Industrial land use and economic policy created by the City of Vancouver between 1968 and 1991 is analysed within a context of economic restructuring to illustrate how these types of policies may be improved. Within this time frame, the City of Vancouver had three distinct periods of policy development that were largely delineated by local political and economic factors. The first period was characterised by a liberal-based civic party in control of the local administration, a healthy urban economy, and a post-industrial sentiment that did not support the industrial community and resulted in a significant decrease in the city's supply of industrial land. In the second period, an increasingly left of centre local government was forced to contend with the poor economic conditions of the early 1980s; consequently, the industrial sector and the economy as a whole received considerable attention and support from the local government. The third period was characterised by the re-birth of post-industrialism and a right of centre administration with little interest in economic planning or maintaining an industrial sector in the City of Vancouver. The main lessons to be drawn from this policy analysis are (1) that the modern economy will continue to change rapidly and generate significant consequences and challenges for civic governments, (2) there are benefits to planning for the future rather than simply accommodating change as it happens, (3) the short sighted agendas of politicians need to be tempered by an assessment of the long term consequences of policy development and implementation, (4) there needs to be co-operation between the region's numerous public bodies to ensure complementary policy development across municipal boundaries, and (5) governments need to be proactive and engage in economic planning during both growth and recessionary economic periods in order to embrace new economic opportunities as they arise, mitigate the negative consequences that change often generates, and help produce strategic visions for planning purposes.

The project began with a comprehensive investigation to discover and define the crucial elements of design in high density housing that foster a strong and rich sense of community. Both historical precedents and current Vancouver projects were studied to determine their attitude toward community in dense housing situations. I found the designs that were most successful in preserving a traditional sense of community demonstrated a far greater respect for one's individuality. They provided a strong frame for variable urban living, which reflects the pluralism of urban life. The program for this thesis was a live/work community and one live/work building within that planned community. The site for this exploration was South-East False Creek. The resolution of my proposal began with developing a new housing fabric, a prototype that could be used at South-East False Creek or in other areas of the city. The fabric I developed is a more intimate, finer slice of the existing Vancouver city grid. By maintaining some of the critical dimensions of Vancouver's city grid, the design of the new fabric can either fit into the existing grid or occur next to it. The community plan provides several distinct adjacencies for the buildings: live side, work side, park side and street/parking side. My concern with the design of the building was to identify a set of possibilities that are inherent in the community fabric, which show the diversity of the building itself as well as the flexibility of the space within the units.

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The primary objective of this thesis is to examine the opportunities and constraints for transforming "contested" public space into "shared" place in Vancouver's Downtown Eastside. This examination is informed by: a literature review of public space theory; a review of City of Vancouver policies pertaining to public space conditions in the Downtown Eastside; a case study of community-driven public realm initiatives in Pioneer Square in Seattle, Washington; personal experience both working in, and observing conditions in the Downtown Eastside, and a review of current initiatives in the area that are working towards improving the public realm in the area while building consensus between opposing community groups. This research indicates that public spaces play an important role in the everyday lives of city dwellers, particularly for those who, due to homelessness and poverty, rely on public space for recreation and socialization, and in many cases, to live. However, as the central city is becoming an increasingly attractive place to live for middle and upper income households, conflicts can ensue over who has the "right" to use the public realm. What often occurs is the exclusion of the poor and marginalized segment of the population to "make way" for amenities that serve higher income residents and visitors. Conditions in the Downtown Eastside have deteriorated, yet at the same time, development both within and around the area has created distrust and hostility between different community groups. However, recent initiatives are working to make improvements while building trust between different, often hostile community groups. Ideally, planning for the public realm should have a significant amount of community involvement and control. The case study of Pioneer Square indicates that this is possible, although a sufficient amount of trust and consensus is needed from the outset. While the Downtown Eastside possesses many attributes which provide opportunities for public realm improvements, planners from outside the community should play a significant role in any initiatives, due to the lack of consensus and tension between community interests.

This thesis addresses the subject of organizational effectiveness in municipal governance. It specifically examines the possibility that urban planning agencies may resolve complex social problems more effectively when using a management approach characterized by "transformational leadership," teamwork, flexibility, and creativity; an approach that fosters the development of innovative planning policies, procedures and/or designs. Successful, innovative, and creative business enterprises that endorse such a holistic management approach have been called "learning" and "well-performing" organizations. The management and transformational leadership attributes that encourage an organization to "learn" relies on a combination of techniques, including non-hierarchical communications, enhancement of job satisfaction, continuous learning, emotive and motivational psychology, and team approaches to creativity and problem solving. A popular term has been coined that captures the essence of successful implementation of these attributes in combination: Excellence. The rationale for examining the concept of Excellence in the context of urban planning agencies' organizational effectiveness derives from assertions made in the planning and governance literature suggesting that such a business management approach may significantly improve government operations. Some writers argue that a new approach to governance is sorely needed. The concept of encouraging attributes of Excellence in local government planning practices has been extolled as a cure for economic and political inequalities, restricted avenues of communication, outmoded operating procedures, "turf wars, and various motivational barriers to innovative practices that limit the effectiveness of governments (and urban planners). Many of the innovative practices lauded in the business management literature as attributes of Excellence appear similar to the community development concepts of individual empowerment, citizen participation in local planning and decision making, collective effort to resolve local issues, consensus building, and visionary leadership. This thesis studies the case of the City of Vancouver's Department of Social Planning and Community Development from 1968 to 1976. The two primary research methods used are: analysis of archival documents concerning Vancouver's social planning department; and, open ended interviews conducted with sixteen key informants familiar with the history, practices, and planning approaches used by department personnel during the study period. The findings of this thesis are that: 1) the social planning department originally exhibited elements of innovation, flexibility, teamwork, transformational leadership, and other attributes associated with the concept of Excellence; 2) in some cases, these attributes may have temporarily overcome various barriers to effective planning and problem solving by developing innovative solutions to minor urban social problems; 3) those innovative elements were not unanimously supported nor encouraged in other municipal departments or community agencies, thus indicating that diffuse innovative practices throughout other organizations was a difficult endeavor; 4) over time, attributes of Excellence faded from the social planning department as the early excitement and energy of planners wore off and new planners were hired to replace the original social planners who had decided to move on to other projects. The important lesson learned is that these supposedly "new" management practices, introduced into business enterprises to help overcome barriers to productivity, efficiency, or effectiveness, are themselves vulnerable to similar organizational, political, or behavioral barriers over time. Constant vigilance, monitoring and evaluation of values, goals, communications strategies and structures, and organizational results are required to sustain Excellence. Greater promotion of Excellence concepts that explain business success may legitimize the expansion of participation of individuals in goverment institutions and result in improvements to their effectiveness. Urban planners, and social planners in particular, should therefore be interested in concepts like Excellence and Learning Organizations as heuristic usable in their search for effective planning, organizing, and management practices toward intentional interventions in social welfare. Without a systematic approach and understanding of the complex variables and dimensions involved, concepts like Excellence may be treated simply as catch-words and trendy marketing ploys. However, as the thesis will show, planners may discover that further research into the qualities and attributes of individuals working in a collective organizational environment, may yield positive strategies for furthering institutional reforms that view workers as factors of human development rather than as units of productivity and efficiency. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

In recent years, dissatisfaction with the quality of the urban environment has become widespread, and opposition to many development proposals has been mounted by citizens groups across Canada. Yet all attempts to improve the environment so far have proved relatively ineffectual. The thesis argues that the environment will continue to deteriorate unless massive changes are made in the structure of decision making which surrounds the urban development process; the major change required being meaningful participation by citizens in making the decisions that affect their lives. A first step towards this goal is the attainment of a clear and comprehensive understanding of how urban development occurs at present. Citizens must be informed before they can be involved. The thesis presents an initial description of the urban development process and outlines the conceptual basis for the construction of a simulation model of the process. It is argued that because of the complexities of urban development, a simulation technique seems appropriate. Given an operating model, it would be possible to test proposals for change on the model before implementing them in reality. Using Metropolitan Vancouver - a typical Canadian urban region - as a data base, the thesis examines the types of public dissatisfactions with the urban environment. These are then translated into the more general categories of urban problems, such as soaring housing costs, transportation congestion, urban sprawl, poverty, pollution and so on. Through a literature survey a number of processes suspected as being related to these urban problems were identified. Two kinds of processes emerged: those which lead to population and economic growth (the ones usually considered in urban models), but also those processes which constrain policy formulation and implementation, such as fragmented authority, inadequate research and development, uncoordinated planning, the pressure of developers. Both types need inclusion in the model. These processes were investigated through a number of case studies of the system in action: downtown redevelopment schemes, Vancouver transportation proposals, a public urban renewal project, a shopping centre proposal, etc. Basic chronologies of events were prepared for each case; the events were then abstracted into a set of actions with the (organizational and individual) actors who engaged in them and the criteria (goals or constraints) upon which the actions were based. These actions were then grouped into related processes. A preliminary conceptual mock-up of the model was made, and a program of research outlined which involves the analysis of factors affecting major processes and the development of values suitable for computer manipulation. At this stage of the work it appears that the building of the model is indeed feasible and that such a simulation will prove most useful in understanding the urban development process. / Applied Science, Faculty of / Architecture and Landscape Architecture (SALA), School of / Graduate

The implications of urban expansion as a dynamic, evolutionary process are far from self evident. Such problems as the ecologically sound allocation of land resources and the orderly provision of essential services in urban fringe areas, are not being solved. The importance of the rural-urban land conversion process, in long range planning for metropolitan regions, requires that a method be found for describing the likelihood of the rate, extent and location of urban expansion. Within this context the study is concerned with firstly, the shortcomings of present methods for examining and forecasting urban expansion. It is pointed out that the regional planner needs to understand the dynamics of land assignment, in the urban expansion process, if he is to know in advance the probable consequences of his actions and be able to fulfil planning objectives. That this elementary point is frequently ignored or misunderstood can be seen in the attempts to prescribe how a process should behave, instead of first trying to discover how it does behave. This is most noticeable where techniques are used which entail optimization or conditional prediction, based on generalized and unrealistic assumptions of human values and behaviour. As a result, the dynamics of change, including the influence of chance events, are usually left unaccounted for in actions subsequently taken. Restrictive zoning is an example, which more often than not seeks to force rather than fit or guide urban development. Secondly, a simulation model of rural-urban land conversion is developed for the Vancouver Regional Simulation Project, to demonstrate the advantages of experimental strategies and synthetic models in regional planning. The viewpoint is taken that urban expansion can be represented as a spatial diffusion process. When formulated stochastically, spatial diffusion processes account for uncertainty in land assignment practices. The model is organized in a regional systems framework, with structural properties (i.e., thresholds, boundaries, and lags), and feedback interactions, represented, to reflect the complex and dynamic nature of urban expansion. It is emphasized that the future cannot be forecast, on the basis of past and present conditions, with sufficient reliability for long range planning purposes. While it is implicit in the model formulated that emerging patterns of rural and urban land use bear some functional relationships to historical patterns, they are not constrained from evolving into new and different forms. Special attention is paid to change and chance mechanisms to avoid indiscriminate extrapolation of present trends. The experimental nature of the model is considered its greatest strength. Because it facilitates experimental monitoring and regulation of process behaviour, we are made more aware of critical thresholds and capacity limits within metropolitan regional systems. Consequently, planning policies, compatible with the dynamic urban expansion process, can be devised with greater assurance of their success, and regional planning goals can be achieved more readily. Thus the approach is submitted as a progressive step beyond the traditional reliance on specific predictions, as a primary basis for regional planning. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

The central problem which overhead electric transmission lines pose for suburban areas is that right of way location decisions made in earlier years have influenced, and sometimes determined, the present overall pattern of suburban development and especially its residential aspects. The study is therefore limited to considerations of the impact on residential areas. The result has been that past decisions made by one agency on the basis of technical determinants and economic criteria applicable to a utility project have often been responsible for the present form and pattern of urban areas. Another problem is that in the suburban areas near those lines which have ugly structures and unmaintained rights of way, there is an adverse effect upon the quality of adjacent residential development. This effect is most marked in those areas which are striving for urban standards of residential density and neighbourhood amenity. Almost equally important with the effects which power lines may have on the areas they pass through is the simple fact of the tremendous amount of land which they use and alienate for most other urban uses. The study is concerned with the impact of overhead electric transmission lines on suburban areas, and not with electric lines at distribution voltages. Extra high voltage lines are of special interest to planning, for they present technical and economic problems which either preclude or make impractical converting them to underground forms. Accordingly, as overhead transmission lines are likely to have continuing effect, the following hypothesis is advanced. Because the location of overhead electric transmission lines has had considerable influence (sometimes adverse) on the spatial pattern of residential development, there is need for coordinating the requirements of the utility agency and the appropriate planning agencies. The study describes in some detail those locational requirements and standards of electric transmission lines which have a bearing upon the use of land. The optimum locational requirements for overhead electric transmission line rights of way and suburban density and types of residential development are shown to be nearly identical. The two are therefore in competition for the use of land, and this competition is most marked in suburban areas where land values are lower than in the central city. A specific examination is carried out of transmission line effects on the suburban residential area of Surrey, British Columbia, which is an urbanizing municipality on the fringes of the Vancouver metropolitan area. The case study shows that there is a significant correlation between the present pattern of residential development, as measured by assessment values and population distribution, and the presence of transmission line rights of way. The study concludes that the presence of the lines is the most likely causal factor. That the influence has been sometimes adverse is not as definitely established, but the conclusion may be inferred from subjective evaluation of the aesthetic evidence presented. Further study of objective evidence is called for. The statement in the hypothesis that it is necessary to coordinate the requirements of the utility agency and the appropriate planning agencies is basically valid, but is felt to be inadequate. It is concluded that the activity must, wherever possible, be an integrative one, and involve many other departments of government, including the federal. It is suggested that an integrative Provincial Development Department could well be the most effective method of controlling the more unfavourable aspects of electric transmission line right of way location and appearance. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

The retail sections of central business districts of municipalities of British Columbia have a low degree of retail compatibility. Many unrelated commercial and other land uses that exist within the prime retail areas of central business districts weaken the degree of retail compatibility of the prime retail areas. The hypothesis of this study is that planning measures can and should be taken to improve the low degree of retail land use compatibility existing in the central business districts of municipalities in British Columbia. The need for study of this subject is justified on the basis of the importance and concern placed on central business districts. The improvement of a central business district must include the improvement of the retail section which comprises a vital component of any central business district. The decline of the shopping function in central business districts has been the cause of serious concern to planning and city officials alike, and needless to say, to the affected retailers as well. The convenience factor can be increased appreciably in a retail area which is planned or partially redeveloped to increase the degree of retail land use compatibility. Similarly, the tax base of the municipality would be improved because of the increased viability due to greater retail compatibility in the central business district. The central business districts of the three municipalities of Duncan, Grand Forks, and Castlegar in British Columbia are investigated in the study. It is shown that the degrees of retail compatibility in the central business districts of the three municipalities are poor. The main objectives of the study are to identify and analyze certain planning measures which could be implemented to improve the degree of retail compatibility. The reclassification of the widely-permissive general business type of zoning category is desirable in order to improve retail compatibility. The objective of reclassification is to direct the grouping together of compatible retail land uses, as well as other commercial uses commonly found in central business districts. On the basis of analysis of the attitudes of the three municipal councils, it is concluded that reclassification is politically feasible and it is strongly recommended that reclassification to be seriously considered by planning agencies for recommendation to their respective councils. The elimination of nonconforming uses that constitute "dead spots" in the retail areas of central business districts is urged strongly. It is revealed that this problem has been neglected to date by the selected municipal councils as reflected by the lack of enforcement of the statutes of the British Columbia Municipal Act to control or eliminate nonconforming uses. It is suggested that amortization approach to eliminate nonconforming uses which is used in parts of the United States should be added to the British Columbia Municipal Act. It is suggested that it is necessary for the municipal councils to review their policies in relation to reclassification of general commercial zones and in relation to the elimination of "dead spots"' within a comprehensive central business district planning program. The use of Federal Urban Renewal Legislation to improve commercial areas is a distinct possibility to achieve a higher degree of retail compatibility. It is recommended that the objectives of a central business district urban renewal scheme should coincide with the objectives of a comprehensive central business district planning program. The inclusion of a scheme to improve retail compatibility within a central business district renewal scheme appears to be politically acceptable. Also, the potentially affected retailers appear to be in favor of schemes to improve retail compatibility. It is concluded that planning measures can and could be taken to improve the low degree of retail land use compatibility existing in the central business districts of municipalities in British Columbia. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate

This thesis is aimed at solving two common problems in local municipal planning agencies in metropolitan areas: first, the problem of proceeding with making long-range plans in the face of current, daily responsibilities, and second, the problem of making realistic plans in the context of the forces and pressures of metropolitan life. The hypothesis is formulated that advance planning services can be supplied more efficiently to municipalities in a metropolitan area by a common agency than by municipal planning agencies. It is assumed that the common planning agency is a department of a federated type of metropolitan government, and that it is required to produce a metropolitan general plan for official adoption. In this investigation, which is intended to provide material for use in Canadian metropolitan areas with populations of 400,000 and over, two basic research techniques are used: a review of literature and a case study examination. A framework is developed for testing the efficiency, in a wide sense of the word, of advance planning agencies. In the review of literature, the concept of division of labour as a basic component of bureaucratic organization, is described, and then a survey is made of situations in which planning is carried out by a department of a metropolitan government, using the official plan technique. The instances are the metropolitan areas of Toronto, Winnipeg and Dade County, Florida. It is observed that difficulties can arise when there is a question of local communities surrendering some of the rights to control development within their boundaries. Alternative means of carrying out metropolitan planning are described, as well, principally with reference to the United States. The area selected for the case study is the metropolitan area of Vancouver in British Columbia. A questionnaire is developed to test the capacity of local planning agencies to make soundly-based plans, which interlock with the plans of neighbouring communities, and which harmonize with the goals and values of their own communities. The questionnaire is applied to a sample of local planning agencies, and, for comparison, the agency responsible for planning, the Lower Mainland Region, of which the Vancouver Metropolitan Area, constitutes a part. A second questionnaire is used to discover the attitudes of selected mayors and reeves towards metropolitan government and metropolitan planning in the Area. It is concluded from the case study that a metropolitan planning agency can carry out basic analyses better than local agencies can, and that a metropolitan general plan would reduce points of friction between municipalities relating to land use. It is also noted that the reeves and mayors are far from unanimous about the advantages of metropolitan government and metropolitan planning. Proposals are made for improving long-range planning of local municipalities, through the establishment of a system of metropolitan planning in the Vancouver metropolitan region. It is concluded that, while in general, it is advantageous for a metropolitan area to have some form of planning agency at the metropolitan level, it is impractical to assign all advance planning to such an agency, since long range planning is required at the micro-scale as well as at the macro-scale. It is therefore apparent that while the administrative system proposed in the hypothesis can assist the production of meaningful local plans in the metropolitan context, it can only partially reduce the pressure of work on local planning agencies. It is noted that there is widespread reluctance to assign decisive planning powers to metropolitan governments. An alternative hypothesis is evolved for further testing. It is suggested that investigation be carried out into the influence of geography on attitudes toward metropolitan co-operation; and it is recommended that consideration be givencto using the universities to conduct basic metropolitan studies. The influence of senior government decisions on metropolitan development is noted, and a recommendation is advanced to facilitate more comprehensive urban and metropolitan planning. / Applied Science, Faculty of / Community and Regional Planning (SCARP), School of / Graduate