14 minute read
1.7 Existing Policy Documents
The NEFC Directions for the Future document summarizes the recommendations and research from the NEFC High Level Review. The NEFC HLR had previously developed rather broad directions for developing the NEFC area, including rezoning, density, and land use. This document outlines a vision statement and principles to support the vision, which expresses a need for mixed-use development, advancing sustainable development, creating a distinctive sense of place and a unique destination within Vancouver, encouraging innovative forms, fostering a vibrant waterfront and more. Within each direction that aims to support the vision, the document also outlines somewhat more specific ‘guidelines’ on achieving the goals. For example: “3.1.9 Provide opportunities for urban agriculture” (NEFC Directions for the Future, 2009, p. 13), or “3.2.3 Make NEFC more attractive with distinctive identity, vibrant public spaces and lively venues and streets” (NEFC Directions for the Future, 2009, p. 15).
Advertisement
NORTHEAST FALSE CREEK DIRECTIONS FOR THE FUTURE
Amended to include Council Resolution passed at November 17, 2009 Council Meeting
Draft Date: October 13, 2009 Amendment Date: November 14, 2013
City of Vancouver Planning Department
City of Vancouver NEFC Directions for the Future October 2009 Page 1
Figure 16: Cover Page of ‘Northeast False Creek: Directions for the Future, 2009’
Figure 17: Cover Page of ‘Greenest City 2020 Action Plan, 2011’
Greenest City 2020 Action Plan, 2011
The GCAP was put into place as an attempt to make Vancouver the greenest city in the world by 2021, with additional long-term goals for 2050. Vancouver City Council approved the plan in 2011 after over 35,000 people worldwide assisted in its development. The GCAP includes strategies relating to clean water, green buildings, carbon footprints, waste, transport, air quality, and more (Canadian Urban Strategies, 2019). So while Vancouver didn’t make the top 10 list of greenest cities in the world in 2020, it did make the list in 2021.
The sheer amount of people consulted on the development of the document is admirable, because it is not just professionals whose opinions are valuable, but also the people who live, work, and learn in so-called Vancouver. Additionally, the plan’s focus on access to nature with the goal that every person has access to a park or greenway within a 5-minute walk from their home is something to value as well (Canadian Urban Strategies, 2019).
Northeast False Creek: Issues Report, 2011
Figure 18: Cover Page of ‘Northeast False Creek: Issues Report, 2011’ The purpose of the NEFC Issues Report was to seek approval from the Council regarding rezoning applications, further analysis of the Creekside Park extension, changes to proposals of a sports and recreation centre, non-market housing, rental housing, a public plaza, daycare, and the demolition of Enterprise Hall. Of particular importance is the request for the provision of nonmarket housing and that it be secured within the existing site plan and situated within the already proposed buildings.
Housing and Homelessness Strategy 2012-2021, 2011
Between 2002 and 2010, the number of people who experience homelessness increased by 3 times, which prompted the creation of this report by the socalled city of Vancouver (with 1605 experiencing houselessness in 2010). The document describes the city’s direction for housing over 10 years, including the different types of housing necessary to meet citizens’ needs: affordable housing for all levels of income; and accessible housing for all physical abilities. The report commits to ‘enabling’ 2900 new supportive housing units (2011-2013: 1700 units; 20122014: 450 units; and 2015-2021: 750 units); 5000 additional social housing units (Includes 1000 SRO units); 11,000 new market rental housing units (5000 purpose-built rental units and 6000 secondary market units such as suites or laneway houses); and 20,000 market ownership units. However, it remains unclear as to why 20,000 market value units would help house people experiencing homelessness.
Figure 19: Cover Page of ‘Housing and Homelessness Strategy, 2012-2021’, 2011
Figure 20: Cover Page of ‘Vancouver Homeless Count, 2019’ With no follow-up reporting on the development of committed units, it’s difficult to gauge whether or not this was successful. The Vancouver Homeless Count (2019) prepared by the Homelessness Services Association of BC, the BC Non-Profit Housing Association, and Urban Matters CCC, states that the number of people experiencing houselessness has increased from 1605 in 2010 to 2223 in 2019. The Homeless Count in Metro Vancouver (2020), prepared by BC Non-Profit Housing Association for Reaching Home’s Community Entity for Greater Vancouver, shows a slight dip in people experiencing houselessness with a total number of 2095 in so-called Vancouver proper. These numbers are highly dependent on who is available to interview in the twoday period in which interviews are conducted and may not encompass the area’s actual homeless population. The survey for the 2020 report was conducted two weeks before the so-called BC government declared a state of emergency due to Covid-19, and the numbers presented have likely increased with the pandemic.
Figure 21: Cover Page of ‘Downtown East Local Area Plan’, 2014
Downtown East Local Area Plan, 2014
The Downtown East Local Area Plan (2014) was prepared by the City of Vancouver and the Local Area Planning Process (LAPP) Committee. The LAPP Committee included representatives from low-income and middle-income residents, various community groups, non-profit housing organizations and social service organizations. The goal of this plan was to ensure the future of the DTES is responsive to and improves the livelihood of those who live in the area. More ‘specific’ ambitions are to make the DTES safer, supportive, and more liveable. The plan includes ‘plan principles’ in the following categories: Neighbourhood Development, Housing, Local Economy, Health and Well-being, Arts, Culture and Heritage, Transportation, and Parks and Public Open Space. Many of the policies proposed in the plan are very broad such as “6.7.1 Preserve and enhance the existing residential heritage character of the Strathcona residential area”, or “Facilitate compatible new residential and mixed-use development, while reinforcing the existing scale and character of the area” (City of Vancouver, 2014).
Figure 22: Cover Page of ‘City of Vancouver Coastal Risk Assessment Phase 2 Final Report, 2015’ The report seeks ways of decreasing vulnerability in at-risk areas: “We encourage the City to consider further policy options that help at-risk areas become less vulnerable to the effects of sea-level rise and flood events over the natural course of infrastructure cycles.” p ii. & “False Creek and Flats (FC): is a zone that has many key existing and future infrastructure assets, including plans for a new St. Paul’s Hospital, a new energy facility serving the downtown core, Pacific Central Train Station, Main Street-Science World SkyTrain Station, BC Place, Rogers Arena, and the rail yards, among others. This area is projected to be vulnerable to flooding in the future. City staff and stakeholders were clear that protecting these assets is both important and
feasible. Depending on actual observed rates of sea-level rise, significant protective flood-management actions will be required before 2100. Of the protective alternatives we examined, a sea barrier seemed to be somewhat preferred by stakeholders over a raised seawall, though more refined engineering explorations would need to be undertaken to properly clarify the trade-offs, costs, and feasibility associated with these alternatives. ” p iii
There is no mention of False Creek and the Flats being home to thousands of at-risk communities or their livelihoods. This working group believes that infrastructural assets must be protected from degradation and that they should be fortified to protect ourselves from climate disasters such as those mentioned above. But efforts must be centralized around communities likely to be affected first, and those who don’t have the resources to protect themselves. The largely immigrantbased, Black, and Indigenous communities found in Strathcona, Chinatown, and Downtown Eastside neighbourhoods adjacent to low-lying False Creek is such a population.
Further geotechnical engineering may be a solution using infrastructural ecologies. This community needs support, healing, and elemental and climate protection, and can be visualized as land, food, and water sovereignty. With significant consultation and guidance, using traditional knowledge of the Black, Indigenous, and surrounding Asian communities can aid in this strive toward neighbourhood adaptation. Ultimately this may actualize a safe space that celebrates, slows, retains, and stores water. This may take the form of vertical gardens, floating gardens, aquaculture, sponge city, or giant wetlands or cisterns; perhaps it looks at the destruction of the seawall and the return to the mudflat and marshlands that once protected the space.
Figure 23: Cover Page of the Georgia and Dunsmuir Viaducts, 2015’ The Removal of the Georgia and Dunsmuir Viaducts (October 6, 2015) is based on the Dunsmuir and Georgia Viaducts and Related Area Planning (June 18, 2013) report. It touches on a series of previous planning studies and initiatives from the so-called city of Vancouver. This report outlines a phased strategy of removing the viaducts in tandem with the future developments of the False Creek area, with specific focus on transportation and funding issues. It’s unclear as to why the city continues to plan large-scale infrastructure projects on soil that has potential settlement and liquefaction issues from the imminent earthquake in this region. In summary, this report concludes that the viaducts must be taken down. The cost of maintenance over the next 15 years will cost $8-10M, and the price to seismically upgrade them for the imminent earthquake would cost an additional $50-65M. There’s no
reason for keeping the viaducts based on their use. Currently the viaducts are being used at half the capacity as to which they were designed for, and will have little to no effect on transit based on traffic analyses.
Northeast False Creek Conceptual Plan: Appendix A of this document provides a preliminary conceptual plan for the area. It reiterates the 11 guiding principles from the Northeast False Creek Plan and focuses on fiscally responsible design that the so-called city presents as progressive. The Hogan’s Alley area (labelled as the ‘cityowned’ blocks) visualizes a mid-to-highrise building complex lined with trees and lacks context in form and the needs and wants of the community. NEFC Consultation Strategy: Appendix C of this document outlines the consultation strategies for future works within the area. It offers an extensive list of potential stakeholders and groups based on their interests. Individual residents are mentioned but local groups, such as Hogan’s Alley Society, are left out of this document. It goes on to outline which groups are to be involved in each process of the future of Northeast False Creek Plan. In the creation of design options, the only stakeholders to be involved are city staff and developers. It intentionally leaves out community members, working groups, and advisory groups out of the ‘creating options’ phase of design.
Carefully examining this report was paramount in the creation of this document. The report is a documentation of the three-day workshop facilitated by the so-called city of Vancouver, with the Hogan’s Alley Working Group, a design team from Perkins+Will, and a landscape architect from PWL. The workshop occurred in May of 2017. The workshop began with a tour of the site, introductions, visioning, idea development, programming, diagramming, and discussions. “If executed well, the redevelopment of Hogan’s Alley can address these challenges and fulfill many of the community’s needs associated with a sense of place” (HAWGWR, 2017, p. 8). The document summarizes the recommendations for redevelopment to include a cultural centre, diverse and accessible housing, a framework for small businesses, open space for activities and recreation, a distinct character and sense of place, and programs and infrastructure to support Vancouver’s Black community. The city recommends the inclusion of a fire station onsite. This was unanimously opposed by the entire community. The authors of the overall site guidelines document condemn the inclusion of police or fire stations on the subject property.
Figure 24: Cover Page of ‘NEFC Sub-Area 6D East Block - Hogan’s Alley Working Group Report, 2017’
Northeast False Creek Plan, 2018
Figure 25: Cover Page of ‘Northeast False Creek Plan, 2018’
The Northeast False Creek (NEFC) Plan was developed by the so-called city of Vancouver and seeks to act as a framework for guiding new growth, development and public investment within Northeast False Creek over 20 years. This document (or rather its 2017 version) contains the approvals for the redevelopment of the subject property by Perkins+Will, including rezoning from M1 to CD1, a variety of buildings with heights up to 22 storeys (west of Main Street) and up to 14 storeys (east of Main Street), commercial uses, residential uses, a childcare facility, a cultural centre, and non-profit office space. The subject property is located within sub-area 6-D, the Main Street District and Hogan’s Alley. The document outlines 11 guiding principles for the replacement and redevelopment of the Georgia and Dunsmuir Viaducts and surrounding areas and contains detailed guidelines and plans for the area’s future development. The Hogan’s Alley Site Guidelines (current report) document adopts the street layout from the NEFC Plan.
The NEFC Plan is a relatively progressive policy document; however, it’s not without fault. Issues found in the document include the historical section, which only allocated four sentences (and is the briefest history) for MST, the communities with the longest history on these lands. Policies in this document state to “explore creative ways of using [MST] culture to inform design” (4.1.8). This is hugely problematic as uninformed appropriation of cultural designs shouldn’t be taken on by the city or other designers, not from these Nations. Additionally, building forms outlined by policies are lacking action and become contradicting to the wants and needs of the community. For example, policy 10.4.6 looks to pay homage to front porches by creating a covered gathering space in front of the cultural centre, which doesn’t actually provide the same neighbourhood scale social atmosphere and offers no real actionable item. Policy 10.4.12 wants to ‘stitch’ the community together with bridges and vantage points for people watching, a clear contradiction for the community’s wants to not be watched. It also looks to recall the former ‘H-frame’ structures that used to line Hogan’s Alley which at the same time suggested the creation of high-rises. Similarly, policy 10.4.29 guides the creation of fine grain interwoven building fabric. It consistently references smaller-scale buildings while only recommending large-scale structures which are not for the existing community.
Blue-Green Systems, 2019
As part of the Rain City Strategy (2019), blue-green systems began as an action item within the Streets and Public Spaces Action Plan. Blue-green systems are networks of park-like streets that are connected as a network and manage water in a way that aims to replicate natural functions. The main goal of bluegreen systems is to slow the speed and volume at which rainwater runoff enters the underground system. This can be achieved by using green spaces such as rain gardens or wetlands to remove pollutants and absorb the water so that less water enters the pipes. In turn, we can also reduce the effects of urban heat island and remove pollutants from our air and in our water bodies (City of Vancouver, 2019).
Figure 26: Cover Page of ‘Blue-Green Systems, 2019’
Rain City Strategy, 2019
Figure 27: Cover Page of ‘Rain City Strategy, 2019’ Vancouver’s Rain City Strategy includes many goals with the vision that “Vancouver’s rainwater is embraced as a valued resource for our communities and natural ecosystems” (City of Vancouver, 2019). Some of the goals include improving water quality, increasing resilience through sustainable water management, and enhancing the city’s livability by improving natural and urban ecosystems. The strategy also contains targets, objectives, design standards, guiding principles, transformative directions, and action plans. A significant focus of the strategy is green rainwater infrastructure (GRI), which can take many forms, such as absorbent landscapes, permeable pavement, rainwater tree trenches, resilient roofs, and bioretention.
The document is highly comprehensive, with numerous direct design implications at numerous scales and suggestions of reasonable action items. However, while the document outlines a goal to explore intersectionality and reconciliation with Indigenous Peoples, there is a lack of clarity or explicit consideration of Indigenous TEKnology (City of Vancouver, 2019).
