Week 2 Notes: Official Community Plans (OCPs) — APPL 5140

What are Official Community Plans (OCPs)?

• Long-term vision for a community regarding:
  • uses of land
  • community facilities
  • infrastructure
• Source: City of Langley, OCP
• OCPs do not directly regulate the use of private property; role of Zoning By-law
• Municipalities must have a zoning bylaw if they have an adopted OCP
• OCPs provide a guiding framework that is implemented through other tools (e.g., Zoning By-law) to regulate development
• OCPs are related to but distinct from Zoning By-law and other development controls (e.g., Development Review, Building Code under Province)
• OCPs: Visions and guiding principles and policies; Implements the OCP through permitted land uses and densities

OCP Benefits

• Predict future land use patterns with some certainty using the OCP Land Use designation map
• Provide land use certainty that assists:
  • Planning for infrastructure services (water and sewer mains, roads, fire halls, community centres)
  • Prioritizing spending of finite public money for essential services and infrastructure when needed
  • Locating compatible and supportive uses in proximity to each other (e.g., commercial near residential or office)
• Help avoid negative impacts of development by:
  • Permitting uses and densities that can be supported by infrastructure
  • Prohibiting development in proximity to environmentally sensitive areas and away from watercourses or steep slopes
• Examples referenced: City of Vancouver; City of Richmond

OCP Content (Principles, Structure, and Core Elements)

• OCPs typically include:
  • Text: Vision, goals, objectives, policies
  • Maps: Land uses, environmentally sensitive areas, infrastructure and facilities, parks, schools
  • Principles (often called guiding principles): statements that articulate values
  • Vision: long-term description of what the community will look like; sets the tone for the plan
  • Goals: broad, non-quantified statements of intent
  • Objectives: measurable, time-specific steps toward goals
  • Policies: actions to achieve objectives, with linkage to goals
  • Implementation/Strategies: concrete actions to implement policies
• OCPs organize content into:
  • Introduction
  • Vision, principles, statements of goals/objectives/policies
  • Plan sections (subject areas)
  • Implementation strategy and monitoring
  • Maps/Schedules
• Example structural model (City of Victoria):
  • Direction Setting – Values Component: Vision → Principles → Goals → Objectives → Policies → Implementation Strategies
• Example of plan values and vision articulation (Surrey):
  • Vision statement example: "The City of Surrey will continually become a greener, more complete, more compact, and connected community that is resilient, safer, inclusive, healthier and more beautiful."
• Principles (often called guiding principles):
  • Not always included; when present, they articulate aspects of the vision (e.g., promote walking, cycling, transit; ensure housing choices)
• Goals: broad, general statements of desired outcomes
• Objectives: measurable steps toward goals
• Policies: specific measures to achieve objectives; must connect to goals/objectives they support
• Implementation Strategies: concrete actions with assignment and timing (who and when)
• Example: Implementation within one year of plan adoption to amend the Zoning By-law to add a zone permitting multiple-family, commercial, and institutional uses in neighbourhood service centres
• Points to consider when drafting: language (MAY vs MUST); ensure that goals/objectives/policies/implementation collectively address the what/why/where/how/when/who questions

Vision, Principles, Goals, Objectives, Policies, and Implementation Strategies (Detailed Hierarchy)

• Vision:
  • Describes what the municipality will look like within the OCP’s time period (e.g., 20–30 years)
  • Sets the tone for the plan; broad statements open to interpretation; reflects community values
• Principles (Guiding Principles):
  • Sometimes included; articulate aspects of the vision; used to interpret and apply other elements
  • Examples: "Create a high quality urban environment"; "Promote a culture of walking, cycling and transit use"; "Ensure a broad range of housing choices"
• Goals:
  • Broad statements of desired outcomes; not typically quantified
  • Should be derived from identified community issues
• Objectives:
  • More tangible and measurable than goals; time-specific; intermediate steps toward goals
  • Example: In Neighbourhood Shopping Centres, promote a diversity of land uses and densities that support a wide range of residential, employment and daily shopping, personal service, and enhanced transit service
• Policies:
  • Concrete measures to achieve objectives
  • Must have a clear linkage to the goals/objectives they support
  • Help decision-makers and planners understand relevance
  • Example: A policy that permits a mix of uses in neighbourhood service centres
• Implementation Strategies:
  • Specific actions to implement a policy
  • Should identify "who" is responsible and "when" actions will occur
  • Example: Within one year of plan adoption, amend the Zoning By-law to add a zone that permits multiple-family, commercial and institutional uses in neighbourhood service centres
• Points to consider (Pacing and Language):
  • Distinguish between MAY and MUST
  • Assess collective alignment of goals/objectives/policies/implementation: what, why, where, how, when, who

OCP Organization – Sub-Area Plans

• An OCP may include Area Plans or Neighbourhood Plans; often used in larger municipalities where a citywide OCP lacks detail for specific areas
• Example: Richmond City Centre Area Plan – Sub-Area Plans
• Sub-areas provide more detailed long-term land uses, infrastructure, and facility needs for a specific area or neighbourhood

OCP Elements and Example Structures

• Elements include:
  • Introduction
  • Vision and principles statements
  • Plan sections (specific subject areas)
  • Goals, objectives, and policies
  • Implementation strategy and monitoring
  • Maps (Schedules)
• Example plan sections are aligned with Local Government Act (LGA) content requirements
• City of Victoria direction setting – Values component demonstrates how values feed into Vision/Principles/Goals/Objectives/Policies/Implementation Strategies
• Plan values are typically generated through public consultation and reflected in the Vision and principles
• Example: Vision statement from City of Surrey (illustrative) about greener, complete, connected, resilient, and inclusive communities

Land Use Designations and Implementing Zones

• OCP Land Use Designations describe the long-term intended land use for a property (not a binding, immediate use but a desired future use)
• OCP Land Use Designations Examples:
  • High Density Apartment: intended to accommodate apartment developments in tower forms in high activity areas
  • Medium Density Apartment: intended to accommodate townhouse and apartment developments at medium density up to 8 storeys
• OCP Corresponding Zones Table: for each land use designation, a set of implementing zones is identified
  • Implementing zones may carry policies linked to the corresponding designation

Other Required Maps and Content (Sec. 473)

• Maps:
  • Environmentally sensitive areas (e.g., watercourses) and lands subject to hazardous conditions
  • Major roads; present and proposed sewer and water systems
  • Present and proposed public facilities (schools, parks, waste treatment and disposal sites)
• Text (Sec. 473):
  • Residential development: Location, amount, type and density required to meet housing needs for at least $20$ years; determined through Housing Needs Report (City of Victoria)
• Housing Needs Reports (HNRs) – Division 22:
  • Housing units required to meet anticipated housing needs for the next $5$ and $20$ years
  • Estimates based on projected population, household income, economic sectors, current available housing
  • Must be completed by $2028$-12-31, and every five years thereafter

Housing Needs Reports (Division 22)

• HNRs specify the number and type of housing needed to meet future demand
• Requirements are tied to future planning horizons: $5$ and $20$ years
• HNRs influence OCP updates and required content under sec. 473(1)(a)

OCP Updates and Required Text (Division 22; Sec. 473(2)-(4))

• OCP updates are driven by Housing Needs Reports and related planning considerations
• Key required text updates:
  • Sec. $473(2)$: Housing policies respecting affordable housing, rental housing, and special needs housing
  • Sec. $473(3)$: Greenhouse gas emission reduction targets and policies/actions to achieve targets
  • Sec. $473(4)$: Must consider guidelines established under Sec. $582$ (policy guidelines about process of developing and adopting OCPs; guidelines established after consultation with UBCM)
  • Sec. $473(4)$: Must consider guidelines established under Sec. $585.5$ (Transit-Oriented Areas)
• These sections establish a legislative framework for updating the OCP over time

Permitted Content (Sec. 474)

• Policies regarding social needs, social well-being, social development
• Regional Context Statement: required if a Regional Growth Strategy has been adopted by the Regional District
• Permitted content (but not required):
  • Policies regarding farming, maintenance and enhancement of agriculture
  • Policies regarding the natural environment, preservation, protection, restoration, and enhancement (example: City of Victoria)

How the OCP Supports Municipal Activities (Sec. 478)

• OCPs do not commit or authorize a local government to proceed with any specific project in the plan
• Any bylaws enacted or works undertaken after OCP adoption must be consistent with the OCP
• OCP supports other municipal documents and plans (examples):
  • Official Community Plan (itself)
  • Strategic Plan
  • Transportation Plan
  • Parks Master Plan
  • Infrastructure Management Plan
  • Capital Budget
  • Development Cost Charges (DCCs)
  • Property Taxes
  • Community Amenity Contributions (CACs)
• OCP promotes an integrated, coordinated approach; helps determine long-term funding needs; identifies when services and infrastructure are required to fund in a timely manner (e.g., sewer separation projects)

OCP Organization – Sub-Area Plans – Elements and Examples

• OCP Organization – Sub-Area Plans include:
  • Introduction
  • Vision and principles statements
  • Plan sections (specific subject areas)
  • Goals, objectives, policies
  • Implementation strategy and monitoring
  • Maps (Schedules)
• Example structure (City of Victoria; City Centre Area Plan examples):
  • Vision, Principles, Goals, Objectives, Policies, Implementation Strategies; plan values and community consultation inputs
• Plan sections typically align with LGA content requirements
• Direction setting and values component provide a framework for how Vision and Principles are established and translated into policies and implementation

Examples of Vision, Principles, Goals, Objectives, Policies, and Implementation

• Vision example (Surrey-like formulation):
  • Vision: "The City of Surrey will continually become a greener, more complete, more compact, and connected community that is resilient, safer, inclusive, healthier and more beautiful."
• Principles examples:
  • Guiding statements such as: "Create a high quality urban environment"; "Promote a culture of walking, cycling and transit use"; "Ensure a broad range of housing choices"
• Goals examples:
  • Broad aspirations; not quantified; derived from community issues
• Objectives examples:
  • Measurable, time-bound steps toward goals
  • Example objective: In Neighbourhood Shopping Centres, promote diversity of land uses and densities supporting residential, employment, daily shopping, personal service, and enhanced transit
• Policies examples:
  • Specific measures to achieve objectives; linked to goals/objectives
  • Example policy: Accommodate a range of multi-family, commercial and institutional uses in neighbourhood service centres; allow mixed use (residential above) where possible
• Implementation strategies examples:
  • Concrete actions with responsible party and timing
  • Example: Within one year of plan adoption, amend the Zoning By-law to add a zone that permits multiple-family, commercial and institutional uses in neighbourhood service centres

Points to Consider in Formulation and Interpretation

• Language: May vs Must; clarify requirements
• When evaluating: ensure goals, objectives, policies, and implementation strategies collectively address:
  • What is the issue of concern?
  • Why address it? Rationale
  • Where? Geography/area
  • How? Methods or approaches
  • When? Timing
  • Who? Responsible parties

OCP Land Use Designations and Implementing Zones (Tables and Maps)

• Land Use Designations define long-term intended use for properties within the plan area; not an immediate rule but a guide for future development
• Land Use Designations examples:
  • High Density Apartment – intended to accommodate tower-form apartment developments in areas of high activity
  • Medium Density Apartment – intended to accommodate townhouse and apartment developments at medium density up to 8 storeys
• OCP Land Use Designations correspond to Implementing Zones:
  • A table identifies which zones implement each designation and any policy association
• Other required maps include:
  • Environmentally sensitive areas, lands subject to hazardous conditions
  • Major roads; sewer and water systems
  • Present and proposed public facilities (schools, parks, waste treatment and disposal sites)

Adoption, Consultation, and Amendments (OCP Process)

• OCP Adoption:
  • Must be adopted by bylaw
  • By-law is the primary legislative instrument for BC municipalities
• What is a bylaw?
  • A local law established by a municipality; a form of delegated legislation; province sets higher-level laws
• OCP adoption process (LGA sec. $477$):
  • After first reading, must consider the proposed OCP in conjunction with its financial plan and any waste management plan
  • If the proposed OCP applies to land in an Agricultural Land Reserve, refer to the Agricultural Land Commission for comment, then proceed
  • Public hearing must be held on the proposed OCP
• ALR (Agricultural Land Reserve):
  • Land designated under the Agricultural Land Commission Act where agriculture is the priority land use
  • ALR is applicable within City of Richmond
• Agricultural Land Commission (ALC):
  • Independent administrative tribunal; role is to administer the ALR, oversee all proposed land uses within the ALR to ensure consistency with the Act and ALC regulations/policies
• OCP Consultation (LGA sec. $475$):
  • Local government must consider opportunities for early and ongoing consultation
  • Specifically consult with regional district, adjacent municipal council, First Nations, boards of education and greater boards and improvement district boards, and the provincial and federal governments and their agencies
  • This is in addition to the required public hearing
  • If ALR is affected, consult with the ALC
• Additional consultation activities (sec. $475$):
  • Public meetings or open houses
  • Information posted on website or via social media
• School District Consultation (sec. $476$):
  • Local government must consult with the School District Board when preparing or amending an OCP, and at least once in each calendar year
  • Seek input on actual and anticipated needs for school facilities and support services; size, number and location of sites anticipated to be required for school facilities
• OCP Amendments:
  • Occurs when a municipality updates an already adopted OCP; change or addition of a goal, objective, or policy (text amendment); change in land use designation on a property (map amendment)
  • Early and ongoing consultation required
• OCP Referral Check-list and Public Notification ads are typical components of amendments
• OCP Examples and Summary Points:
  • OCPs are adopted by bylaw; they are a critical, essential document for a municipality
  • They are the only municipal plan document required to be adopted by bylaw
  • All municipal activities must be consistent with the OCP
  • OCPs are both visionary and policy directive documents; land use designations are not necessarily the immediate, mandatory uses but reflect long-term intended use
  • OCP land use implementation occurs through the Zoning By-law
  • OCPs are not the same as the historical City Beautiful movement; they are modern, statutory planning documents
• Class Exercise references (for practice):
  • OCP Goals, Objectives and Policies: Richmond examples and schedules (links provided in class materials)

Quick Reference: Key Section and Page References (from the slides)

• OCP Required Maps and Text: Sec. $473$ (Local Government Act)
• Housing Needs Reports: Division $22$; Sec. $473(1)$, $473(2)$, $473(3)$, $473(4)$
• Permitted Content: Sec. $474$
• ADOPTION and Consultation: Sec. $477$ and Sec. $475$ (Consultation) and Sec. $476$ (School District)
• Transit-Oriented Areas: Sec. $585.5$ guidelines
• ALR and ALC processes: ALR designation and ALC consultation requirements
• Four readings required for bylaw adoption: Four readings as per Municipal Council process

Additional Notes and Common Takeaways

• OCPs are the foundation document for municipal planning; all other plans and budgets should align with the OCP
• Land use designations guide long-term planning, while zoning by-laws translate those designations into enforceable rules
• Housing needs and greenhouse gas policies are central to modern OCP updates
• Public consultation and collaboration with other governments and agencies are integral to adopting and amending an OCP
• Understanding the difference between visionary/policy content (OCP) and regulatory tools (Zoning By-law, Development approval processes) is essential for exam questions