Official Community Plan white papers

We’ve developed a series of white papers that examine four key areas — including housing, transportation, climate emergency, and economy and employment lands — as part of our review of the District's Official Community Plan.

The purpose of each white paper is to break down complex issues and provide important background information on each topic area. Each white paper also includes a list of potential actions we could take to address key issues, with recommendations on ways to achieve goals and policies. 

Council will use the findings from the white papers to develop an action plan.

On this page

This page contains 'snapshots' of each of the four white papers. These snapshot summaries are designed to give you an overview of the key issues, causes, and possible solutions identified in the white papers.

There is a link to download the full version of the white paper at the end of each snapshot.

1. Transportation  |  2. Economy and employment lands  |  3. Housing  |  4. Climate emergency
 


1. Transportation

OCP goal: Provide a safe, efficient, and accessible network of pedestrian, bike, and road ways and enable viable alternatives to the car through effective and coordinated land use and transportation planning.

Progress since 2011

OCP target: 35% of daily trips by walking, cycling, or transit

  • Walk mode share is up (11.2% from 7.8%) (TransLink, 2019)
  • Bike mode share is up (1.5% from 0.7%) (TransLink, 2019)
  • Transit mode share is down (7.2% from 9.0%) (TransLink, 2019).
  • 20% of all daily trips are by walking, cycling, or transit – up from 17.5% in 2011 – this indicator is moving in the right direction, but the rate of change is not sufficient to meet the OCP’s target (TransLink, 2019)

Graph of trips by walking, cycling, and transit for 2011, 20017, and 2030

Key issues

It's difficult to move around the District quickly and reliably

  • There is limited east-west road capacity across the North Shore
  • The Ironworkers Memorial and Lions Gate Bridges have been at capacity during peak hours for more than five years
  • Travel times are highly variable – small changes in traffic volumes, incidents, and weather conditions can result in much longer travel times

Transit service is unreliable

  • 6 of the 20 least reliable transit corridors in Metro Vancouver impact District residents. Two of these six corridors are within the District’s municipal boundaries (TransLink, 2019)
  • Traffic congestion increases transit costs because more buses are required to maintain the same service. Between 2014 and 2019,​ TransLink spent an additional $19.6 M annually to offset the impacts of traffic congestion (TransLink, Meeting of the Mayor’s Council on Regional Transportation, 2019)
  • Lack of adequate transit service affects low income people more as they do not have the option to use personal vehicles

Travel by walking/wheeling and cycling seems unsafe and undesirable

  • Stakeholders noted that feeling unsafe is the main reason residents do not walk, wheel, or bike

What is causing these issues?

Recent building activity and population growth is not the main cause of congestion

  • Transportation issues predate occupancy of the new buildings in the Town and Village Centres and is not closely tied to overall population and employment growth or housing starts on the North Shore (INSTPP, 2018)
  • Traffic volumes have increased for many reasons, including increased through traffic from the growing communities along the Sea-to-Sky corridor and an increase in the number (and distance) of vehicle trips made by District residents

Traffic volumes have increased within an already busy road network

  • The Burrard Inlet Crossings were already at capacity during peak hours almost 10 years ago. Consequently, even a small increase in traffic volume noticeably impacts the ability to get around
  • Daily traffic volumes on the Ironworkers Memorial Bridge increased 9% between 2013 and 2018 (an increase of more than 10,000 vehicles per day)

"I work along Marine Drive and when traffic bound for the Lions Gate Bridge gets backed up (sometimes to McKay), it makes it hard for customers to access the business." Resident (provided during early public engagement in 2019)

Until Town and Village Centres are more fully built, it will be difficult to realize transportation improvements

  • The best way to get more people walking, biking, and taking transit to meet their daily needs is to build complete communities
  • Town and Village Centres are located along the Frequent Transit and future RapidBus networks, which will significantly increase transit ridership
  • Redevelopment in the Town and Village Centres allows the District to acquire land and funding to support transportation priorities, including AAA cycling and pedestrian networks, transit priority lanes, bus queue jumpers, signal improvements and turn lanes

Transit is not given a higher priority than private vehicles

  • Because buses also use general purpose lanes on most roads, transit travel times and reliability are negatively impacted by slow and highly variable conditions
  • Based on data from TransLink’s 2017 Trip Diary and an assessment of the BC Ministry of Transportation’s Permanent Count Station data
  • Based on assessment of the BC Ministry of Transportation’s Permanent Count Station data

Lack of complete walking/wheeling/biking networks

  • Approximately 10% of arterial roadways (and 60% of all roadways) in the District do not have a sidewalk on either side
  • The existing cycling network is discontinuous, with a limited amount of space that feels safe and comfortable for people of all ages and abilities

"I take the bus to work - I live in North Burnaby. I can't afford to live in North Vancouver. If I drove, it would probably take me 20-30 minutes in the morning, but it takes me closer to 1.5 hours." North Burnaby resident working in the District (provided during early public engagement in 2019)

How is this topic related to the others?

Housing

Safe, comfortable, and reliable transit and active transportation connections increase housing affordability by decreasing the overall cost burden of housing and transportation.

Reliable public transit can reach more people when residential growth is concentrated in compact, connected centres.

Review the housing summary

Climate emergency

Transportation accounts for 52% of GHG emissions in the District, 96% of which is from passenger vehicles (Integral Group LLC, 2019).

Increased use of sustainable transportation choices will reduce GHG emissions.

Review the climate emergency summary

Economy and employment lands

Businesses locate in areas where their employees can get to work easily and where they are able to get goods to market efficiently.

Lack of efficient and reliable transportation options (to and within the District) is cited by the business community as a key barrier to attracting and retaining employees.

Businesses are leaving the District because their employees can’t get to work.

Review the economy and employment lands summary

What will make a difference?

Get transit moving

  • Transit reliability is largely within municipal control – providing transit priority measures, such as transit lanes, transit queue jumps, and transit signal priority are the responsibility of the District
  • TransLink is more likely to invest in bus services where the local government has already made investments to improve transit reliability

Invest in sustainable transportation infrastructure

Investing in infrastructure such as sidewalks and bike lanes will make walking and biking more appealing to residents

Continue to direct growth to Town and Village Centres

  • Building complete communities is the most effective way to lower trip distances, which in turn makes walking and cycling more attractive choices
  • Complete, higher density communities also make it easier to provide frequent, reliable transit to more people, jobs, services, and destinations
  • Growth in Town and Village Centres will increase the amount of housing within walking distance of public transit, which is expected to increase transit ridership

Specific potential actions related to the three directions provided above are listed in the White Papers. Council will decide which of the potential actions to include in the Action Plan.

References

 

Download the transportation white paper

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2. Economy and employment lands

OCP goal: Support a diverse and resilient local economy that provides quality employment opportunities.

Progress since 2011

OCP target: 36,000 jobs by 2030

  • As of 2016, there were 32,705 jobs in the District (Statistics Canada, 2017)
  • The District has made good progress towards its target but may face setbacks if challenges are not addressed
  • In general, the economic profile of the District is quite diverse. No one sector accounts more than 11% of the total workforce (Statistics Canada, 2017)

New employment floorspace​ (OCP targets increase of 33% by 2030)

  • Total employment floorspace has grown by 104,600 ft2 since 2011 (1.3% growth) (District of North Vancouver, 2017)
  • District needs to grow by 2.3 million ft2 by 2030 (approximately 155,700 ft2 per year) to achieve OCP target

Key issues

Employers find it difficult to attract and retain workers

The local business community cites this as a common constraint and leading reason why some businesses consider relocating outside the North Shore.

Businesses that want to grow have increasing difficulty finding floorspace/land to grow

The local business community notes recent examples of businesses not being able to find enough appropriate space to expand their operations

Independent businesses are finding it increasingly difficult to survive

  • The local business community notes that small, independent businesses are having difficulties for a whole host of reasons
  • The vibrancy of the District’s neighbourhoods depends on independent businesses

Some businesses are not locating in preferred locations

  • Population-serving commercial uses (e.g. micro-breweries, commercial gyms, daycare facilities) locating in prime industrial and employment nodes undermines the intent of these areas.
  • Non-retail businesses occupying space on retail main streets undermines the vibrancy of these areas

The District is not viewed by the business community as 'open for business'

The local business community has communicated various frustrations, such as: general lack of responsiveness from the District; lengthy approvals processes; and lack of prioritization of economic issues.

What is causing these issues?

Lack of affordable housing and reliable, efficient transportation

Employers cite lack of affordable housing and lack of reliable transportation as the top reasons it is difficult to attract and retain employees.

Limited land supply for employment purposes

  • As of 2015, there was only 1 ha of vacant industrial land remaining in the District (Metro Vancouver, 2016)
  • Competition for space is driving up rents and land values, putting pressure on existing businesses to relocate outside of the District, or shut down altogether

"I'm struggling to find and keep employees because housing is too expensive and people don't want to commute here because of the traffic." Local business owner (provided during early public engagement in 2019)

Rising commercial and industrial property assessments

  • Current property tax assessment methods tie value to potential value of a site
  • These costs are often pushed down to tenants, creating a cost factor that may be contributing to business challenges and possible relocation – small businesses feel these impacts most

Current land use regulations do not fully protect employment uses/ensure street vibrancy

  • Industrial areas should be protected for “dirty/noisy/messy” uses, particularly those that are unable to locate elsewhere in the District
  • Industrial users note increased competition for space with population-serving commercial uses (i.e. micro-breweries, commercial gyms, daycare facilities) in prime port-adjacent and trade-enabling industrial areas
  • Intensive employment uses should be directed to areas served by transit (e.g., Town Centres, commercial corridors)
  • The prevalence of certain non-retail businesses (gyms, daycares, offices) occupying space on the ground floor of retail main streets is perceived to be undermining vibrancy of these areas
  • The District’s Zoning Bylaw has not had a major revision since 1995

"Transportation and housing must be addressed - these are fundamental to the economy. There are other issues, but they pale in comparison to the housing and transportation issues our employees face and we face as employees." Local business community (provided during early public engagement in 2020)

How is this topic related to the others?

Housing

Lack of affordable housing options is cited by the business community as a key barrier to attracting and retaining employees.

Review the housing summary

Transportation

Businesses locate in areas where their employees can get to work easily and where they are able to get goods to market efficiently.

Lack of efficient and reliable transportation options (to and within the District) is cited by the business community as a key barrier to attracting and retaining employees.

Businesses are leaving the District because employees can’t get to work.

Review the transportation summary

Climate emergency

Businesses can make operating decisions to reduce fossil fuel dependence.

Climate change will impact local businesses, particularly those located in areas subject to sea level rise.

Attracting clean tech businesses to the District is a strategic opportunity.

Review the climate emergency summary

What will make a difference?

Improve housing and transportation options

These are the biggest issues for the business community – see White Paper Snapshots on Housing and Transportation.

Improve cooperation and collaboration with economic partners (e.g., the North Vancouver Economic Partnership, port-related industries, independent businesses)

  • Many communities establish formal municipal functions/roles to help facilitate connections with the business community.
  • The better connected the District is with the local business community, the better able it will be to respond to business needs.

Regularly update land use regulations

  • Draft Metro Vancouver Industrial Lands Strategy recommends that municipalities regularly review land use regulations to ensure:
    • lands are protected for employment uses
    • land use conflicts are mitigated
    • employment uses locate in preferred areas
    • alignment with regional goals

Actively monitor and report on local and regional economic trends and development

  • Economic trends tend to move quickly, resulting in demand shifts that may occur much faster than OCP update periods
  • Active tracking of economic indicators and trends in real estate, employment, and land absorption will enable more proactive policy development at the municipal level

Specific potential actions related to these themes are listed in the White Papers. Council will decide which of the potential actions to include in the Action Plan.

References

 

Download the economy white paper

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3. Housing

OCP goals: Encourage and enable a diverse mix of housing type, tenure and affordability to accommodate the lifestyles and needs of people at all stages of life, and foster a safe, socially inclusive and supportive community that enhances the health and well-being of all residents.

Progress since 2011

New affordable housing units

OCP target: a net increase in affordable housing units by 2030

  • Since 2011, the District has approved 288 net new non-market housing units and 462 net new market rental units (District of North Vancouver, 2019 A; District of North Vancouver, 2019 B)
  • The District has made progress, but affordable housing remains an immediate crisis. The extent of these needs should be determined through a housing needs assessment

Graph showing attached housing in the District for 2011, 2016, and 2030

Housing diversity

OCP targets a housing mix of 45% attached and 55% detached residential units by 2030

  • Between 2011 and 2016, the percentage of total housing stock that was attached increased from 31% to 33% (District of North Vancouver, 2017)
  • To reach the OCP target, the pace of development of attached housing units will need to increase

Homelessness

Regionally homelessness increased by about 30% between 2014 and 2017 (BC Non-Profit Housing Association; Thomson, M., 2017)

  • While the Metro Vancouver Point-In-Time Homeless Count showed a decline from 122 to 100 counted individuals between 2011 and 2017 (the most recent count conducted) this methodology has limitations (Regional Steering Committee on Homelessness, 2011; BC Non-Profit Housing Association; Thomson, M., 2017). A new Homeless Count is being conducted in March 2020
  • Based on a survey conducted in 2016 of homeless service providers on the North Shore, there were 300 individuals experiencing homelessness on the North Shore. This statistic provides an accurate reflection of client-load for those organizations (District of North Vancouver, 2017)

Key Issues

Increasing housing unaffordability

  • The percentage of households that are in core housing need remained at 11% between 2011 and 2016. This is lower than Metro Vancouver’s 18% (Statistics Canada, 2019)
  • In 2016, housing costs deemed affordable for a renter household earning the median income for the District were $1,484 per month (Statistics Canada, 2017) while the median rent for purpose-built rental was $1,375 (CMHC, 2020). However, median rents increased by 24% between 2016 and 2019, to $1,707 (CMHC, 2020), likely outpacing growth in median renter incomes
  • Housing unaffordability is putting pressure not only on low-income households, but also moderate- and middle-income households
  • Housing unaffordability is likely starting to impact community demographics - between 2011 and 2016, the proportion of young adults aged 25 to 39 remained at 14%, which was lower than the regional average of 22%. There was a decrease in adults aged 40-54 and growth in ages 55+ (Statistics Canada, 2017).

"I grew up in North Vancouver and wanted to stay, but it was too expensive." Former resident (provided during early public engagement in 2019)

Lack of housing diversity (form and tenure)

  • In 2016, 67% of the District’s housing stock was detached housing; 33% was attached housing (District of North Vancouver, 2017)
  • From 2011 to 2016, renter households increased by 2% to 21% of all households while owner households decreased from 81% of all households to 79% (Statistics Canada, 2011; Statistics Canada, 2017)
  • Different segments of the population need different types of housing and these housing needs typically change over one’s lifetime

'Missing middle' of residents ages 25 to 39

  • Between 2011 and 2016, the proportion of young adults aged 25 to 39 remained at 14%, which was lower than the regional average of 22% (Statistics Canada, 2017)
  • If external factors do not change, the District will be populated mainly by those who were fortunate enough to purchase housing before the market changed, and by affluent households who can afford real estate

"I live with six friends in a two-bedroom house in Lynn Creek. It's the only way I can afford rent. We'll probably have to move soon as our house will be knocked down for new development. Not sure what I'll do next." Resident (provided during early public engagement in 2019)

What is causing these issues?

Diversification of housing stock is too slow

  • Non-market and market rental units are not being developed fast enough to reduce the number of District residents who live in core housing need or to improve affordability in moderate- and middle-earning households
  • In 2016, there were 3,105 households in Core Housing Need (Statistics Canada, 2017)
  • There is a shift towards multi-family housing, but more significant changes will be needed to achieve 2030 targets

Lack of funding

The District dedicates $500,000/year to a reserve for affordable housing. However, the District does not currently dedicate a specific portion of CACs to that reserve – doing so could significantly increase available funds.

Aging rental housing stock

Much of the existing stock of non-profit, co-op and purpose-built rental housing is older; without maintaining or replacing this older stock of housing, housing challenges will be exacerbated.

How is this topic related to the others?

Economy and employment lands

Lack of affordable housing options is cited by the business community as a key barrier to attracting and retaining employees.

Review the economy and employment lands summary

Transportation

Safe, comfortable, and reliable transit and active transportation connections increase housing affordability by decreasing the overall cost burden of housing and transportation.

Reliable public transit can reach more people when residential growth is concentrated in compact, connected centres.

Review the transportation summary

Climate emergency

We can build and heat our homes in ways that reduce GHGs.

Many District homes are subject to natural hazards exacerbated by extreme weather.

Reliable public transit can reach more people when residential growth is concentrated in compact, connected centres. This will reduce vehicle use and GHGs.

Review the climate emergency summary

What will make a difference?

Initiate municipal investments in affordable housing

  • The District can provide active contributions (land and/or capital) to increase affordable housing supply
  • Affordable housing advocates cite provision of land as the most significant action municipalities can take to support affordable housing

Partner with senior governments and not-for-profit organizations

  • Partnerships are an opportunity to take advantage of programs offered by other levels of government
  • Partnerships with not-for-profit organizations in the housing industry, such as Habitat for Humanity, can help the District deliver affordable housing

Enact land-use plans and regulations that facilitate the development of a diverse housing supply in the right locations

  • Local governments can regulate both housing form and tenure
  • To best support affordability (and sustainable transportation), residential growth should be directed to Town and Village Centres
  • District land use and housing plans should consider housing plans in neighbouring communities, including First Nation communities

Leverage private sector development to acquire affordable housing

  • This strategy has been successfully adopted in many other municipalities
  • Municipalities can secure affordable housing without incurring significant financial cost
  • Municipalities can also provide incentive packages such as expedited approval processes, mixed market buildings, density bonuses, parking reductions, DCC waivers or reductions, and housing agreements that lock in housing affordability over the long-term to facilitate the development of affordable housing

Specific potential actions related to these themes are listed in the White Papers. Council will decide which of the potential actions to include in the Action Plan.

References

  • BC Non-Profit Housing Association; Thomson, M. (2017). Homeless Count in Metro Vancouver
  • CMHC (2020), Housing Market Information Portal
  • District of North Vancouver (2017) Official Community Plan Implementation Review Report
  • District of North Vancouver (2019 A). Housing Task Force Request For Information Memo. District of North Vancouver, November 28, 2019
  • District of North Vancouver (2019 B). Capital Projects Funded by Community Amenity Contributions. District of North Vancouver, Council Workshop, July 7, 2019
  • Statistics Canada. (2011). National Household Survey
  • Statistics Canada. (2017). Census 2016
  • Statistics Canada. (2019). Custom Census Tabulation, Census 2016. Government of British Columbia, Ministry of Municipal Affairs.

 

Download the housing white paper

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4. Climate emergency

OCP goal: Develop an energy-efficient community that reduces its greenhouse gas (GHG) emissions and dependency on non-renewable fuels while adapting to climate change.

Progress since 2011

OCP target: 33% reduction in community GHG emissions by 2030

  • Between 2007 and 2016, community emissions decreased by approximately 10% (Integral Group LLC, 2019)
  • This trend is in the right direction, but if the “business as usual” scenario continues, emissions will increase by 19% by 2050 (Integral Group LLC, 2019)

Corporate GHG emissions (OCP Implementation Review targets reduction of corporate GHG emissions)

  • Between 2012 and 2018, District corporate emissions decreased by approximately 10% (District of North Vancouver, 2019)

Key issues

Extreme weather

Since 2014, the District has experienced heat wave warnings, extreme drought conditions that have reduced reservoir levels, large regional wildfires that have affected air quality, and intense rainfall events that have caused flooding and debris flow.

Rising sea levels

Since much of the District borders the ocean, rising sea levels will impact its land base. This may include industrial lands as well as residential lands. Under the current scenario, Metro Vancouver’s sea level is projected to rise by 1m by 2100 and 2m by 2200 (District of North Vancouver, 2020).

Adaptation measures will be costly; however, the cost of inaction will be even higher.

"People are concerned about the environment but aren't willing to change their behaviour and drive less." Resident (provided during early public engagement in 2019)

District residents are dependent on fossil fuels for transportation and heating

  • Fossil fuel use is the largest contributor to GHG emissions in the District (>90% of emissions) (Integral Group LLC, 2019)
  • Dependence on fossil fuels must be reduced in order to meet the District’s GHG reduction targets

District residents depend on fossil fuels to heat their homes and businesses

  • We are still dependent on fossil fuels for heating our buildings
  • Buildings account for over 40% of the District’s total GHG emissions (Integral Group LLC, 2019)

District residents predominantly use passenger vehicles fueled by fossil fuels to get around

  • Transportation accounts for 52% of the District’s total GHG emissions, of which approximately 96% comes from passenger vehicles (Integral Group LLC, 2019)
  • In 2017, nearly 80% of trips were made by passenger vehicles (TransLink, 2019)
  • Lack of sustainable transportation choices and dispersed development patterns exacerbate the issue

"Climate is the link to everyting. Jobs close to housing reduces emissions." Resident (provided during early public engagement in 2019)

There is a misconception that individual actions don’t have a significant impact

  • For some, the climate emergency seems so large that they believe individual actions have no impact (good or bad)
  • In fact, individual actions are key to reducing GHGs – the cumulative impact of individual choices can lead to significant GHG reductions

How is this topic related to the others?

Housing

We can build and heat our homes in ways that reduce GHGs.

Many District homes are subject to natural hazards exacerbated by extreme weather.

Directing residential growth to compact, connected centres, reduces reliance on cars.

Review the housing summary

Transportation

Transportation accounts for 52% of GHG emissions in the District, 96% of which is from passenger vehicles (Integral Group LLC, 2019).

Increased use of sustainable transportation choices will reduce GHG emissions.

Review the transportation summary

Economy and employment lands

Businesses can make operating decisions to reduce fossil fuel dependence.

Climate change will impact local businesses, particularly those located in areas subject to sea level rise.

Attracting clean tech businesses to the District is a strategic opportunity.

Review the economy and employment lands summary

What will make a difference?

Increase energy efficiency of homes and buildings AND switch to non-carbon energy sources

  • 61% of houses in the District were built between 1951-1980 (District of North Vancouver, 2017). There is a significant opportunity to improve the energy efficiency of the District’s homes
  • Funding is currently available at the federal and provincial levels to help address fossil fuel dependence and fuel switching. Municipal top-up funding would help to further incentivize fuel switching

Get more people walking, biking, and taking transit AND shift to electric vehicles

  • The best way to reduce GHG emissions from transportation is to get more people travelling by sustainable modes of transportation
  • Switching to electric vehicles will also help reduce GHG emissions
  • To encourage these changes, the District will need to design complete communities that support walking, cycling, and transit use, while also providing charging stations for electric vehicles

Increase the resiliency of municipal assets (built and natural) to climate change

  • It is now best practice to consider climate change when managing infrastructure and community assets
  • The District will likely need to reassess how it designs, builds, operates, and maintains infrastructure to account for climate change.
  • It will also be important to identify and protect natural assets.

Specific potential actions related to these themes are listed in the White Papers. Council will decide which of the potential actions to include in the Action Plan.

References

  • District of North Vancouver (2017). Progress Towards 2030: Official Community Plan Implementation Review Report
  • District of North Vancouver (2019). Climate Action Revenue Incentive Program (CARIP) Public Report for 2018
  • District of North Vancouver (2020). Sea Level Rise Strategy
  • Integral Group LLC & District of North Vancouver (2019). Impact 2050 Community Energy & Emissions Plan
  • TransLink (2019). 2017 Trip Diary

 

Download the climate white paper

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