RENT CONTROL AND RENT DECONTROL IN BRITISH COLUMBIA: A CASE STUDY OF THE VANCOUVER RENTAL MARKET, 1974 TO 1989 By CELIA C. LAZZARTN B.A., The University of British Columbia, 1982 B.S.W., York University, 1987 A THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS in THE FACULTY OF GRADUATE STUDIES The School of Community and Regional Planning We accept this thesis as conforming to the required standard The University of British Columbia April 1990 0 Celia C. Lazzarin, 1990 In presenting this thesis in partial fulfilment of the requirements for an advanced degree at the University of British Columbia, I agree that the Library shall make it freely available for reference and study. I further agree that permission for extensive copying of this thesis for scholarly purposes may be granted by the head of my department or by his or her representatives. It is understood that copying or publication of this thesis for financial gain shall not be allowed without my written permission. Department of ^d^j/ii^iytT jdstd^AJ^v The University of British Columbia Vancouver, Canada DE-6 (2/88) - ii - ABSTRACT This study examines the impact of rent control and rent decontrol on the rental sector. The city of Vancouver is used as an empirical case study to determine the accuracy of the assertions and predictions made by rent control opponents about the nature of the impact of British Columbia's rent control policy. The study begins with a review of the rent control literature in order to identify the theories presented by rent control opponents and supporters. The study then reviews the political debate over rent control and decontrol. A chronological summary of British Columbia's rent regulation system follows which illustrates the action taken by the politicians. Finally, the assertions and predictions made by rent control opponents about the impact of rent control are assessed by comparing them with the practical experience of Vancouver's rental market from 1974 to 1989. Rent regulations were in effect in British Columbia from 1974 to 1984. This study focuses on three particular stages during the period rents were regulated: a) the introduction of rent control from 1974 to 1975 by the New Democratic government; b) the beginning of rent decontrol from 1977 to 1978 by the Social Credit government; and c) the elimination of rent control and rent review from 1983 to 1984, also by the Social Credit government. Rent control opponents argue that rent control causes the following detrimental effects: a) decreases rental construction; b) reduces building maintenance; c) increases conversions from rental units to condominiums; d) increases demolition of rental - iii - buildings; e) creates excessive demand for rental housing; and f) reduces the municipal tax base. The most important finding is that there is no discernable relationship between the nature of the regulatory framework and the level of rental construction, rental conversions to condominiums, and demolition of rental stock. The study concludes that it is much too simple to blame one government policy- rent control—for the problems of the urban rental sector. It is clear that the problems are deep-rooted and that a combination of many macro-economic factors such as high and unstable inflation and interest rates, and the general economic climate can have a greater impact than the regulatory framework on the rental sector. In addition, demographic factors such as provincial rates of migration can have a very significant impact on demand in the rental sector. More empirical studies are needed to build on this study to better assess the impact of rent control on Vancouver and other cites in British Columbia. Research is also needed to assess the accuracy of the claims made by rent control supporters in order to determine whether they comprise valid criteria upon which to formulate rental policy. - iv - TABLE OF CONTENTS ABSTRACT ii LIST OF TABLES vi LIST OF FIGURES viii ACKNOWLEDGEMENTS ix 1. INTRODUCTION 1 1.1 The Case Study Method 4 1.2 Terminology 8 1.3 Organization of the Thesis 11 2. REVIEW OF THE LITERATURE AND CONCEPTUAL FRAMEWORK 13 2.1 The Contentiousness of Rent Control as a Policy 15 2.2 Economic Inefficiencies of Rent Control 27 2.3 Rent Control Advocates 39 2.4 Summary 50 3. THE POLITICAL DEBATE OVER RENT CONTROL 51 3.1 Party Orientation Towards Housing Policy and The Rental Sector 53 3.2 The Introduction of Rent Control: 1974 to 1975 55 3.3 The Beginning of Rent Decontrol: 1977 to 1978 83 3.4 The Elimination of Rent Control: 1983 to 1984 87 3.5 Summary 93 - V - 4. RENT REGULATIONS IN BRITISH COLUMBIA: HISTORY AND DESIGN CHARACTERISTICS 95 4.1 History of Rent Regulation in British Columbia 95 4.2 Design Characteristics 113 4.3 Summary 121 5. THE IMPACT OF RENT DECONTROL ON VANCOUVER 123 5.1 The Socio-economic Context During and After Rent Control: 1974 to 1989 124 5.2 The Predicted Consequences of Rent Control 146 5.3 Conclusion 159 BIBLIOGRAPHY 165 APPENDIX A 172 - vi - LIST OF TABLES Table 1 The Gap Between Financial Recovery and Market Rents Canada, 1970-1983 41 Table 2 Composition of the B.C. Legislature 1973-1986 52 Table 3 Rental Market Indicators: Vancouver 1962-1983 57 Table 4 Historical Summary of Residential Rent Legislation In British Columbia 98 Table A-l Gross Domestic Product 1970-1989: Canada and British Columbia 173 Table A-2 Unemployment Rate In Canada, British Columbia, and Metro Vancouver 174 Table A-3 Consumer Price Index 1970-1989: Canada and Vancouver CMA 175 Table A-4 Rent Index 1971-1989: Canada and Vancouver CMA 176 Table A-5 Number Employed in Canada, British Columbia and Metro Vancouver 1970-1989 177 Table A-6 Population Increase: British Columbia 1970-1989 178 Table A-7 Private Dwelling Characteristics By Tenure 179 Table A-8 Residential Investment In British Columbia 180 Table A-9 Conventional Mortgage Rates 1970-1989 181 Table A-10 Multiple Unit Starts: Canada, British Columbia, and Vancouver 182 Table A-ll Vacancy Rates, 1970-1989 184 Table A-12 Housing Starts By Intended Market: Vancouver, 1983-1989 185 Table A-13 Housing Completions By Intended Market: Vancouver, 1975-1989 186 Table A-14 Average Rent For a 2 Bedroom Apartment, 1980-1989 187 vu Table A-15 Housing Demolition Permits For Apartments: Vancouver CMA 188 Table A-16 Condominium Conversions: Metropolitan Vancouver, 1971-1977 189 Table A-17 Conversion of Rental Units to Condominiums: City of Vancouver, 1979-1988 190 Table A-18 Property Taxes: 1906 Barclay Street 1976-1987 191 - viii - LIST OF FIGURES Figure 1 1975 Election Campaign Advertisment: The Social Credit Party 82 Figure 2 Annual Growth in Provincial GDP 125 Figure 3 Unemployment Rates 1970-1989 126 Figure 4 Annual Changes in Price Indexes, 1972-1989 127 Figure 5 Inter-provincial In-migration 128 Figure 6 Annual Changes: Residential Investment 131 Figure 7 Conventional Mortgage Rates 132 Figure 8 Housing Completions By Intended Market 133 Figure 9 Vacancy Rates 1970-1989 135 Figure 10 Multiple Dwelling Starts 143 Figure 11 Housing Starts By Intended Market 144 - ix - ACKNOWLEDGEMENTS I am indebted to my husband, Greg, for giving me the confidence to make it this far. I am also deeply grateful to David Hulchanski for his guidance and support throughout my studies at the Planning School. Your unfailing patience, humour and enthusiasm were particularly appreciated during this thesis project. A special thanks goes to Brahm Wiesman and Ted Mitchell for reviewing this thesis and for providing their helpful comments. Finally, I wish to thank Canada Mortgage and Housing Corporation. It was an honour to have been awarded a CMHC scholarship. -1 - CHAPTER ONE INTRODUCTION There is no question that Canada's private rental market is unable to provide all tenants with adequate housing at a price they can afford. In the words of one housing analyst: There is no doubt that [an affordability] problem exists-that a sizable group of renter households have incomes insufficient for them to be able to afford adequate housing on the private rental market.[l] Rental problems, including that of affordability, are exacerbated during periods of increased demand and reduced rental housing construction. One of the common responses to problems in Canada's rental sector is the introduction of rent control legislation by provincial governments as a method of protecting tenants. During the early 1970's, when problems in the rental market intensified, all Canadian provinces introduced rent control (except Quebec and Newfoundland where rent control already existed). Rent control still exists in some form in all provinces but British Columbia, Alberta, and Saskatchewan. Although Saskatchewan decontrolled rents it still maintains a tenant-initiated review procedure. New Brunswick also eliminated rent control in 1979 but then re-introduced it in 1983. Rent control was terminated in British Columbia in 1983 because the provincial government viewed it as a damaging policy that only exacerbated rental market problems. 1. Clayton Research Associates Limited. Rental Housing in Canada Under Rent Control and Decontrol Scenarios 1985-1991, Toronto: Canadian Home Builder's Association, 1984, p. 23. - 2 - This position was based on neo-classical economic theories which claim that rent control inevitably produces a host of detrimental effects. By analysing Vancouver's rental market during and after the 1974-1983 rent control period, this study assesses the validity of the major claims and predictions of those who opposed British Columbia's rent control policy. Given the severity of the problems in the rental sector, it is particularly important that the theoretical framework used by government for developing policy for this sector be reliable.