hydro . . • they've managed to keep building power dams as fast as you've
added strings of lights. "

so
Clean City
( 3) Enforcement of by-laws in regard
to unkempt property .
4 Provision of good "street furniture''
.
h air
Te an d water po11 ution
' aspects < > in all parts of the city.
of a clean city are dealt with in
separate sections . What is noted here
relates mainly to matters of visible
lack of cleanliness - litter on streets ,
messy property (lot or structure)
unwanted deposits and general
un.Jcemptness .

While no direct questions were

asked in the surveys on this issue ,
the importance of a "clean city"
surfaced in many voluntary comments.
Indications are that many people feel
Vancouver to be a cleaner city than
many others and, therefore, want a
continued drive or special action
taken to deal with "blots on the
landscape" . Essentially , this is an
area where co-operation from all
segments of the community is important .
City garbage services are recognized
as efficient but cannot deal with all
aspects of this question . Public
awareness in regard to litter ,
property owners ' responsibility
(including public authorities) for
clean and well - maintained premises
and surrounding spaces , good sanitary
practices - a l l are import ant . A
particular problem appears to be caused
by small stores who plaster their
windows and doors with posters,
"specials ", etc. Dirty and (?oorly
painted buses are also seen as a
visual o££ence .

GOAL : Maintain a high standard of

cleanliness in all parts of the city on
private and public premises and in
private and public open spaces .

Some impl ications for policy

(1) Maintenance of standards in
garbage collection and street
c l eaning in all parts of the city.
(2) Continuance of programs designed
to extend street- curbing and
guttering .
52
Utilities
Fe~ aspects of a city reveal so
nakedly the elementary well-being of
urban life as the quality of its
physical utilities. Pure water , clean
well-maintained streets, trouble-free
ar~inage and sewage disposal, safely-
lighted neighbourhoods , pfficient
traffic controls are the essentials
which any city contracts to provide
its citizens . Without these functions
operating smoothly, the standard of
living in a densely-populated urban
area becomes intolerab1y deficient .
Six out of ten vancouverites
rated the Citv's performance in these
areas as satisfactory , buc it shou1d
be noted that the central city and
the northeast arens of the city
registered less satisfaction t:.han tho
others . Renters were somewhat.: more
critical than owners and , in general,
i t appears that Vancouver ' s citizens
are not unanimous in approving the
City's performance .
There are problems associated
with the delivery of these physical
utilities to citizens. A basic
concern is the method of financing
local improvement by increases in
local property taxes . unaer this
system , more affluent neighbourhoods
may consent to pay for improvements
while lower-:income owners und renters
and particularly absentee landlords ,
may reject them . An imbalance in the
provision of some utilities is
believed to have resulted. Another
concern is raised -- that new develop-
ments should contribute to the costs
incurred in servicing them with roads,
lanes, water and sewers . Some
utilities have special problems . ror
instance, the roots of trees damage
sidewalks und sewers . The liability
of the city for. the safety of its
physical ucilities is an on-going
=oncern. Street lightlng is a source
of ir.ritation when it over-illuminates
and shines in people ' s windows or
employs cold blue light . Rigid
standardization of physical utilities,
while efficient for costs and
maintenance , can arouse opposition
in local areas .
53
GOAL : Maintain t he high level of
phys ical utilities in all parts of the
city .
This goal emphasizes the combina-
tion of im1?er.atives for e!f:iciency wit:h
t he need for an equi l able distribution
in all of Vancouver ' s neighbour hoods ,
and flexibility of approach reflecti ng
the na t ure and character of different
districts .
Policy Implications
(1) Establishment of basic standards
of physical utilities including
curbs and sidewalks , to be
achieved throughout all areas of
the city and where upgrading to
this stnndard is necessary , finan-
cing of this from general
revenue rather than local
improvement taxes . Physical
improvements above and beyond this
basic standaro to be financed from
additional taxes on aEfected
properties .
(2) Relaxation of standardization in
some instances in order to meet
the aspirations of local areas
with regard to sp~cial character
in paving , lighting , signage ,
landscaping , street furniture .
(3) Financial caution and sensitivll:y
in street beautific~tion programs
for commercial districts in order
to prevent the exodus of long-
standing small businessess due to
rising rents and Laxes .
(4) Strong commitment to the quality
of iife features of urban life
such as treed streets despite the
extra work created for
maintennnce crews.
(5) Increasing account to be taken of
energy conservation techniques in
the provis.ion of physlcal
utilities , e . g . soft technol ogy
street lighting , lower intensities .
(6) Continued consideration to be given
to the handicapperl in the design
of physical utilities .
Fire Protection
Some implications for policy
Fire protection within the City of
Vancouver is currently considered by
its residents to be very good. The
overt and visible signs of fire safety
(response time, equipment , staff, etc . )
are obviously seen positively.
However, tbere are some types of
issues related to protection considered
problematic . The first is the general
question of the effect fire
prevention regulations have on the
objective of heritage preservation
which appears to be unduly restricted
by the application of modern standards
to older structures .
(1) Examination of fire related
by-laws to ensure that they are
not unduly restricting other
community objectives.
(2) Promotion of a sound "disaster''
plan and increasing resident
awareness of actions to be taken
in case of such an event.
(3) Con~inuation of programs that are
able to combat effectively fire
or disasters aLong the waterfront
or in the harbour areas .

Another relates to the impact of

current £ire prevention on the
provision of certain types of desirable
group homes. For example, a large
family may occupy a house, but if the
same structure were re-used for a group
with the same number of occupants, it
would be subjected to much more
restrictive regulations. This approach
often increases costs and is considered
an undue burden .

Tn another area there is concern

about the potential for disastrous
events that could threaten the well-
being of Vancouverites. Dangerous
substances are often shipped through
Vancouver and may pose a major problem
in the future . Somewhat related is
Vancouver's role as a port city and
the need to be able to fight harbour
ana port-related fires .

GOAL 1: Maintain a high level of

protection from fire and disaster for
the residents of Vancouver and for
property in the city .
GOAL 2 : Take account of the impact of
regulation upon heritage preservation,
social concerns , and the ability of
the city to cope with potential
disasters .

54
Animal Control
(4) Public information programs .

It is recognized that many

thousands of people derive joy,
com£ort and companionship from their
pets. However, it has often been said
that most aldermen - anywhere -
receive more phone calls and letters
about "the log that barks in the
nl.ght" than on any other subject.
Whether this is true or not there is
plenty of evidence that animal control,
in one form or another, is a matter of
reat concern to large numbers of
city resi ents. In the scient1 1c
survey 58% of respondents rated the
C5ty Pound and animal control as fair
or poor, and the subject of increas-
ing animal control rated number six
in the open-ended part of the same
survey as somGthing to be improved .
It is assumed here that this concern
largely applies to dogs -- noise,
feces, running loose , damaging gardens
.nd parks, intimidating children,
elderly citizens and others.
Problems lie very much in the
realm of responsibility. Much depends
on owners as well as on
administration and enforcement of
municipal policy. The Vancouver Parks
Board has recently developed a policy
in relation to parks.

GOAL: Develop policies, by-laws and

information programs designed to
minimize undesirable effects of dogs
and other animals in the city,
particularly on streets and in other.
public spaces.

Some implications for policy

1) Review of experience of other
cities.
(2) Review of function and
administration of City Pound.

(3) Enforcement of any by-laws that

are adopted.
55
 ,.
"Bad news, Ethel . . our Heritage Building designation has been reconsidered

56
Heritage
Preservation of historic elements
in a community - structures, character
areas, landmarks, written and spoken
records, artifacts, local skills, and
even something that might be called
flavour, has long been recognized as
essential to a civilized society.
This is not to suggest that a whole
community should be turned into a
lifeless curio- museum, but rather that
without some on-going evidences of his
past - man tends to be uneasy 1n a
totally contemporary, continually
renewed environment . Preservation of
heritage adds interest, is educational,
provides variety in scale and style,
and ensures continuing recognition of
major contributions to a society
whether through individual action,
historic event, or by building style
and construction. Professor Abraham
Rogatnick in the ucity of Vancouver
Restoration Report" (1969) reminds us
that "Wipe the event away so that it
leaves no marks and it can never be
recalled . . . but its loss will be
apparent'' .
Respondents to the Goals Program
have indicated a high degree of
concern for the protection of historic
buildings and other aspects of heritage
and made a strong statement as to the
importance of their presence.
The archivai aspect of the
preservation of Vancouver's history
appears to present few problems and
is generally well-established . The
major concerns are in relation to
structures and areas which become
vulnerable to the pressures of
changing land values, and the need
for space for new ways of life and new
activities . Also, changing technology,
particularly in the building industry,
has led to standards in construction
which often cannot easily be met or
introduced in older buildinas. A
further problem is: "How much is
enough?" Change is part of the
essence of a city. Where has the line
to be drawn? criteria are necessary .
Nevertheless, heritage goa1s are
important and the following are
suggested .
S8
GOAL l: The city's past should be
embodied in the present and due
attention given to appropriate
conservation and recycling of
structures and areas that are of
special interest for present and
future citizens .
GOAL 2 : ~atural a~enities that have
long been enjoyed by the .residents of
Vancouver should be protected to
ensure the continued enjoyment of
them by future citizens.
Some implications for policy
(l) Support for the City's Heritage
Committee to facilitate
designation of heritage structures
and areas with consideration as
required of uses, recycling,
rehabilitation.
(2) Examination of ways to mitigate
the application of rigid require-
ments in current building codes
to structures considerably
antedating such codes.
(3) Investigation of some form of
benefits or compensation for
owners of designated structures
who may suffer economically by
reason of such designation .
(4) Co- operation with established
agencies in the field of historic
and heritage preservation.
(5) Fostering education in regard to
Vancouver's history by such means
as supporting festivals and special
events.
Energy
GOAL : The City of Vancouver to act as
an example of an energy conserver and,
wherever possible, as a facilitator of
private energy use reduction .
Energy consumption and the need
for conservation is becoming an
increasingly important subject to all Energy use reduction will occur
levels of the community ; local , when all parties become involved in
provincial, national, and global . conservation. The City should act
Immediate major restrictions on energy as a leader in conservation efforts
use are not likely , due to our and not allow waste in areas where it
established lliestyle . Unquestionably, has responsibility and control .
though , reductions are required if
other parts of our standard of living
are to be maintained .
Some implications for policy
The saving of energy is not just
tied to international economics; there (1) Continued support by civic
are impacts that are much closer to departments for examples of
home. The value of our natural setting energy conservation in the private
and relatively easy access to natural sector, as well as the initiation
areas has surfaced over and over again of new demonstrations of energy-
in the Goals Program as a prime factor saving by the City itself . (Turn
in our quality 0£ lile . Continued down thermostat, small cars,
demand for energy expansion has a etc.)
negative impact on these areas with
the need for new darns, strip mining , (2) Promotion of building design that
and generation facilities . On the conserves energy; buildinq code
social side, the escalation of fuel regulations should begin to
prices is dan1aging to lower income evolve in this direction .
households and to those people living
on fixed incomes . (3) Review of street lighting
requirements and light level
The conservation of energy was reduction in certain areas .
indicated as an important objective by
Vancouver residents . Resid e nts below (4) Support for awareness-raising
the age of forty-five were more that can help to reduce energy
interested in conservation. About 90% consumption.
0£ all those interviewed supported
clearly-defined energi conservation (5) Separation and recycling of
policies by the cify or the garbage .
construction of new buildings, public
buildings , transit and transportation.
The work-trip , because of the
separation of employment and residence ,
is a wajor generator of fuel consump-
tion. Building codes could have a
significant effect upon energy savings
but are not used that way at the
present time . Street-lighting in
certain areas is considered to be far
in excess of requirements .

S9
Farmland
Farmland is both an economic and
quality-of-life resource. From the
economic point of view, direct food
production is provided to help meet
the needs of the region's and
province's population. All indications
show that the availability of imported
food will be curtailed i.n the future;
existing farmland in t.he region will
become even more important in coming
years . Indirectly, large nreas of
land ucsignated for agricultural use
provide an economic benefit by
"shaping" regional land use patterns
that can be more easily serviced and
provided with transit .
Farmland and agricultural life-
styles in proximity to the densely
populated areas are positive contribu-
tions to the quality of life in
Greater Vancouver . Whether for week-
end fruit and vegetable shopping,
drives through faro areas, or relief
from the urban centres, the green belt
that clgricultural land provides is an
enjoyment to ouL resinents .
Public endorsement of preserving
agricultural land in the region is
strong, nine out of ten Vancouverites
support.ad this objective . A number of
civic organizations also agreed.
GOAL: Preservation of the remaining
agricultural lands within Vancouver
and support for the preservation of
land suitable for farming in other
parts of the region.
The Southlands area of Vancouver
nlong the Fraser River, is the only
part of the city that has land which
could be considered appropriate for
inclusion in an agricultural reserve.
Future maintenance of farmland around
Vancouver will occur l:hi::ouyh
co-operation and policies develoi:;>ed on
the regional, provincial and national
levels.
Some implications for policy
(l} Continuing City of Vancouver
support for the concepts of the
Agricultural Land Commission and
Agricultural Land Reserve.
(2) Effective communication by City
of Vancouver officials to the
Greater Vancouver Regional
District and the Province of
British Columbia, that agricultu-
ral land protection is an
objective of its citizens.
(J) Support for provincial policies
that help the farming life-style
continue in the region and
encourage the use 0£ agricultural
l«nds for food production.

There are trends that conflict

with the preservation of agricultural
land. With increased popu la·tion
growth and urbanization, there will be
constanL pressure to build upon this
land. There has bean a continual
decline in the amount of agricultural
land in past years. Once built upon,
agricultural land is virtually
impossible to recover. Individual
farms also face problems as lnnd cost
is high and returns on crops are often
not high enough to meet these costs.
There is currently no system of com-
pensation to encourage keeping
agricultural land in production. •The
long- term effect of urban-generated
pollution on the nearby farm lands is
not well understood .
60
Character
and Identity
The identity and image of a place
are closely linked and are compounded
of many factors , its visual character ,
form and scale of development ,
predominant population characteris-
tics, and variety of life-styles .
Vancouver is surrounded by water on
three sides, with a dramatic mountain
backdrop , a densely-towered downtown
on a narrow peninsula , modern concrete
steel and glass structures inter-
mingled with west coast gabled
buildings of cedar, all in a richly-
vegetated setting provided by nature
and by parks and gardens . To this are
added the bridges that cross the local
bodies oE water, the port activities
of the harbour, the marinas for
sailing and other recreation boats.
This image is a strong part of the
city's identity - or perhaps of the
way in which residents identify with
tbei r city. But there are many other
elements of identification -- history
and memories of the changing and
growing city (older residents) ,
opportunities for chosen life-styles,
year-round recreation, ethnic mix with
its variety in faces, styles,
neighbourhoods, shopping .
GOAL 2: Emphasize the development of
both public and private space that
contributes to an attractive
appearance for the city , and
harmonizes with its unique setting .
While both these goals seem
vague ana "motherhood", they need
recognition as a reflection of strong
public sentiment to make the most of
the beautiful natural setting of this
city by building in harmony with it .
Same implications for policy
(1) Emphasize building development
that will reflect distinctive
West Coast styles and materials .
(2) Support heritage preservation .
(3) Support the ethnic and social mix
that gives Vancouver a
distinctive population variety .
(4) Encourage development of local
arts and crafts .
(5) Use local materials, arts and
crafts where possible ,
particularly in public projects .

Almost 80% of survey respondents (6) Identify character areas of the

indicated that they felt it important city (physical , ethnic,
"that a unique identity and image of demographic) and support those
Vancouver be supported ". It would aspects that reinforce the city ' s
seem that this is something that adds unigue identity and image .
to the general satisfaction of living
in this city . This satisfaction and
indeed pride in Vancouver ' s image were
a recurrent thread in the open-ended
responses .
Some concerns expressed were :
possibility of loss oI parks or green
space, proliferation of ••faceless"
architecture, too much of limited
building styles transposed from
elsewhere, and inadequate heritage
'Jreservation .

GOAL 1: Support a unique identity and

image of Vancouver.

61
Quality of Life
GOAL: To manage growth and change so
as to ensure a high quality of lile
for all citizens of Vancouver, and to
recognize that there can be no one
This section deals with something quality of life for everyone, by
rather different from what is callea allowing freedom to choose.
the "standard of living" , although
that is part of it .
Quality of life is both a personal
and a shared experience . Much of Some implications for policy
Vancouver's character is purely a gift
of our exceptional natural setting , (1) Identification of a list of
while other qualities are human social and quality of life
contributions both physical and indicators for Vancouver, which
intangible. The city has built upon would comprise an additional
its natural beauty, having made appendix to the Goals Program of
impressive strides in acquiring the the Vancouver City Planning
features of an urban metropolis commission . (Indicators could
cultural , sporting and entertainment include errployment, income,
facilities , fine restaurants ana housing cost, housing choice,
commercial districts , an impressive pollution, trade and commerce,
skyline anc beautiful gardens, education, health, culture ,
excellent educational institutions entertainment, urban design,
and an i ncreasingly broad population sport , neighbourhoods, parks,
mix . recreation, racial tension,
A large proportion of respondents ethnic variety , services to
to the surveys indicated pride and people, personal safety, property
con tentment with the city ' s quality security, wunicipal utilities
of life , rating it as the number one and services, responsiveness of
cause for satisfaction, although the government, stability and
north-east sector of the city exoressed transition , the management of
change . }
less satisfaction than the southern
and western areas.
(2) A constant striving for a balance
Clearly, many citizens fear that in the distribution of these
there are threats to our quality of quality of life indicator~
life . Older residents recall a throughout the population and
Vancouver that was smaller , more areas of the city , and to upgrade
intimate and friendly , with an where an imbalance exists.
exhilarating pioneer flavour . Others
are concerned that the inevitable
growth may bring in its train,
crowding , pollution, tra£fic congestion ,
racial tension, even cp;eater housing
shortages , loss of neighbourliness ,
and most universally expressed of all -
the overwhelming of our natural
environment by man.
There is anxiety that Vancouver
will begin to lose its precious quality
as a city that is manageable, under-
standable and comfortable for its
residents . While most people applaud
some of the many exciting features of
big-city 1ife, the conflict between
these benefits and the undesirable
results of growth is very real for
others .

62
City Government
In the surveys people were asked
to rate satisfaction with the govern-
ment and general management of the
City of Vancouver. Responses indicated
about one-third satisfied, one-third
dissatisfied (nearly 50% in the general
survey), with the remainder either
"indifferent " or not knowing . It is
recognized that what is involved here
ranges from what is done, to how it is
done, and the kind of structure,
systems and mechanisms used. In view
of this breadth and depth, and the
degree of dissatisfaction expressed by
some respondents, there would appear to
be a need to pursue the matter in
greater detail at a later stage. For
example: Why would longer term
residents be more dissatisfied? Why
would renters be more dissatisfied than
owners? Why do over 60% of those
responding to the sample survey rate
responsiveness of City staff as poor or
fair? How general is the experience
invdlved? Or is it related to some
specific unhappy occ11Irence? However,
while these uncertainties exist,
examination of open-ended responses
and considerable internal discussion
suggest the following as some
articulated concerns :
Slowness and red tape; tendency to
use disincentives rather than incen-
tives; both over and under regulation;
perceived inequity in service
distr.i.bu tion; perception of School
Board and City as one government;
lack of civic presence in local areas;
different perceptions as to whom the
City should serve (business, owner,
tenant); lack of enforcement of
relevant by- laws , and need to remove
those no longer relevant;
information procedures; need for
greater co-ordination.
On a different level , ther~ is
concern about the powerlessness of
cities in tri-level consultation , and
limitation of civic powers within the
Canadia n constitution .
64
GOAL : Ensure that the structure of
the government of the City of Vancouver
its internal systems and relationships
with external systems, its management
style and methodology, reinforce
understanding, confidence and trust
between government and people.
Some implications for policy
(J) Periodically monitor public
attitudes towards government and
management of the City.
(2) Establish a civic presence in
various areas of the city.
(Example : joint meeting of
Council, Schoo) Board, Parks
13oard, held in different parts of
the city during the year would
foster citizen involvement and
show concern Eor all areas.)
(3) Improve the flow of lnformation
about city government and manage-
ment, its guiding principles and
goals, current. policies, programs
under way.
(4) Periodically review by-laws for
relevancy , credibility.
(5) Review enforcement procedures.
{6) Move towards a less departmental
and hierarchical style of manage-
ment by reinforcing a team
approach, with provision for
minority opinions.
(7) Strengthen links between Council,
School Board and Park Board, and
between Council and its appointed
Boards and Commissions in regard
to policy formulation .
(8) Foster good colllrnunication with
other levels of government.
(9) Encourage participation of
elected officials and staff in
appropriate educational activities
to widen knowledge base, improve
skills and encourage informed
change.
(10) Support a stronger role in
government for Canada's major
cities .
Government
Efficiency
(2) Initiation of cost-benefit
studies in relation to major
projects .
Some aspects of government
efficiency are dealt with in the (3) Arrangement for public considera-
sections on City Government, Taxes , tion and discussion of proposed
and Regulation . The use of this sepa- spending priorities and referenda
rate section is mainly to provide for when major capital expenditures
a focus on solvency and efficient are involved .
management of funds . That the City ( 4) A public in£orma tion program re
bas enjoyed good fiscal management is
evident in this City ' s credit rating civic finances .
which is very high. Bowever, t:ax-
payers are assiduous monitors of
public spending and it shoulcl be noted
that 47% of the reseondents to the
general survey mentioned the Impor-
tance of government ef¢iciency. A
strong emphasis on being able to
afford what we want came from the
business community . This draws atten-
tion to the need for recognition of
priorities in civic expenditures, and
for cost-benefit assessments of major
projects.
Without a realistic approach , the
achievement of many different kinds of
goal is actually hindered not
advanced. A comprehensive set of
goals that refers amongst others to
the importance of economic health,
social compassion, environmental
beauty, functional services and
provision of a wide range of amenities
can only be realized in the context of
maximum governmental efficiency. The
whole may be more than the sum of its
parts; but the parts are
inextricably inte:-related .

GOAL : To pursue the goals of the

Vancouver people with an on-going
regard for efficiency and in the
context of strong fiscal
responsibility.

Some implications for policy

(1) Development of a revolving
system of priority planning and
budgeting.

65
Taxes
facilities and services tend to become
centralized in the core city . Some
form of sharing the pressures of this
A major concern essentially responsibil~ty is important .
relates to the whole question of muni-
cipal revenues . A basic principle of
taxing residents through the property
tax was to provide for services GOAL: Continue endeavours to obtain an
relating to the development and pro- equitable apportionment of provincial
tection of property and persons and and federal revenues to raflect
requisite ongoing services. With the Vancouver's role as tho major centre of
tremendous urban development that has population of the province and core
taken place , this particular revenue city providing unique and specialized
source can no longer adequately cope services and facilities.
with the needs of major urban areas .
Several pressures ensue : pressures
to escalate taxes , pressures to
maintain taxes within reasonable
bounds , pressures to find other Some implications for policy
sources of revenue . On the whole,
( 1) Diversified sources of tax
careful management has enabled the
City to keep a hold on rising taxes. revenue to meet cost requirements
It is important , therefore , that every for special facilities,
effort should be made to obtain the education or programs that result
maximum benefit from revenue-sharing from Vancouver ' s role as the
schemes of senior governments and , major city of British Columbia.
indeed , constantly to draw to the (2)
attention of senior governments the Review of the role of the City as
concerns of the major cities. the tax collection agency for otheJ
levels of government .
On a rather different level,
there appears to be some confusion in (3) Negotiations to receive tax reve-
regard to the level of taxes for nue funds directly from the
school purposes and the City ' s rela- Federal Government where possible
tionship to that taxation . There rather than indirectly through the
would seem to be a need for constant Provincial Governmont , to ensure
explanation in this regard . The same equitable distribution.
applies to a n oft-repeated public
perception that practically any kind of
home improvement or maintenance can .
result in higher property t~es. This
can be strong enough to act as a dis-
incentive to home rehabilitation and
here again there seems to be a need
for a constant information program on
the subject of assessment .
Stability in tax rates is
recognized as important. Most particu-
larly, perhaps, in relation to business
tax as uncertainty can easily lead to
investment reduction and this in turn
can affect employment opportunities .
It is also noted that any core
~rban area may well have to assume
responsibility £or meeting special_
problems arising from its geogra~hlcal
position and central role . Special

66
Electoral Process

The question of the appropriate

form of electoral procedures in
Vancouver has been the subject of
considerable discussion .ir, the last
few years . Plebiscites , citizen
presentations, a governmental
commission, Council considerations ,
and a large amount of press coverage
have been involved with the subject .

The plebiscite conducted on the

subject i ~ 1978 supported the concept
o f d istrict representation by a small
majority . One of the conclusions
that can be drawn from this is 'lhat
the community was divided on the
issue . The conclusion of our
contact witn the public was that
there is a split opinion on the issue
of district representation or not .
Both the plebiscite and our contact
indicated this .

More important, as the City

Planning Commission developed the
statement or civic goals , was the
expression of considerable
dissatisfaction by some of the public
with the way elections , representa-
tion -- whether by wara or at-large
and accountability were perceived .

This is a matter of concern .

Until steps are taken to improve this
image, it can be expected that there
will be continuing pressure for
altering the existing method of .. . .. : "
~
..
.
• •• I

government elections . :,:~,:. .

. • ,t!:1::J· I :
• f. .
.'• . i.: :.'....
: ..
GOAL: Promote confidence in our
local civic government by continuously
striving to make i t more accountable ,
locally visible , responsive , and
representative of all elements of the
community .

The fun d amental basis for this

goal is to improve the relationship
o.f the government itself to the goals
of the residents 0£ the city .
67
Resident
Participation
GOAL l : Promotion of the opportunity
for resident involvement in the future
·O f Vancouver and its neighbourhoods as
a basic objective of a sound and
Citizen participation in decision responsive City government and a
making has become an increasingly caring community .
accepted method of helping the process
but citizen involvement is not a
panacea for solving all problems or Many different methods and styles
resolving all conflicts . Election of are available to promote this goal;
governmental representation is , of all methods that encourage public
course, one fundamental form of participation are especially endorsed
participation. However, many issues by the City Planning Comn~ssion as a
are not resolved on election day , long-established citizen body.
either because they have not yet
arisen, or because they are not bro~d
and general enough to be addressed
during an election campaign. For Some implications for policy
example, it is highly unlikely that
the success of Strathcona's reJuven- (1) Involvement of a cross-section
ation could have been accomplished of publics in issues affecting
without the direct participation of the community rather than
its residents; the step-by-step limited or vested-interest groups
decisions required in the project only .
could not have been incorporated into
a political platform. (2) The use of plebiscites or
:referenda for issues that might
Participation can often promote significantly alter our quality
efficiency in government because or style of life, change our
services and programs are provirlec! procedures for making decisions,
that are specifically identified as or that involve untypical1y large
needed by the community . e;<penditures of funds .
Survey respondents strong!~ (3) Provision of appropriate financial
supported the importance of resident resources to realize the stated
participation in government decisions objectives.
affectinq the city. (Over. 90% . ) The
preferred style for participation (4) Encouragerrent of the media to
varied, with support for the use of assume a more responsible and
referendv or community meetings as informative role in making
part of the decision-making process on available the material needed
city-wide issues , and for neighbour- by citizens to make sensitive
hood-oriented issues by attendance at choices about their environment .
occasional meetings . Many indicated
that t.hey welcomed the opportunity to
write down views and feelings for
consideration.
Obstacles to encouraging
participation e>:ist. The depth of
analysis and information on civic
issues provided by the local media
could be improved. The commitment of
local government to participation is
perceived as uncertain ane. uneven. A
clear approach that people can expect
to be used where participation may be
desired remains undeveloped , except
for the Public Hearing process , which
is reactive rather than participatory .

68
Greater Vancouver
Regional District
Most major cities are essentially
regional cities - drawing upon their
surrounding areas for resources,
labour supply, support for core
activities, possibly for food, and
extending to the region the benefit
of their economic, social , cultural ,
and political output and in£luence .
There is thus a high degree of inter-
dependence between a core city and its
region .
While GVRD has had considerable
success in certain aspects (partic-
ularly in service areas) there have
reen problems of inter-municipa1
rivalry and of regional versus local
focus. Further, emphasis has to be
on persuasion and consensus rather
than on political power. The form of
representation (direct election to
Board or appointment) bas also been
an issue. The main concern, however,
cei1tres on identity. In spite of
many and varied public relations and
participation £fforts since its first
meeting in 1967, in spite of effective
chairmanship ana many successfu1
co-operative endeavours, the GVRD
still has a vague place in the minds
of many citizens of Vancouver.
While about one-fifth of
respondents to the Coals Program
indicated satisfaction with GVRD
policies affecting Vancouver, an
equal number were not satisfied and a
rruch larger proportion signified that
they "did not know". This must be a
matter for some concern as , like it
or not, city and region are demon-
strably interdependent in man~ ~ays
and support is needed for polic:i..es
designed to ensure a beneficial outcome
from such interdependence . In other
parts of the Goals Program report the
regional connection is seen as
particularly significant in relation
to planninq, transit and transport-
ation , and employment.
GOAL l: Recognize the interdependence
of the city and its region .
69
GOAL 2 : Maintain and enhance those
physical, social and economic aspects
of Vancouver that have made it the
traditional core or centre city of
its reqion so that the City may
continue to fulfil this role without(
however, impairing its livability .
some implications for policy
(1) Priority for developments in
Vancouver that enhance the city ' s
regional significance symbol-
ically and functionally , but with
regional support for their
development and maintenance where
appropriate .
(2) Transit and transportation
po l icies that improve regional
access to the city .
(3) Economic policies that contribute
to the prosperity of the region
without detriment to the city ' s
prosperity .
(4) Leadership and support for
regional co-operation in tackling
those problems that transcend
municipal boundaries.
(5) Greater dissemination in Vancouver
of information about the GVRD and
fostering of public discussion
of regional policies likely to
have a direct effect upon
Vancouver and its citizens .
(6) Support for regional qoals that
reinforce Vancouver ' s goals.
(7) Long range study of implications
£or Vancouver of the Georgia
Strait region to the west of the
city .
Regulation
Vancouver, geographically contained
by water and mountains, suffers from a
severe shortage of land for new develop-
ment . Raw land no longer exists and all
new construction must replace existing
structures . This increases land costs
and creates conflicts with citizens who
resist change and loss of existing
character. The City is under constant
pressure to create opportunities for
new development by rezoning . In
addition, there are constraints arising
from the need to preserve views and the
natural environment. Population growth,
real estate prices and spiralling costs
of financing have precipitated a
housing crisis which has serious social
implications for the city. The tension
between regulation and the market place
continues. Discretionary zoning,
bonusing and incentives £or design of
public amenity create a better urban
environment but are slower to process
than traditional zoning . Rapid transit
corridors and stops will require
extensive new land-use planning. Mixed
land-use zoning may meet popular
resistance in neighbourhoods .
Public understanding of the ways
the City regulates building and
development was unclear. Emphasis
on reaulating the clesign and appearance
of buildings, however, was clear . The
perceived red tape and delays and
uncertainty of receiving required
approvals is a known problem.
the rational use of land, density of
development, safety of construction,
character of districts, stability of
property, and the public amenity .
Some implications for policy
(1) Creation of opportunities for
development through orderly and
predeter!Tlined land use policy to
discourage applications for spot
rezoning an~ to reduce speculative
instability in property ownership.
(2) Provision of JllOre certai.nty to
development by speedy permit
processes, understandable well-
defined policies and guidelines .
(3) Continuation of the present City
policy of discretionary zoning
to achieve a high degree of public
amenity and urban design responsivF
to its imnediate environment .
(4) Support for the continued operation
of the Urban Design Panel .
(5) Review of building coda require-
ments for renovating and recycling
heritage buildings .
(6) Update of building codes for
energy-saving new construction and
zoning hy-laws which protect access
to sunlight for solar heating .

GOAL : To use regulation in a manner

~ supports the creation of a man-
made city that is worthy of its
natural setting

This goal should ideally be

accomplished by bringing together the
creative and dynamic energies of the
development community in orderly co-
operation with the regulatory processes
of City gov~rnment . The on~.¥__!.ole for
regulation is to help a community
reach its collective goals, not hinder
them, Regulation should seek to guide
70
In Conclusion
Local government has a special responsibility for the day-to-
day care of all those who live within its boundaries. Therefore ,
the first and most important objective of civic policy must be the
improvement of the quality of life of all the people of the city.
* In caring for its citizens , priority should be given to
the needs of those least able to care for themselves ;
children, the elderly , the infirm , the poor , and others who
may be disadvantaged .
* The City is responsible for the provision of many kinds
of facilities , local services, and amenities . Through its
actions in those areas , and through co-operation with senior
governments, the City should do all within its power to
satisfy basic needs of food, shelter , safety, clean water ,
clean air , employment, health, education , recreation .
* Economic development should be seen as a necessary means
toward achieving a better quality of life, and the creation
of economic opportunities conducive to employment is
important .
* The design of the city should provide for an attractive,
enjoyable , safe and convenient living environment . This en-
vironment should provide for ease of movement between, and
access to , places of residence , work and recreation , and op-
portunities for community activities and interaction . There
should be adequate means for maintaining the privacy and
identity of individuals and families .
* Through good environmental management, the City should en-
deavour to ensure for its citizens continued enjoyment of ,
and access to, Vancouver ' s magnificent natural setting .
* The city ' s past should be embodied in the present and due
attention given to appropriate conservation, rehabilitation
and recycling.
* Cultural and aesthetic values reflecting diverse ethnic
origins and lifestyles should be recognized and respected .
* In its deliberations and discussions civic government should
endeavour to reconcile the demands of free expression and
plural lifestyles with the overall public good.

* conservation and good management of resources , and good

civic housekeeping , should be supported as routine procedures
in all undertakings.
* The right and duty of all citizens to participate indivi-
dually and collectively in the government of the city should
continue to be recognized and encouraged .