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Planning for the Housing Impacts of a Hallmark Event Is Fraught with Difficulties

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Planning for the Housing Impacts of a Hallmark Event Is Fraught with Difficulties PLANNING FOR THE HOUSING IMPACTS OF A HALLMARK EVENT: A CASE STUDY OF EXPO 86 By KRISTOPHER N. OLDS B.A., The University of British Columbia, 1985 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 1988 © Kristopher N. Olds,.1988 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 Canrnurrity and Regional Planning The University of British Columbia Vancouver, Canada na. April 26, 1988 DE-6 (2/88) i i ABSTRACT This study proposes a strategy which will assist governments, the sponsors of hallmark events, and community groups to identify and plan for the negative housing impacts of such events. Hallmark events are major one-time or recurring : events of limited duration, developed primarily to enhance the awareness, appeal and profitability of a tourist destination in the short and/or long term. World's Fairs and Olympic Games are two examples of hallmark events. The 1986 World's Fair (Expo 86) in Vancouver provided an opportunity to document the impacts of this hallmark event on the residents of a community which borders the fair site and on the planning practices of the local government. Five research questions are addressed: 1) How has the nature of World's Fairs changed since their emergence in the late 19th century? 2) To what extent have World's Fairs been used as an inner city redevelopment tool ; what have their housing impacts been; and, how have these impacts been planned for? 3) What was the nature of the housing impacts of Expo 86 on the residents of the Downtown Eastside community in i Vancouver? I 4) What was the City of Vancouver's planning process with respect to the potential and then actual housing impacts of Expo 86 on the residents of the Downtown Eastside? 5) What were the reasons for the success and/or failure of the City of Vancouver's planning process? These research questions are explored by: undertaking a literature review; corresponding with academics, planners and World's Fair staff in cities where fairs have or will be held; interviewing representatives of Expo 86, the City of Vancouver and the impacted community; analyzing City files on the issue; and, personal observation. The results suggest that the nature of World's Fairs has changed considerably since their emergence. In the last two decades, their use as an inner city redevelopment tool, in combination with the pressures created by millions of fair visitors, has created four different types of housing impacts: on-site impact; post-announcement speculative impact; pre-Expo tourist demand impact; and, post-Expo impact. In Vancouver, for example, between 1,600 and 2,600 lodging house units were demolished or converted between 1978 and 1986 in a community bordering the fair site (Expo 86 was announced in 1980). In addition, between January and June, 1986, 500 to 850 residents were evicted from lodging houses (Expo 86 opened on May 2, 1986). The evaluation of the City of Vancouver's planning process for the Expo 86 housing impacts suggests that the City was adequately prepared. However, it was the politics of planning -- the issues of political jurisdiction, ideology and ideological differences -- which resulted in the City's failure to stop the negative housing impacts. This study concludes by recommending that a systematic planning process be implemented for addressing the housing impacts of hallmark events. Planners should adapt their role in the process to fit the planning environment. Lastly, governments, sponsors of hallmark events, and community groups should implement a wide range of options to prevent negative housi impacts from occurring. Examples of such options and some "points to consider" are presented in Chapter Five of this study. TABLE OF CONTENTS Page ABSTRACT . i i CONTENTS v LIST OF TABLES vii LIST OF FIGURES viii CLARIFICATION OF TERMS ix ACKNOWLEDGEMENTS . x CHAPTER ONE: Introduction and Background A. Introduction 1 B. Context and Scope of the Study 3 C. Significance and Limitations 8 D. Methodology and Organization 11 CHAPTER TWO: Historical Overview of the Roles of World's Fairs A. Introduction 14 B. Period I: Origins of World's Fairs -15 C. Period II: The Early World's Fairs 18 D. Period III: The City Beautiful 23 E'. Period IV: The City Efficient 27 F. Period V: The City of Renewal 31 1. Expo 62 - Seattle, Washington 32 2. Expo 64/65 - New York, New York 34 3. Expo 67 - Montreal, Quebec 35 4. Expo 68 - San Antonio, Texas 38 5. Expo 74 - Spokane, Washington 40 6. Expo 82 - Knoxville, Tennessee 43 7. Expo 84 - New Orleans, Louisiana 50 8. Expo 88 - Brisbane, Australia 53 9. Expo 92 - Chicago, Illinois 56 G. Conclusions" 58 CHAPTER THREE: Expo 86 in Vancouver: A Case Study A. Introduction 64 B. Expo 86 1 . Origins 65 2. Location 69 3. General Operational Facts 71 4. The Legacies of Expo 86 71 5. The Relationship of Expo 86 to the B.C. Enterprise Corporation 75 vi C. The Impacted Community: A Profile of the Downtown Eastside 1. Location and Definition 78 2. A Brief History 80 3. A Statistical Profile 83 4. Residential Tenancy Rights 89 5. Sense of Community 90 D. The City of Vancouver's Planning Process 93 E. The Housing Impacts of Expo 86 1. On-site Impact 103 2. Post-Announcement Speculative Impact 103 3. Pre-Expo Tourist Demand Impact 107 4. Post-Expo Impact 110 5. The Health Costs of the Expo 86 Housing Impacts .. 112 6. The Impact on Housing in Metropolitan Vancouver .. 115 CHAPTER FOUR: An Evaluation of the City of Vancouver's Planning Process A. Evaluation of the Planning Process 117 B. The Politics of Planning 131 C. Conclusions 137 CHAPTER FIVE: An Action Plan, Recommendations and Summary A. How to Plan for the Housing Impacts of a Hallmark Event 1 . Introduction 140 2. The Process Issues to be Considered a. The Process 140 b. The Role of the Planner 141 3. A Catalogue of Possible Options and Points to Consider 145 C. The Future of the Downtown Eastside: Recommendations to the City of Vancouver 166 D. Summary 1. The Research Questions Addressed 169 2. Future Research Possibilities 176 BIBLIOGRAPHY : 179 APPENDIX I 207 APPENDIX II . 222 APPENDIX III 263 APPENDIX IV 264 APPENDIX V. 266 APPENDIX VI 268 vi i LIST OF TABLES Table 1 Population Changes in the Downtown North and South, the Downtown Eastside and Strathcona Census Tracts, 1961-1 981 84 Table 2 Lodging House Tenants and Their Proportion of the Total Residential Population in the Downtown North and South, the Downtown Eastside and Strathcona, 1961-1981 85 Table 3 Changes in Total Assessed Value for Downtown Residential Hotels, 1979-1982 104 Table 4 Indicators of Instability in the Residential Hotel Market, 1979-1982 105 Table 5 Index to Catalogue of Possible Options and Points to Consider 146 vi i i LIST OF FIGURES Figure 1 Map of Vancouver 66 Figure 2 Map of Expo 86 Site 70 Figure 3 Map of Downtown Eastside - Oppenheimer District (narrow definition) 78 Figure 4 Map of the Downtown Eastside (broad definition) 79 Figure 5 Prototype of Planning Problems 143 Figure 6 Planning Roles Categorized by Planning Conditions 144 CLARIFICATION OF TERMS World's Fair, fair, Expo, Exhibition, and Exposition are used interchangeably throughout the study. They are considered to refer to the same spectacle. The terms displacement, eviction and dislocation are used interchangeably throughout the study. They are considered to refer to the same process. X ACKNOWLEDGEMENTS This study could not have been completed without the help of many people. David Hulchanski and David Ley have provided excellent help and support as my primary advisors. Thanks also go to Peter Boothroyd, Henry Hightower and Brahm Wiesman for advice along the way. Doug Konrad supplied very helpful information and comment on the topic. The City of Vancouver's Social Planning (particularly Doug Purdy) and Health Departments were very supportive of the research. Jim Green and John Shaylor of DERA permitted "yet another" student to hound them for information. Finally, my wife Janice lovingly beared with, and assisted me over the three years it took to carry out the study. The Canada Mortgage and Housing Corporation (CMHC) provided me with two years of vital financial assistance through the CMHC Graduate Fellowship. 1 CHAPTER ONE INTRODUCTION AND BACKGROUND A. Introduction This study proposes a strategy which will assist governments, the sponsors of hallmark events, and community groups to identify and plan for the negative housing impacts of such events. Hallmark events are. defined as: Major- one-time or recurring events of limited duration, developed primarily to enhance the . awareness, appeal and profitability of a tourist destination in the short and/or long term. Such events rely for their success on uniqueness, status, or timely significance to create interest and attract attention. (Ritchie, 1984, p. 2) The proposed strategy addresses both process and substantive issues. Past experience has demonstrated that ad hoc planning ("fire fighting") is a problematic and costly activity for all parties, especially the poor and elderly inner city residents who most often suffer because of the housing impacts.
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